U.S. Election Assistance Commission

 FISCAL YEAR 2004 ANNUAL REPORT

 

Preparing America to Vote 

Commissioners

Hon. Gracia M. Hillman, Chair

Hon. Paul S. DeGregorio, Vice Chairman 

Hon. DeForest B. Soaries, Jr., Commissioner 

Hon. Ray Martinez III, Commissioner 

U.S. Election Assistance Commission 

1225 New York Avenue, NW, Suite 1100 

Washington, DC 20005 

(202) 566-3100 UNITED STATES OF AMERICA

ELECTION ASSISTANCE COMMISSION
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U.S. Election Assistance Commission 

Fiscal Year 2004 Annual Report Submitted January 2005

Executive Summary ...........................................................................................................3 

Introduction ........................................................................................................................6 

Agency Startup..................................................................................................................7 

 

EAC Program and Activity Results in FY 2004................................................................8 

Payments and Grants........................................................................................................8 

Title I Election Reform Payments .................................................................................9 

Title II Requirements Payments to States ..................................................................10 

State Reporting ..........................................................................................................13 

National Student/Parent Mock Election......................................................................13 

Clearinghouse Resources...............................................................................................14 

Best Practices Toolkit on Election Administration ......................................................14 

Best Practices Report on Voting by Uniformed and Overseas Voters .......................15 

2004 Election Surveys................................................................................................15 

Web Site.....................................................................................................................16

Guidance and Outreach ..................................................................................................17 

National Voter Registration Act ..................................................................................17

National Poll Worker Initiative ....................................................................................18 

Help America Vote College Poll Worker Program......................................................18 

Public Meetings and Commission Votes ....................................................................19 

Outreach to Key Stakeholder Groups ........................................................................22 

Voting Systems Standards and Guidelines.....................................................................22 

Standards Board and Board of Advisors ....................................................................23 

Technical Guidelines Development Committee..........................................................24 

Electronic Voting Security ..........................................................................................26 

Human Factors Report ...............................................................................................27 

Accreditation of Voting System Testing Laboratories.................................................28 

Voting System Qualification Process .........................................................................28 

National Software Reference Library .........................................................................28 

EAC Program and Research Activities in FY 2005........................................................29 

Financial Reporting and Auditing ....................................................................................29 

Research and Guidance .................................................................................................29 

Conclusion........................................................................................................................31 

Appendices.......................................................................................................................32 

APPENDIX A: Commissioner Biographies................................................................32 

APPENDIX B: EAC Board of Advisors and Standards Board Members ...................36 

APPENDIX C: Technical Guidelines Development Committee Members.................43 

TABLE OF CONTENTS

U.S. Capitol photo courtesy of Troy Griffis 
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Executive Summary

The U.S. Election Assistance Commission (EAC) is pleased to submit its second annual 

report to Congress. The Commission began operation in January 2004, and overcame 

numerous challenges, the first and greatest of which was its actual launch. EAC was 

established 10 months later than required by the Help America Vote Act of 2002 (HAVA), 

was seriously under funded, and had no offices, equipment, or staff. The total operating 

budget for Fiscal Year (FY) 2004 was just $1.2 million. 

With the November 2004 election approaching, interest in Commission activities heightened 

and the EAC and its work drew considerable attention from the media and public. In the 

spotlight and under intense pressure to improve the election process, EAC Commissioners 

worked diligently throughout the year to direct limited resources to the issues most urgent for 

State and local election administrators as they prepared for the general election. Moreover, 

the four Commissioners—two Republicans and two Democrats—forged a consensus on all 

the issues that came before the EAC during the past year. This spirit of bipartisan cooperation 

carried forward into 2005. 

Once offices were secured and a small, dedicated staff was assembled, EAC entered an 

energized and invigorated period leading up to the 2004 general election that was marked by 

several major accomplishments, including the release of HAVA funding to the States; the 

development and release of a comprehensive best practices report designed to assist State and 

local election administrators enhance their processes; various guidance and outreach projects 

to assist State and local governments in implementing HAVA mandates, such as provisional 

voting and voter identification requirements; and significant steps toward updating voluntary 

voting systems standards and the testing laboratory certification process. 

The Commission disbursed approximately $1.3 billion in HAVA funds to 44 States in FY 

2004. These funds gave election officials across the country the opportunity to implement the 

various administrative mandates contained in HAVA, conduct additional voter education, 

further train election officials, and recruit and train additional—and greatly needed—poll 

workers for Election Day. EAC supplemented these State and county efforts with best 

practices pieces, innovative programs, and recommendations on election administration 

practices. 

The purpose of this annual report is to provide a clear and objective account of EAC’s 

achievements in FY 2004. Beginning the important work of this new Federal agency was 

particularly challenging during a presidential election cycle, but helping America vote—and 

ensuring every legitimate vote was counted while every opportunity to reduce fraud was 

considered—drove EAC’s determination to succeed. 
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Highlights

 EAC achieved the following objectives required by Federal law in FY 2004: 

 Carried out the Agency’s startup responsibilities, including the establishment of 

EAC offices, staff, a FY 2004 work plan, and other administrative 

accomplishments, which allowed for proper functioning of the Agency with a $1.2 

million budget; 

 Reviewed 55 State plans to ensure compliance with HAVA provisions; 

 Distributed approximately $1.3 billion in Title II requirements payments to States, 

which combined with the approximately $645,000 million in Title I funds 

distributed by the U.S. General Services Administration (GSA), total 

approximately $2 billion in funding that was available to the States by the end of 

FY 2004—an unprecedented figure for election reform; 

 Administered a $198,820 grant for the National Student/Parent Mock Election 

program; 

 Established a clearinghouse for information on the administration of elections by 

issuing two best practices reports: a toolkit for election administrators focusing on 

the use of voting system technologies and provisional voting; and a report on 

facilitating voting for absentee military and overseas voters; 

 Prepared to distribute three national surveys to collect State and county data on 

matters affecting election administration in the 2004 election cycle, including 

provisional voting and voting equipment performance; 

 Established an official EAC Web site to report on Commission activities and 

provide information on HAVA implementation to the public; 

 Assumed responsibilities previously assigned to the Federal Election 

Commission’s (FEC) Office of Election Administration under the National Voter 

Registration Act of 1993 (NVRA); 

 Mounted two national initiatives to address the issues of poll worker recruitment, 

training, and deployment, including the HAVA College Poll Worker Program that 

distributed $627,000 in grants to higher education institutions for these purposes; 

 Sent Commissioners to more than 30 States to observe election administration 

practices firsthand and update officials on HAVA implementation, and scheduled 

their participation at dozens of events across the country to exchange information 

with key HAVA stakeholders; 
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 Convened the EAC Standards Board, EAC Board of Advisors, and the Technical 

Guidelines Development Committee (TGDC) to assist EAC in carrying out a 

number of critical functions; 

 Initiated the process of developing updated voluntary voting systems standards for 

the security, accuracy, reliability, and auditability of election equipment, through 

the work of the National Institute of Standards and Technology (NIST) and the 

TGDC; 

 Prepared a report on human factors research relevant to voting systems, in 

consultation with NIST; 

 Held hearings on the security of voting technologies and the national poll worker 

shortage, as well as other public meetings to conduct EAC business; 

 Laid the groundwork for the development of a national testing program for voting 

systems in consultation with NIST and the TGDC, and instituted a voting systems 

software reference program under the National Software Reference Library 

(NSRL). 

At the same time, the delayed establishment of EAC and operating budget constraints 

restricted its ability to conduct some HAVA-mandated activities within the prescribed 

timeline. EAC was forced to postpone or limit the following work: 

 Issuance of HAVA Title III guidance on voting systems standards, statewide voter 

registration systems, provisional voting, voter education, and voters who register 

by mail; 

 Development of a report on the feasibility and advisability of reducing or waiving 

postage for absentee ballots submitted by voters in the general elections for 

Federal office, and a report on issues and challenges presented by incorporating 

communications and Internet technology into the election process; and 

 Development of updated voluntary voting system guidelines and a national voting 

system testing program. 

Perhaps the most serious implication of the delayed EAC startup is the impact it will have 

on State procurement of new election equipment and the ability of some States and local 

election jurisdictions to meet HAVA requirements by statutory deadlines. 

Although these activities have not been completed, the Commissioners understand that all 

HAVA requirements must be met. EAC is working diligently to fulfill its obligations. 

These activities are addressed in the final section of this report, EAC Program and Research 

Activities for FY 2005. 
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INTRODUCTION

EAC appreciates the vested interest that Congress has in the status of the voting process. 

During the past year, Commissioners made numerous appearances before Congressional 

committees and caucuses to share achievements and gather input from Congressional leaders. 

They traveled the country to see firsthand how elections are conducted in various States and 

localities, taking every opportunity to consult with elections officials. They held meetings 

and attended dozens of events to gain input from voter advocates, academics, and as many 

key stakeholders as possible. EAC even conducted briefings for a number of interested 

foreign delegations that wanted to learn from the American election reform experience. 

Under the requirements of HAVA, EAC submits an annual report to the Senate Committee on 

Rules and Administration and the House Committee on House Administration by January 31 

each year. The report details the Commission’s activities during the fiscal year ending on 

September 30 of the previous calendar year, including a detailed description of activities 

conducted under each HAVA program area, with information on related payments or grants. 

Key reports prepared by, or submitted to, EAC by payments and grant recipients are 

summarized; full reports may be obtained by contacting the Commission. 

The EAC is led by four Commissioners who are appointed by the President and confirmed by 

the Senate. The Commissioners serve staggered terms and no more than two of them may 

belong to the same political party. HAVA Section 203(a)(4) required the establishment of 

EAC within 120 days of the enactment of the law. Since HAVA was enacted in October 

2002, EAC should have been created by the second quarter of FY 2003; however, the 

Commissioners were confirmed near the end of the first quarter of FY 2004 (December 13, 

2003). As a result, this annual report summarizes the nine months of HAVA-related FY 2004 

Commission activities that occurred after this date. 

 

This report presents an overview of EAC activities, particularly as they relate to helping 

States implement HAVA-mandated changes and prepare for the presidential election. In 

addition to the formation and evolution of the Commission itself, the achievement areas for 

the past year include requirements payments to States, clearinghouse activities and data 

gathering on election administration issues, guidance and outreach, and voting systems 

standards. 

The final section of this annual report provides a look ahead at EAC’s major activities for FY 

2005. Appendix documents supplement information contained in certain subject areas. 
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Agency Startup

Due to the delayed EAC establishment, and its status as a new Federal agency with no 

precedent to follow, a description of the activities for organizing the Commission and its 

offices in early 2004 is valuable. 

The Commissioners had to determine how, with a FY 2004 budget of only $1.2 million, 

EAC could carry out the following: 

 Rent, furnish, and equip offices; 

 Hire staff and pay salaries; 

 Receive the transfer of responsibilities from the FEC’s OEA; 

 Meet at least some of the HAVA mandates to establish voting systems standards 

and create updated voluntary guidelines for the States. 

With few alternatives, the Commission formulated a startup strategy involving partnerships 

with several other Federal agencies. GSA approved a rent waiver, allowing EAC to move 

into the offices it now occupies at 1225 New York Avenue, Suite 1100, in Washington, DC. 

When EAC moved into its new space on April 1, 2004, it also was able to accept the 

transfer of the OEA. EAC established additional partnerships with Federal agencies to 

acquire furnishings, office equipment, and other necessary services or supplies. 

HAVA requires EAC to appoint an Executive Director, General Counsel, and Inspector 

General. Funding constraints caused EAC to postpone these hires, but the agency has made 

progress. EAC appointed a General Counsel in September, followed by an Interim 

Executive Director in October 2004. EAC will appoint an Inspector General in 2005. 

Including the four Commissioners and four employees transferred from the Federal Election 

Commission, EAC grew to a staff of 18 by the close of the fiscal year. 
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EAC PROGRAMAND ACTIVITY RESULTS IN FY 2004

When Congress mandated the creation of EAC, it entrusted the Commission to effectively 

manage the process by which States receive and account for their Federal funds under HAVA, 

while at the same time offering research, guidance, and standards on certain topics that the 

law prescribes. 

EAC’s mission covers four major areas: 

 Managing the distribution of HAVA funding to the States and other authorized 

entities, and overseeing related financial reporting and auditing functions; 

 Serving as a national clearinghouse on matters concerning the administration 

of elections under Federal law; 

 Providing guidance and outreach to State and local election officials; 

 Developing standards and guidelines for issues of central importance to the 

successful implementation of HAVA, including voting systems, statewide 

voter registration systems, and provisional ballots. 

This section of the annual report discusses EAC’s programmatic activities in these mission 

areas for FY 2004, along with related HAVA requirements and deadlines. 

Payments and Grants

Congress appropriated more than $3 billion for HAVA implementation, the majority of 

which goes toward requirements payments to States. In June 2004, EAC began working 

with GSA to disburse payments to States under HAVA Title II Sections 202(4) and 251(a) 

and (e). These payments are designed to assist States in meeting uniform and 

nondiscriminatory election technology and administration requirements. EAC distributed 

more than $1.3 billion in Title II funds to 44 States during FY 2004. As of September 30, 

2004, approximately $986 million in funding remained available to States, of which more 

than $208 million was distributed by January 12, 2005 (the remaining available funds total 

approximately $778 million). 

Additionally, EAC began reviewing protocols for financial reporting based upon State 

reports on Title I payments. 

This section of the report details Title I and Title II payments and grants, as well as 

financial reporting activities during the past fiscal year. The last part covers a grant 

payment made to the National Student/Parent Mock Election program. 
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Title I Election Reform Payments 

In FY 2003, before EAC was established, Congress directed GSA to distribute 

approximately $650 million in HAVA Title I “early money” to States (the word 

“State” as used in HAVA includes the 50 States, District of Columbia, American 

Samoa, Guam, Puerto Rico, and the U.S. Virgin Islands) for improvements in the 

administration of elections ($325 million under HAVA Section 101) and to replace 

punch card and lever voting equipment ($325 million under HAVA Section 102). 

When it distributed the funds, GSA also informed States about requirements for the 

first financial report that would come due. 

All States were eligible to receive a minimum payment under Sections 101 and 102. 

Section 101 funds were available for States to carry out a roster of activities designed 

to improve elections. Only States that were interested in using Section 102 funds to 

replace punch card and lever machines could apply for Section 102 funds. 

TABLE 1—The following chart contains a breakdown of GSA’s Title I payments to 

States. 

HAVA TITLE I PAYMENTS TO STATES 

State Section 101 

Section 

102* Total Payments 

Alabama $4,989,605 $51,076 $5,040,681 

Alaska $5,000,000 $5,000,000 

Arizona $5,451,369 $1,564,188 $7,015,557 

Arkansas $3,593,165 $2,569,738 $6,162,902 

California $27,340,830 $57,322,707 $84,663,537 

Colorado $4,860,301 $2,177,095 $7,037,396 

Connecticut $5,000,000 $5,000,000 

Delaware $5,000,000 $5,000,000 

District of Columbia $5,000,000 $5,000,000 

Florida $14,447,580 $11,581,377 $26,028,957 

Georgia $7,816,328 $4,740,448 $12,556,776 

Hawaii $5,000,000 $5,000,000 

Idaho $5,000,000 $5,000,000 

Illinois $11,129,030 $33,805,617 $44,934,647 

Indiana $6,230,481 $9,522,394 $15,752,875 

Iowa $5,000,000 $5,000,000 

Kansas $5,000,000 $5,000,000 

Kentucky $4,699,196 $469,256 $5,168,452 

Louisiana $4,911,421 $7,351,684 $12,263,105 

Maine $5,000,000 $5,000,000 

Maryland $5,636,731 $1,637,609 $7,274,340 

Massachusetts $6,590,381 $1,519,497 $8,109,879 

Michigan $9,207,323 $6,531,284 $15,738,607 

Minnesota $5,313,786 $5,313,786 

Mississippi $3,673,384 $1,778,067 $5,451,451 
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Missouri $5,875,170 $11,472,841 $17,348,011 

Montana $5,000,000 $5,000,000 

Nebraska $5,000,000 $5,000,000 

Nevada $5,000,000 $5,000,000 

New Hampshire $5,000,000 $5,000,000 

New Jersey $8,141,208 $8,695,609 $16,836,817 

New Mexico $5,000,000 $5,000,000 

New York $16,494,325 $49,603,917 $66,098,243 

North Carolina $7,887,740 $893,822 $8,781,562 

North Dakota $5,000,000 $5,000,000 

Ohio $10,384,931 $30,667,664 $41,052,595 

Oklahoma $5,000,000 $5,000,000 

Oregon $4,203,776 $1,822,758 $6,026,534 

Pennsylvania $11,323,168 $22,916,952 $34,240,120 

Rhode Island $5,000,000 $5,000,000 

South Carolina $4,652,412 $2,167,518 $6,819,929 

South Dakota $5,000,000 $5,000,000 

Tennessee $6,004,507 $2,473,971 $8,478,478 

Texas $17,206,595 $6,269,521 $23,476,116 

Utah $3,090,943 $5,726,844 $8,817,786 

Vermont $5,000,000 $5,000,000 

Virginia $7,105,890 $4,526,569 $11,632,459 

Washington $6,098,449 $6,799,430 $12,897,879 

West Virginia $2,977,057 $2,349,474 $5,326,531 

Wisconsin $5,694,036 $1,308,810 $7,002,846 

Wyoming $5,000,000 $5,000,000 

Guam $1,000,000 $1,000,000 

Puerto Rico $3,151,144 $3,151,144 

Virgin Islands $1,000,000 $1,000,000 

American Samoa $1,000,000 $1,000,000 

Total $349,182,262 $300,317,738 $649,500,000 

* Section 102 payment 

per precinct according to 

GSA formula = $3,192.22 

Title II Requirements Payments to States 

EAC distributed more than $1.3 billion in Title II payments to 44 States in FY 2004. 

These payments are designed to assist qualified States in meeting the uniform and 

nondiscriminatory election technology and administration requirements in Title III of 

the law. The list includes voting systems standards, provisional voting and voting 

information requirements, a computerized statewide voter registration list, and 

identification requirements for first-time voters who register by mail. Congress 

appropriated $830 million in FY 2003 and almost $1.5 billion in FY 2004 for 

requirements payments. In accordance with HAVA section 252(e), the funds remain 

available to States without fiscal year limitation until disbursed. With the FY 2004 

rescission, EAC had a total of $2.3 billion to distribute. 
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In general, States used these funds to execute their State plans and implement changes 

to comply with HAVA. For FY 2004, HAVA requirements included provisional 

voting, voting information and education, new voter registration identification 

requirements, and a State administrative complaint procedure. Other HAVA Title III 

requirements include voting equipment replacements or upgrades, and computerized 

statewide voter registration lists. 

To receive funds, States had to file for certification following publication of the State 

plans in the Federal Register and the expiration of a public comments period. Due to 

EAC’s lack of resources in early 2004, GSA organized and paid for the first 

publication of all 55 State plans. The plans were published in the Federal Register on 

March 24, 2004. 

On May 6, 2004, EAC sent a notice to each of the States outlining HAVA 

requirements for submitting a statement of certification to receive requirements 

payments. As States filed their certifications, EAC staff reviewed them for 

compliance with the following general requirements of HAVA Section 253: 

 The State plan covered the fiscal year for which the State was certifying; 

 The State plan included establishment of a uniform, nondiscriminatory statebased administrative complaint procedure; 

 The State had appropriated funds to match up to five percent of the Federal 

funding it would receive; 

 The State affirmed that it was in compliance with a series of six Federal laws 

regarding elections. 

Some State certifications could not be processed immediately due to compliance 

issues, most involving either the State administrative complaint procedure or the five 

percent match; both are prerequisites to receiving requirements payments. When 

compliance was in question, EAC staff promptly contacted the State election office to 

explain the issues and offer assistance in resolving problems. 

During the four and one half months from the date EAC received its first State 

certification (May 11, 2004) through the end of the fiscal year, the Commissioners 

voted on 10 recommendations involving requirements payments to States, all of which 

were unanimously approved. At the close of the fiscal year, EAC had processed 

requirements payments to 44 States, as listed in Table 2. 
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TABLE 2—The following table shows HAVA Title II requirements payments processed 

by EAC in FY 2004. 

HAVA Title II Requirements Payments 

 State 

FY 2003 

Funds* 

FY 2004 

Funds* 

Total 

Payment(s)* 

1 Alabama $12,835,092 $23,031,421 $35,866,513 

2 American Samoa $830,000 $1,489,361 $2,319,361 

3 Arkansas $7,729,205 $13,869,365 $21,598,570 

4 California $94,559,169 $0 $94,559,169 

5 Colorado $12,362,309 $22,183,056 $34,545,365 

6 Connecticut $9,919,624 $17,799,877 $27,719,501 

7 Delaware $4,150,000 $0 $4,150,000 

8 District of Columbia $4,150,000 $7,446,803 $11,596,803 

9 Florida $47,416,833 $0 $47,416,833 

10 Georgia $23,170,602 $41,577,568 $64,748,170 

11 Idaho $4,150,000 $7,446,803 $11,596,803 

12 Indiana $17,372,175 $31,172,812 $48,544,987 

13 Iowa $8,495,310 $15,244,073 $23,739,383 

14 Kansas $7,661,648 $0 $7,661,648 

15 Kentucky $11,773,250 $21,126,042 $32,899,292 

16 Louisiana $12,549,220 $22,518,452 $35,067,672 

17 Maine $4,150,000 $0 $4,150,000 

18 Maryland $15,201,214 $27,277,216 $42,478,430 

19 Massachusetts $18,688,102 $33,534,124 $52,222,225 

20 Michigan $28,256,578 $0 $28,256,578 

21 Minnesota $14,020,413 $25,158,375 $39,178,788 

22 Mississippi $8,022,516 $14,395,687 $22,418,203 

23 Missouri $16,073,033 $28,841,617 $44,914,650 

24 Montana $4,150,000 $0 $4,150,000 

25 Nebraska $4,920,376 $0 $4,920,376 

26 Nevada $5,785,410 $0 $5,785,410 

27 New Hampshire $4,150,000 $7,446,803 $11,596,803 

28 New Jersey $24,358,479 $0 $24,358,479 

29 New Mexico $5,110,126 $9,169,664 $14,279,790 

30 North Carolina $23,431,708 $42,046,100 $65,477,808 

31 North Dakota $4,150,000 $0 $4,150,000 

32 Ohio $32,562,331 $58,430,186 $90,992,517 

33 Oregon $9,961,818 $0 $9,961,818 

34 Pennsylvania $35,992,863 $64,585,966 $100,578,829 

35 Rhode Island $4,150,000 $0 $4,150,000 

36 South Carolina $11,602,190 $20,819,090 $32,421,280 

37 Tennessee $16,545,934 $0 $16,545,934 

38 Texas $57,504,778 $0 $57,504,778 

39 Vermont $4,150,000 $7,446,803 $11,596,803 

40 Virginia $20,572,984 $0 $20,572,984 

41 Washington $16,889,420 $30,306,551 $47,195,971 

42 West Virginia $5,476,493 $9,827,076 $15,303,569 

43 Wisconsin $15,410,741 $27,653,194 $43,063,935 

44 Wyoming $4,150,000 $7,446,803 $11,596,803 

Total $694,561,944 $639,290,888 $,333,852,831 
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Table 3—This table shows available funding for FY 2005 HAVA Title II requirements 

payments. 

HAVA Title II Requirements Payments 

Funds Available in FY 2005

FY 2003 FY 2004 Total 

Amount(s) 

Appropriated $830,000,000 $1,498,200,000 $2,328,200,000 

Federal 

Rescission $0 -$8,839,380 -$8,839,380 

Amount to Be 

Disbursed $830,000,000 $1,489,360,620 $2,319,360,620 

Amount 

Disbursed to 

Date $694,561,944 $639,290,888 $1,333,852,831 

Remaining to 

Be Disbursed $135,438,056 $850,069,732 $985,507,789 

State Reporting 

In June 2004, GSA provided EAC with copies of the State financial reports filed 

earlier in the year. They report the status of HAVA Section 101 funds for 

improvements to election administration and 102 funds for replacement of punch card 

and lever machines as of December 31, 2003. A summary of these reports is available 

in Table 1 of this section. Individual State reports are available by contacting EAC. 

Based upon EAC reviews of financial reports submitted to GSA, it is apparent that 

most States have not expended the majority of their Title I payments. Since the first 

State financial reports cover a period ending December 2003, it is likely that a number 

of States made efforts to obligate and expend additional funds in 2004. After 

reviewing the initial data provided to GSA, EAC was not able to discern the specific 

activities conducted by States with Title I funds. To better understand the use of these 

HAVA funds, EAC has requested updated financial reports that will include additional 

information to be consistent with reporting requirements for Title II payments. The 

results of these reports will be available in FY 2005. 

National Student/Parent Mock Election 

HAVA Section 295 authorizes EAC to award grant funding to the National 

Student/Parent Mock Election (NSPME), a national, nonpartisan organization that 

promotes voter participation through educational activities for students and parents. 

In August 2004, EAC awarded a $198,820 grant earmarked to the National 

Student/Parent Mock Election. EAC received the following documentation from the 

organization: 

 A copy of the organization’s current Articles of Incorporation; 
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 A copy of the organization’s 501(c)(3) determination letter; 

 Required Office of Management and Budget (OMB) forms, including the 

SF 424 Application Form; SF 424 A Budget Information; and SF 424 B 

Assurance Non-construction Programs; 

 A Certification Regarding Lobbying. 

EAC required the organization to file quarterly financial reports, due within 15 days 

after the end of each quarter, and submit a copy of the organization’s annual 

performance report covering activity through September 30, 2004. Copies of these 

reports are available by contacting EAC. 

Clearinghouse Resources

In accordance with HAVA Section 202, EAC serves as a clearinghouse for information on 

the administration of elections under Federal law. EAC is committed to gathering 

information on best practices and lessons learned and disseminating this information in a 

timely and informative manner. Last year, the Commission began building a repository of 

critical guidance and resources for State and local election officials as they prepared for the 

general election. 

EAC produced two clearinghouse pieces in FY 2004 designed to address HAVA mandates. 

The first deals with best practices on the administration, management, and security of 

voting systems and provisional ballots, as well as voter identification, polling place signage, 

and State administrative complaint procedures. The second best practices piece covers 

voting by uniformed and overseas voters. 

EAC also began preparing three surveys to collect national data on the 2004 election cycle: 

a 2004 Election Day Survey for the States; a study of uniformed and overseas voter 

assistance; and a study of provisions of NVRA. 

To create a forum for sharing information with the public and other stakeholders, EAC 

established its official Web site at www.eac.gov. 

These projects are detailed in this section of the annual report. 

Best Practices Toolkit on Election Administration 

On August 9, 2004, EAC released a Best Practices Toolkit on Election Administration 

to offer guidance to election officials before the November elections. This document 

addresses challenges, solutions, and model practices in the administration, 

management, and security of elections. The practices cover pre-election management, 

outreach, poll workers and polling places, provisional voting, and election operations 
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on all voting systems, including lever, punch card, optical scan, and direct recording 

systems. Election officials also received a checklist for HAVA implementation with 

precise guidance on identification requirements for new voters, provisional voting, 

voter information that must be posted at polling places, State administrative complaint 

procedures, disability access, and a lengthy list of resources. 

One of the most important topics featured in this toolkit is provisional ballots, which 

were required under HAVA and used by many States for the first time in 2004. To 

ensure this provision of the law was implemented in a uniform and nondiscriminatory 

manner, the document includes guidance on maintaining clear, uniform standards and 

procedures for issuing, processing, researching, and counting provisional ballots. It 

urges officials to reduce the need for provisional ballots by addressing voter 

registration problems well ahead of Election Day, and resolving eligibility issues at 

the polling place so voters can cast regular ballots. The report also encourages 

election administrators to record and publicize the number of provisional ballots 

issued, the number counted, and top reasons why they are not counted. 

The best practices toolkit shares innovative and successful methods from jurisdictions 

of various sizes and geographic locations, and has been used by thousands of local 

election officials to gain new ideas for dealing with the challenges of election 

administration. The toolkit is available on the EAC Web site at www.eac.gov. 

Best Practices Report on Voting by Uniformed and Overseas Voters 

The U.S. Department of Defense, through the Federal Voting Assistance Program, is 

responsible for administering the Uniformed and Overseas Citizens Absentee Voting Act 

(UOCAVA). Under this law, absentee military personnel and citizens who reside abroad 

are guaranteed the right to vote and cast absentee ballots for Federal offices. 

HAVA Section 242 required EAC, in consultation with the Secretary of Defense, to 

compile a report on best practices for assisting UOCAVA voters. On September 21, 

2004, EAC released the results of this effort. The Commission’s Best Practices for 

Facilitating Voting by U.S. Citizens Covered by UOCAVA describes methods to 

enhance absentee voter registration by UOCAVA voters and ensure the timely receipt 

of their ballots. The report is designed to assist State and local election officials who 

administer the elections involving these citizens. The full report is posted on the EAC 

Web site at www.eac.gov. 

2004 Election Surveys 

HAVA Section 241 instructs EAC to conduct public studies on election administration 

issues. To provide Congress with an accurate report on the November 2004 election, 

EAC developed a survey to gather quantitative data from the States. At the end of FY 

2004, EAC began preparing three surveys in total: an Election Day 2004 Survey; a 
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Military and Overseas Absentee Ballot Survey; and a NVRA Survey. The results of 

this research will be available in FY 2005. 

EAC is not exempt from the Paperwork Reduction Act (PRA); therefore, the 

Commission developed the surveys within the notice, publication, and approval 

framework that the Act requires. Prior to the November 2004 elections, EAC 

developed and distributed the Election Day 2004 Survey and the Military and 

Overseas Absentee Ballot Survey to the States. 

The Election Day 2004 Survey will provide national data—some of it for the first 

time—on a range of issues. Topics include number of registered voters, number of 

ballots cast, number of absentee ballots cast and counted, number of provisional 

ballots cast and counted, reasons for rejecting absentee or provisional ballots, voting 

machine malfunctions that occurred, number of poll workers available on Election 

Day, and voting equipment used in each jurisdiction. 

The Military and Overseas Absentee Ballot Survey will provide information on the 

number of absentee ballots requested and returned by military and overseas citizens. 

The survey will enable EAC to carry out the provisions of HAVA Section 703, which 

require the Commission to gather the number of absentee ballots transmitted to and 

received from uniformed and overseas citizens in each State after each general 

election for Federal office. 

To complete its research on the 2004 election cycle, EAC will also conduct a survey 

to collect data on voter registration and other activities under NVRA. 

These surveys have the potential for long-term impact on the understanding of 

election administration practices and the assessment of HAVA implementation efforts. 

For the most part, they represent the Federal government’s first attempt to gather 

national data on elections. 

Web Site 

 

The Commission launched its Web site, www.eac.gov, on May 5, 2004, in accordance 

with HAVA Section 206. During the past year, EAC used the site as a primary 

communication vehicle for the Commission, publicizing public meetings, letters, news 

releases, and clearinghouse documents. The site is designed to meet Federal 

government accessibility requirements and space has been allotted for Spanish 

language translations. 

The EAC Web site received more than 12 million hits in FY 2004. By the end of 

September 2004, with two months until the general election, the site was averaging 

more than 500,000 hits per week. 
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Guidance and Outreach

Guidance and outreach projects are designed to assist election administrators and others 

involved with HAVA implementation. During FY 2004, the EAC focused on helping States 

prepare for the general election and introducing the Commission’s HAVA mission to key 

stakeholders across the country. EAC did not have the time or resources to devote to the 

development of comprehensive guidance, so much of its programmatic work in this area is 

structured as outreach. The list includes a review of the National Mail Voter Registration 

Form, the introduction of two national poll worker initiatives, public meetings, and 

stakeholder outreach. This section describes these activities. 

National Voter Registration Act

HAVA Section 802 transferred to EAC the responsibilities exercised by the FEC 

under NVRA. These responsibilities include: 

  Developing and maintaining a mail voter registration application form for Federal 

office elections, in consultation with the Chief Election Officers of the States; 

  Submitting a report to Congress on the impact of NVRA; 

  Prescribing necessary regulations to develop and maintain the National Mail 

Voter Registration Form and produce a report to Congress every two years; 

  Providing information about State responsibilities under the law. 

EAC began its oversight of NVRA in FY 2004 by reviewing Federal regulations for 

the National Mail Voter Registration Form. On August 10, the Commission approved 

a policy statement addressing plans to administer the form under HAVA Section 

303(a)(5)(A), which requires voter registration applicants to provide verification of 

their identity. Registrants must produce either a driver’s license number or the last 

four digits of the applicant’s Social Security number on a voter registration 

application. If an applicant cannot provide one of these numbers, the State must 

assign that voter a unique number. The one exception to this requirement is States 

that use the full Social Security number for identification purposes under a grandfather 

clause in the Privacy Act of 1976. 

The Commission’s policy statement, adopted unanimously, allows States to extend the 

effective date of these HAVA requirements until January 1, 2006, if they had already 

requested a waiver for implementing a computerized statewide voter registration list. 

Until then, States are allowed to use State-specific instructions for national form. 

In addition to the policy statement, EAC commissioned and posted a Spanish 

translation of the form online in July 2004. The National Mail Voter Registration 

Form and EAC policy statement are available online at www.eac.gov. 
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National Poll Worker Initiative 

Successful recruitment, training, and retention of poll workers are essential as new 

election procedures and voting system equipment guidelines are adopted to meet 

HAVA requirements. EAC launched the National Poll Worker Initiative in June 2004, 

laying the groundwork for long-term efforts to meet this challenge. This effort 

included a public appeal to corporations, Federal government agencies, private 

organizations, and individual citizens to sign up as poll workers. EAC distributed 

more than 600 letters asking companies to allow employees to serve as poll workers 

on Election Day without having to take a personal or vacation day. 

EAC held a public hearing on poll worker recruitment, training, and retention on 

September 13, 2004. The speakers made a number of recommendations to EAC, 

including the following: 

  Provide a more directed message and better information to voters regarding the 

need for poll workers and the requirements for serving; 

  Assist local election officials in achieving a better understanding of the skills 

modern poll workers need, and devising better ways for recruiting appeals to 

reach both public and private sector workers; 

  Provide model guidance on polling place management and conduct research to 

test the kinds of messages that resonate with various demographic groups; 

  Encourage more personal contact between local election officials and college 

students to help motivate them to serve as poll workers; 

  Encourage local election officials to reach out to individuals receiving social 

services benefits in order to recruit poll workers. 

Resources from this program are available online at www.eac.gov. 

Help America Vote College Poll Worker Program 

EAC successfully developed the Help America Vote College Poll Worker Program in 

time for the November elections. This program prompts college students to serve as 

nonpartisan poll workers and encourages local governments to use the services of 

students participating in the program. 

In October 2004, EAC awarded 15 grants totaling nearly $630,000 to a variety of 

finalists that included community colleges, four-year colleges and universities, and 

nonprofit organizations. The average award was $41,800. 

Grantees recruited more than 5,300 students for the program. With a little more than 
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three weeks to recruit, train, and place students, almost 1,700 students were trained 

and placed as poll workers or poll assistants. Several programs experienced a 

significant shortfall between the number of students recruited and the number actually 

placed. Because of timing difficulties, many election jurisdictions were unable to 

employ the student recruits; however, retention rates were very high for those students 

who were recruited, trained, and placed. Intensive monitoring and supervision by 

college poll worker project directors also proved highly effective. 

In its summary report on the HAVA College Poll Worker Program, EAC offers 

several policy and program recommendations for future college poll worker grant 

programs. Recommendations include requiring applicants to verify with election 

officials the number of student poll workers needed and their requirements for 

allowing students to serve as poll workers. Program applicants also would have to 

incorporate in their program plan a method for supervising students throughout the 

recruitment, training, and placement process, and provide a means of verifying student 

poll worker service. 

The HAVA College Poll Worker Report is available online at www.eac.gov. 

TABLE 4—The following table lists the HAVA College Poll Worker Program 

grantees, including amounts awarded. 

HAVA College Poll Worker Program Grantees 

Name of Institution Grant Amount Location 

Asnuntuck Community College $30,000 Enfield, CT 

Assoc. Students, Inc. (Cal State Univ.) $25,000 Long Beach, CA 

Eastern Michigan University $25,000 Ypsilanti, MI 

Florida Memorial College $50,000 Miami Gardens, FL 

Golden Key International Honor Society $130,000 Atlanta, GA 

Illinois Central College $12,000 East Peoria, IL 

Los Angeles Conservation Corps $20,000 Los Angeles, CA 

Northampton Community College $25,000 Bethlehem, PA 

Northern Kentucky University $25,000 Highland Heights, KY 

Roxbury Community College $30,000 Boston, MA 

Rural Ethnic Institute $50,000 Rapid City, SD 

University of Baltimore $70,000 Baltimore, MD 

University of Maryland, College Park $25,000 College Park, MD 

University of North Texas $80,000 Denton, TX 

Wiley College $30,000 Marshall, TX 

TOTALS: $627,000 

Public Meetings and Commission Votes 

Beginning with an organizational meeting in March, EAC held five public meetings 

and two hearings during FY 2004. The Commissioners took nearly 50 formal votes 
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on diverse important matters, with all affirmative votes passed unanimously. EAC 

used public meetings to serve three major functions: 

 To inform the public about the status of ongoing EAC programs and activities, 

including requirements payments to the States, the HAVA College Poll 

Worker Program, the National Poll Worker Initiative, best practices reports, 

and activities of various EAC boards and committees; 

 To provide a forum for collecting feedback from key stakeholders in the 

election process on issues pertinent to the EAC mission of preparing America 

to vote in 2004 and beyond; 

 To provide an opportunity for EAC Commissioners and staff to make 

programmatic recommendations, deliberate issues, and take votes in a public 

setting. 

A summary of FY 2004 EAC votes is shown in Table 5. Official meeting minutes and 

agendas are available for all FY 2004 public meetings on EAC’s Web site at 

www.eac.gov. 

TABLE 5—The following chart details EAC’s voting calendar for FY 2004, 

including the topic of each vote and when it was certified. 

U.S. EAC FISCAL YEAR 2004 VOTES 

Topic Votes in 

Favor 

Voting 

Forum 

Date 

Certified 

1. Election of 2004 Officers 4 Public 03/23/04 

2. Letters to State Chief Executives Regarding 

Statements of Certifications for HAVA Title II 

Requirements Payments 4 Tally 05/04/04 

3. Procedures for Voting by Circulation 4 Tally 05/04/04 

4. Recommended Process for Handling Certifications 

from the States (HAVA Sec.253) 4 Tally 06/08/04 

5. Recommended Actions Regarding EAC June 3 

Hearing in Chicago 4 Tally 06/08/04 

6. Identification of Financial Disclosure Filers on 

Standards Board, Board of Advisors, and 

Technical Guidelines Development Committee 4 Tally 06/10/04 

7. Approval of Recommended Joint Appointments to 

Technical Guidelines Development Committee; 

Letter Regarding Same to NIST Director 4 Tally 06/10/04 

8. Application of OMB Circular Financial 

Management Controls to Title II Requirements 

Payments 4 Tally 06/11/04 

9. Approval of Disbursement of HAVA Title II 

Requirements Payments to 21 States 4 Tally 06/14/04 

10. Approval of FACA Charters for Standards Board 

and the Board of Advisors 4 Tally 06/16/04 

11. Disbursements of HAVA Title II Requirements 

Payments to Four States 4 Tally 06/16/04 
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12. Approval and Filing of the FACA Charter of the 

Technical Guidelines Development Committee 4 Tally 06/24/04 

13. Provisional List of Prohibited Sources for 

Technical Guidelines Development Committee 4 Tally 06/25/04 

14. Designation of Designated Federal Officer for 

Technical Guidelines Development Committee 4 Tally 06/30/04 

15. Designation of Designated Federal Officer for 

Standards Board and Board of Advisors Direction 

to Chair Meetings 4 Tally 06/30/04 

16. Disbursement of HAVA Title II Requirements 

Payments to Three States 4 Tally 06/30/04 

17. Designation of Agency Final Reviewing Official for 

Confidential Financial Disclosure Forms Filed by 

Certain Members of Advisory Committees 4 Tally 06/30/04 

18. Convening a Meeting of the Standards Board and 

the Board of Advisors 4 Tally 07/02/04 

19. Provisional List of Prohibited Sources 4 Tally 07/02/04 

20. Disbursement of HAVA Title II Requirements 

Payments to Two States 4 Tally 07/12/04 

21. Request to GSA to Distribute $198,820 Grant to 

National Student/Parent Mock Election Program 4 Public 07/13/04 

22. Adoption of Best Practices Toolkit Document 4 Public 07/13/04 

23. Public Hearing on Poll Workers-September 13 4 Public 07/13/04 

24. Collection of State Data for November 2004 

Election Research Projects 4 Public 07/13/04 

25. Commission Advisory Letter Regarding Five 

Recommendations on Electronic Voting Security 4 Public 07/13/04 

26. Disbursement of HAVA Title II Requirements 

Payments to Seven States 4 Tally 08/03/04 

27. National Voter Registration Form Policy Statement 4 Public 08/10/04 

28. Recruitment of Student Poll Workers Through 

HAVA College Poll Worker Program 4 Public 08/10/04 

29. Disbursement of HAVA Title II Requirements 

Payments to Two States 4 Tally 08/16/04 

30. Procedural Resolutions Adopted by the Technical 

Guidelines Development Committee 4 Tally 08/16/04 

31. Appointment of General Counsel 4 Tally 08/17/04 

32. Disbursement of HAVA Title II Requirements 

Payments to One State 4 Tally 08/19/04 

33. Disbursement of HAVA Title II Requirements 

Payments to One State 4 Tally 08/31/04 

34. Disbursement of HAVA Title II Requirements 

Payments to Three States 4 Tally 09/09/04 

35. Adoption of Best Practices Report for Facilitating 

Voting by U.S. Citizens Covered by the Uniformed 

and Overseas Citizens Absentee Voting Act 

(UOCAVA) 4 Public 09/13/04 

36. Resolution Supporting National Association of 

Secretaries of State Voter Registration Week 

(September 13-19) 4 Public 09/13/04 

37. Federal Register Publication of Seven State Plans 4 Tally 09/21/04 

38. Appeal of Grant Application DisqualificationExecutive Travis Rural Area, Inc. 4 Tally 09/21/04 

39. EAC Grants Policy Directive 4 Tally 09/21/04 
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40. Appeal of Grant Application Disqualification-The 

Academy of Broadcast Arts 4 Tally 09/21/04 

41. Letter to States That Had Not Provided 

Administrative Complaint Procedures 4 Tally 09/27/04 

42. Response to Questions from State of Missouri 4 Tally 09/27/04 

43. Help America Vote College Program Grants 4 Tally 09/27/04 

44. Disbursement of HAVA Title II Requirements 

Payments to Four States 4 Tally 09/28/04 

45. Delegated Authority to Contract with GSA for 

Administrative Services-FY 2005 4 Tally 09/30/04 

46. Appointment of Interim Executive Director 4 Tally 09/30/04 

Outreach to Key Stakeholder Groups 

During EAC’s first year, the four Commissioners focused on providing direct 

assistance to State and local election officials, facilitating the distribution of HAVA 

funds to the States, and overseeing development of new voting system guidelines. 

They spent the months prior to November 2004 meeting with election officials at all 

levels to hear their concerns and learn from their efforts, and they were reminded 

regularly that “details matter” in the administration of elections. The Commissioners 

traveled to an estimated 30 States and the District of Columbia to learn more about 

HAVA compliance in Federal elections, observe primaries and poll worker training 

sessions, and attend State and national conferences. 

At the request of the U.S. Department of State, the Commissioners also met with 

foreign delegations interested in American election reform. Between January and 

September 2004, EAC gave 10 briefings to delegations of foreign elections officials. 

The delegations represented Poland, Jordan, Moldova, Serbia, Mexico, Great Britain, 

Slovakia, and Brazil, as well representatives of West Bank/Gaza and the Organization 

for Security and Co-Operation in Europe. In September 2004, Commissioner 

DeGregorio also served as keynote speaker on U.S. election reform efforts at the 

annual meeting of the Association of Central and Eastern European Election Officials 

in Tirana, Albania. 

YSTEMS STANDARDS AND GUIDELINES

Voting Systems Standards and Guidelines

Among EAC’s most important functions are the testing and certification of voting system 

hardware and software. Successfully implementing this key function demands development 

of revised voluntary voting systems standards, which will prescribe technical requirements 

for voting system performance, security, and auditability, and will identify testing protocols 

to determine how well systems meet these requirements. Certification of testing 

laboratories to ensure competent resources are available is equally important, as is the 

process for reviewing system test reports to validate that systems have met standards and 

can be declared qualified for use in Federal elections. Each of these elements is discussed 

below. 
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Delay in the establishment of EAC caused a comparable lag in standards development. 

HAVA called for adoption of voluntary standards by January 1, 2004. Since the 

Commissioners were confirmed the month before, the deadline could not be met; however, 

the Commissioners specified standards development as a priority objective for FY 2004. 

This section of the annual report outlines EAC’s progress with NIST on voting systems 

work, including formation of the EAC Standards Board and Board of Advisors, convening 

of the TGDC, examination of electronic voting security issues, issuance of a human factors 

report, development of a Federal voting equipment qualification process and a testing 

laboratory certification process, and the use of a National Software Reference Library 

(NSRL). 

Standards Board and Board of Advisors 

Input of key stakeholders is critical to establishing updated standards and voluntary 

guidelines for the use of voting equipment; therefore, EAC assembled a 37-member 

Board of Advisors and a 110-member Standards Board, as HAVA requires. The two 

boards met for the first time and chose leadership on June 28 and 29, 2004, in 

Houston, Texas. Membership lists of both boards are provided in Appendix B. 

 

HAVA requires specific member designation to each board to ensure that broad 

representation and diverse expertise and perspectives are contributed to group 

deliberations. Board members serve terms and can be reappointed. HAVA Title II 

Section 215 (f) establishes the boards as permanent committees and EAC is to provide 

necessary administrative support. 

HAVA also requires the Board of Advisors and the Standards Board to conduct a number 

of activities in addition to meetings. They must review standards, voluntary guidelines, 

best practice guidance to the States, and various HAVA reports. These boards are to 

recruit and recommend candidates for the position of EAC Executive Director. Both 

boards function solely as advisory bodies and must comply fully with the provisions of 

the Federal Advisory Committee Act. 

EAC Board of Advisors 

Membership on the Board of Advisors includes the following groups, as specified in 

HAVA (two members appointed by each): The National Governors Association; 

National Conference of State Legislatures; National Association of Secretaries of 

State; National Association of State Election Directors; National Association of 

Counties; National Association of County Recorders, Election Administrators and 

Clerks; U.S. Conference of Mayors; Election Center; International Association of 

Clerks, Recorders, Election Officials and Treasurers; U.S. Commission on Civil 

Rights, and the Architectural and Transportation Barrier Compliance Board. 

Other members of the Board of Advisors include representatives from each of the 

following: U.S. Department of Justice, Office of Public Integrity, and the Civil Rights 
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Division; the director of the U.S. Department of Defense Federal Voting Assistance 

Program; four professionals from the field of science and technology, one each 

appointed by the Speaker and Minority Leader of the U.S. House of Representatives, 

and the Majority and Minority leaders of the U.S. Senate; and eight members 

representing voter interests, with the Chairs and Ranking Minority Members of the 

U.S. House of Representatives Committee on House Administration and the U.S. 

Senate Committee on Rules and Administration each appointing two. 

At the June 2004 meeting, the Board of Advisors elected Doug Lewis, Executive 

Director of the Election Center, to serve as temporary Chairman while it develops 

bylaws. 

EAC Standards Board 

The Standards Board consists of 110 members, 55 of whom are State election officials 

selected by their respective Chief State Election Official. The other 55 members are 

local election officials selected through a process supervised by the Chief State 

Election Official. Under HAVA, references to States include the District of Columbia 

and all U.S. Territories. 

HAVA prohibits any two members who represent the same State from being members 

of the same political party. The board selected nine members to serve as an Executive 

Board, of whom 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. 

HAVA includes specifications on the length of terms to be served by the Executive 

Board. 

Technical Guidelines Development Committee 

HAVA Section 221 calls for the establishment of a TGDC to assist the Commission in 

the development of voluntary voting system guidelines (also referred to as voluntary 

standards). These guidelines, or standards, are characterized as voluntary because 

EAC does not have the regulatory authority to issue mandatory standards. 

Consequently, each State retains the prerogative to decide whether to adopt these 

standards for the procurement of voting systems. 

The Chairman of the TGDC is the Director of the NIST. The TGDC is composed of 

the Director and 14 other individuals appointed jointly by the Commission and the 

Director. HAVA Section 221 prescribes the composition of the TGDC membership as 

follows: 

 Members of the EAC Standards Board; 

 Members of the EAC Board of Advisors; 
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 Members of the Architectural and Transportation Barrier Compliance Board; 

 A representative of the American National Standards Institute; 

 A representative of the Institute of Electrical and Electronics Engineers; 

 Two representatives of the National Association of State Election Directors; 

 Other individuals with technical and scientific expertise relating to voting 

 systems and voting equipment. 

The first meeting of the TGDC was held July 9, 2004, and focused on committee 

organization and defining working procedures. The members created three 

subcommittees: Computer Security and Transparency; Core Requirements and 

Testing; and Human Factors and Privacy. 

Each TGDC subcommittee is responsible for developing high-level resolutions or 

guiding principles for the scope and content of voting system standards. These 

resolutions are debated and finalized by the entire TGDC and, if approved, passed to 

NIST with tasking to conduct research, evaluate existing standards, and revise or write 

new standards as required to implement each resolution. The resulting NIST work 

product will be standards statements or a specification for a standard that needs to be 

developed, as well as a description of the test protocols for verifying compliance. 

Table 6 provides an example of a resolution and the associated tasking to NIST. 

The TGDC subcommittees schedule regular teleconferences and conduct public 

meetings to gather information. Their proceedings are available to members of the 

public at http://vote.nist.gov. Teleconference schedules and topics are published in 

advance and simultaneous Web casts of all discussions are available. Interested 

parties may also provide comments via the NIST Web site at http://vote.nist.gov. All 

comments are reviewed by subcommittee members. 

A list of TGDC members is available in Appendix C. 
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TABLE 6—This table provides an example of a resolution with associated tasking to NIST. 

Sample TGDC Resolution 

Resolution # 4-05 

Human Factors and Privacy Requirements for Capturing Indication of a 

Voter’s Choice 

Based on current research, the TGDC recognized the need for voting system 

requirements to include human factors, and privacy requirements for capturing 

indication of a voter’s choice. These requirements should be specified so systems 

can be evaluated. Imprecise specifications such as “intuitive,” “unambiguous,” or 

“meaningful” should be avoided. Further, performance-based standards are 

preferred over specific design standards because performance standards address the 

total effectiveness of the system more directly than do design standards, and 

typically they are not technology-specific. The TGDC directs NIST to: 

1. Create an outline of the human factors and privacy requirements related 

to capturing indication of a voter’s choice. 

2. Write draft human factors and privacy standards based on this outline 

by using existing requirements from the VSS2002, IEEE P1583 draft 

5.3.2a, ADA Accessibility Guidelines, and other relevant usability and 

accessibility guidelines and regulations. 

3. Identify areas where further development of requirements for capturing 

indication of a voter’s choice is needed, noting when performance-based 

usability standards are possible. 

4. Write all requirements so they are testable and the tests can be 

conducted either by inspection by a person with reasonable knowledge 

of systems, user interface design, and accessibility, or by performancebased usability tests with clear, repeatable protocols.

Electronic Voting Security 

In addition to working with NIST to launch the TGDC, EAC responded to public 

concerns about the security and reliability of electronic touch-screen voting systems, 

popularly referred to as DREs. The Commission held a public hearing in May 2004 on 

the use, security, and reliability of electronic voting systems. Witnesses included 

computer security experts, academics, election officials, voting rights advocates, and 

voting system vendors. The Commission made voting system security and auditability 

a priority of its standards work. 

EAC also issued an Advisory Letter on Electronic Voting Security, which identified a 

number of actions that election officials could take to improve system integrity and 

promote voter confidence for the 2004 election. One recommendation was to define 

and implement enhanced security measures and provide process transparency to the 

public. In addition, the Commission requested that voting system vendors submit 

copies of their certified software to the NIST Software Reference Library so election 

officials could validate the software used for the election. The State of Maryland used 
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this capability for the 2004 election. 

A copy of the EAC Advisory Letter on Electronic Voting Security is available at 

www.eac.gov. 

Human Factors Report 

HAVA Section 243 directs the Commission, in consultation with the Director of 

NIST, to submit to Congress a report on human factors research. EAC 

Commissioners played an active role in the oversight and direction of this report, 

entitled Improving the Usability and Accessibility of Voting Systems and Products, 

which was completed in April 2004. This report will make a significant contribution 

to the development of the voluntary standards. 

The report’s main recommendation advocates development of performance-based 

standards for the usability of voting systems, focusing on how the system functions 

from an end-user perspective. For example, the voting machine screen should be easy 

for a voter to understand and indicate clearly how to record choices. The report 

further suggests that voting machine vendors should incorporate usability testing in 

product development. 

A full copy of the report is available online at www.eac.gov. 

Accreditation of Voting System Testing Laboratories 

HAVA Section 231 requires EAC and NIST to develop a national program for 

accrediting voting system testing laboratories. On June 23, 2004, NIST published a 

notice in the Federal Register announcing the establishment of this program, which 

operates as part of the National Voluntary Laboratory Accreditation Program 

(NVLAP). The national program will provide initial accreditation of testing 

laboratories and periodic reexamination and recertification to ensure they continue to 

meet the criteria. NIST will begin accepting applications in April 2005, when the test 

lab certification process will formally transition from the National Association of State 

Election Directors (NASED), which has performed this work since early 1992. 

NVLAP provides internationally recognized, independent evaluation of laboratory 

competence. Labs seeking accreditation will submit an application describing their 

facilities and staff qualifications in relation to the relevant standards. NVLAP will 

examine the applicant’s ability to test systems using the voluntary voting system 

standards, based on their written documentation and an inspection of their facilities. 

Laboratories that achieve accreditation will be recommended by NIST to the EAC for 

designation as approved voting system testing laboratories. EAC will maintain a 

register of qualified laboratories to help vendors and election officials identify 

resources to fulfill system testing requirements. 
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Voting System Qualification Process 

Accredited testing laboratories will test vendor systems for conformance with 

voluntary voting system standards. Once testing is complete, the results must be 

reviewed to determine whether the system is eligible to be designated a qualified 

voting system. NASED has been responsible for conducting this review since 1992; 

however, HAVA directs EAC to assume this responsibility. Preliminary planning for 

the transition began in FY 2004 and a full transition to EAC will be completed in FY 

2005. 

National Software Reference Library 

In July 2004, EAC and NIST established a part of the NSRL specifically for voting 

systems. The Commission encouraged voting system vendors to submit copies of 

their certified system software to NSRL so election officials could validate their match 

to the certified version. Five vendors provided their software for this purpose. At the 

July 13, 2004 EAC public meeting, NIST presented a report on the use of the NSRL 

for voting system software validation. This report is available online at 

www.nsrl.nist.gov/vote/July132004-EAC.pdf. 
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EAC PROGRAM AND RESEARCH ACTIVITIES

IN FY 2005

With an approved budget of $14 million, EAC plans to start several important research 

projects and offer direction on a number of election topics addressed in this report. The 

following are some highlights. 

Financial Reporting and Auditing

EAC is working with OMB, GSA, and other Federal agencies to establish procedures and 

protocols for reporting and auditing payments. EAC has significant fiduciary responsibility 

to assure self-compliance and self-certification by the States. As of FY 2005, EAC will be 

completely responsible for all costs associated with publishing State plan updates and 

administering requirements payments. 

It should be noted that most States developed a HAVA implementation plan based upon the 

expectation that Congress would fully fund the law. Given that HAVA’s requirements 

payments provision has not been fully funded to date, EAC anticipates that most States will 

submit revisions to their plans to adjust for the decrease in funds. 

Pursuant to its obligations under HAVA, EAC will begin a review and audit of FY 2004 

State expenditures of HAVA funds. EAC will establish an Inspector General program, 

receive and review spending reports filed by the States, and review single audit reports. If 

discrepancies or improprieties are identified in those reports, or if EAC learns of potential 

misuse of HAVA funds, EAC will decide if a special audit is warranted. If a special audit is 

conducted, EAC will review the findings and make recommendations and referrals to State 

and Federal agencies of jurisdiction. 

Research and Guidance

Key to FY 2005 research is data collection from States and counties on a number of election 

administration topics, including provisional ballots, absentee voting, voter registration, 

voting equipment performance, and availability and training of poll workers. This first-ever 

comprehensive data collection is expected to yield valuable insights into the current status 

of election administration. EAC will continue to refine data collection activities in the years 

ahead to determine progress toward HAVA goals. 

In addition, EAC has identified certain areas for research that will inform guidance to the 

States based upon their 2004 election experiences. Provisional voting, voter identification 

requirements, voter information, and other critical areas will involve review and analysis of 

State legislation and administrative procedures, identification of election administration 

issues, and formulation of recommendations to be applied in the 2006 elections. 
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Many States are directing efforts to meeting the January 2006 deadline for implementation 

of statewide voter registration databases and the replacement or upgrade of voting systems 

to meet HAVA requirements. The EAC will issue voter registration database guidance 

aimed at increasing voter access while reducing opportunities for fraud. Further, the 

Agency expects to receive initial recommendations for voting system standards from the 

TGDC and NIST for use in voting system procurements, laying the groundwork for future 

technical assistance to the States. 

Another major EAC initiative will be assuming responsibility for the certification and 

decertification of voting systems. EAC expects to strengthen this process through more 

rigorous procedures and documentation and to make improvements over time. 

Finally, EAC will prepare reports on electronic (Internet) voting and the impact of free 

postage on absentee voting, as required by HAVA Sections 245 and 246 respectively. 
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CONCLUSION

EAC’s theme for FY2004 was “Preparing America to Vote.” The focus of activity was 

twofold: establishing the Commission itself; and providing initial guidance to States on 

HAVA provisions pertaining to the administration of the 2004 general election. Now that the 

first Federal election after HAVA has occurred, EAC is focusing its FY 2005 efforts on 

identifying the elements of HAVA that worked well and areas where improvements are 

needed. EAC is also directing attention to providing guidance to assist States in meeting 

their 2006 HAVA deadlines for statewide voter registration lists and voting system 

improvements. 

The theme for FY2005 is “Building a Framework for Excellence.” It will take several years 

to fully accomplish the wide-ranging changes to the U.S. electoral process envisioned by 

HAVA. The agency’s efforts will be oriented towards developing tools and processes for 

achieving the standard of excellence in election administration that HAVA requires. EAC 

will continue to develop cooperative working relationships with State and local election 

officials, since they are ultimately the key to successful HAVA implementation. 

This year’s work on revising the voluntary voting system standards is expected to provide a 

much improved basis for testing and validating voting systems. This work will need to 

continue in FY 2006. Bringing the voting system qualification and test lab certification 

processes under EAC management will also have long-lasting impacts on the future quality of 

voting systems. EAC anticipates instituting a formalized peer review process for system 

qualification that will incorporate strong quality assurance and configuration management 

elements. This is another area where improvements will be realized over time. The 

Commissioners and staff will continue to exert the same dedication of purpose, hard work, 

and enthusiasm that became the hallmarks of the agency in FY 2004. 
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Appendix A: Commissioner Biographies1

Honorable Gracia M. Hillman, Chair

The Honorable Gracia M. Hillman was nominated by President George W. Bush and 

confirmed by unanimous consent of the U.S. Senate on December 9, 2003, to serve an initial 

two-year term on the U.S. Election Assistance Commission (EAC). Ms. Hillman was elected 

Chair of the EAC for 2005, after serving as the Agency’s first Vice Chair in 2004. 

A Massachusetts native who first entered community service in 1970, Ms. 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. She 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 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 Coordinator for International Women’s Issues, 

developing agency-wide strategies to ensure U.S. foreign policy promoted 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, DC. 

 

1

 The four EAC Commissioners were confirmed by the Senate on December 9, 2003, and appointed by the 

President on December 13, 2003. 
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Honorable Paul S. DeGregorio, Vice Chairman

The Honorable Paul S. DeGregorio was nominated by President George W. Bush and 

confirmed by unanimous consent of the U.S. Senate on December 9, 2003, to serve an initial 

two-year term on the U.S. Election Assistance Commission (EAC). Mr. DeGregorio was 

elected by his fellow Commissioners to serve as EAC Vice Chair for 2005. 

Mr. DeGregorio is nationally renowned in the elections field. His areas of expertise include 

U.S. election administration, democracy building, and international elections. In 2004, he 

received the NASS Freedom Award from the National Association of Secretaries of State in 

recognition of his accomplishments. 

Prior to his appointment with EAC, Mr. DeGregorio served as Executive Vice President and 

Chief Operating Officer of the International Foundation for Election Systems (IFES), a 

leading institution involved in the promotion of democracy worldwide. He was responsible 

for the organization’s day-to-day operation, overseeing more than 400 employees in 23 

countries. He has provided technical assistance in election administration in many countries, 

including Russia, Kazakhstan, Moldova, Ukraine, Romania, Albania, Macedonia, BosniaHerzegovina, China, Slovakia, Georgia, Cambodia, Thailand, Indonesia, Sierra Leone, the 

Democratic Republic of Congo, Nigeria, and Japan. At IFES, Mr. DeGregorio also provided 

leadership on U.S. election reform initiatives and led a team that supplied technical advice in 

Florida and Missouri during the November 2002 elections. 

From 1985 to 1993, Mr. DeGregorio served as Director of Elections for St. Louis County, 

Missouri’s largest jurisdiction. During his tenure, he instituted major improvements in voter 

registration, training, accessibility, counting, and management procedures. He was 

recognized for his efforts in prosecuting voter fraud and drafting legislation to improve the 

electoral process. He served as Co-chair of the Missouri Election Reform Commission in 

2001. A member of the International Association of Clerks, Recorders, and Election Officials 

(IACREOT) since 1986, during his tenure as Chairman of the Education and Training 

Committee, Mr. DeGregorio was credited with initiating the University of Missouri 

Chancellor’s Certificate in Public Administration program for IACREOT members. 

Mr. DeGregorio served for eight years as Director of Outreach Development for the 

University of Missouri-St. Louis, where he initiated and had oversight for four off-site 

campuses that served nearly 4,000 students. He also served as a Research Associate with the 

University’s Center for International Studies. Mr. DeGregorio was a Special Assistant in 

President Ronald Reagan’s administration and served as an assistant to John Ashcroft during 

his first term as Missouri Attorney General. 

Mr. DeGregorio received his degree in political science from the University of Missouri-St. 

Louis. He is married to Kerry DeGregorio and has four daughters—Katie, Annie, Debbie, and 

Emily—as well as one granddaughter, Victoria. 
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Honorable DeForest B. Soaries, Jr., Commissioner

Appointed to an initial four-year term by President Bush and confirmed by the U.S. Senate, 

the Honorable DeForest B. Soaries, Jr., served as the first Chairman of the U.S. Election 

Assistance Commission (EAC) from March 2004 through January 2005. 

Under his leadership, the Commission established itself as a key component in the 

administration of elections under Federal law. During his term as Chairman, more than $2.2 

billion was distributed to States to fund upgrades for election equipment and improve the 

administration of elections. Additionally, EAC provided information in the form of best 

practices to State and local election officials as they prepared for the 2004 presidential 

election and held public hearings to investigate important election issues, such as electronic 

voting, Election Day security, and provisional ballots. The EAC also assisted voters by 

conducting an unprecedented effort to recruit people through corporations, Federal agencies, 

national organizations, and colleges to serve as nonpartisan poll workers and Election Day 

judges. 

In February 2003, President Bush appointed Dr. Soaries to serve as a public director of the 

Federal Home Loan Bank of New York. He was a member of the affordable housing 

committee of the bank. From January 12, 1999 to January 15, 2002, he served as New 

Jersey’s 30th Secretary of State. Appointed by former Governor Christine Todd Whitman, he 

managed one of the premier departments of State government and served as a senior advisor 

to the governor on issues that transcended traditional department lines. 

Dr. Soaries currently is Senior Pastor of the 7,000-member First Baptist Church of Lincoln 

Gardens in Somerset, New Jersey. A pioneer of faith-based community development, he has 

led First Baptist in the construction of a new $17 million church complex and the formation of 

many nonprofit entities to serve the community surrounding the church. 

Dr. Soaries earned a bachelor’s degree from Fordham University, a master of divinity degree 

from Princeton Theological Seminary, and a doctor of ministry degree from United 

Theological Seminary. He also has received six honorary doctorate degrees from institutions 

of higher learning. Additionally, Dr. Soaries has taught courses at Princeton Theological 

Seminary, Drew University Theological School, Kean University, and Mercer County 

College. He has received numerous awards for leadership and community service and was 

recognized recently by the New Jersey legislature for his religious and community leadership. 

Dr. Soaries is married to Margaret Donna Soaries and is the father of twin sons, Malcolm and 

Martin. They currently reside in Princeton, New Jersey. 
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Honorable Ray Martinez III, Commissioner

The Honorable Ray Martinez was nominated by President George W. Bush and confirmed by 

unanimous consent of the U.S. Senate on December 9, 2003, to serve a four-year term on the 

U.S. Election Assistance Commission. 

Prior to his appointment, Mr. Martinez practiced law in Austin, Texas, where his focus was 

primarily on government affairs and administrative law matters. His clients were mainly 

county governments and other public entities. Concurrent with his law practice and as a 

community service, he served as Executive Director and Legal Counsel of the Every Texan 

Foundation, a nonpartisan voter registration and education effort dedicated to increasing voter 

participation in Texas. 

Mr. Martinez began his law practice after serving as Deputy Assistant to the President for 

Intergovernmental Affairs at the White House. In this position, he was responsible for 

assisting former President Bill Clinton with various policy issues involving the nation’s 

governors and other statewide elected officials. While part of the White House staff, he 

assisted with development of long-term strategies to stimulate economic growth along the 

United States–Mexico border region, and with the establishment of the United States–Mexico 

Border Health Commission, now headquartered in El Paso, Texas. 

Before serving as Deputy Assistant to the President, Mr. Martinez served as Regional 

Director for the U.S. Department of Health and Human Services in Dallas, where he focused 

agency resources on public health issues such as full implementation of the Children’s Health 

Insurance Program. His Federal government service began in 1993, when he was appointed 

White House Liaison to the U.S. Department of Health and Human Services, and later as 

Special Assistant to the President in the White House Office of Political Affairs. Prior to his 

service in the Federal government, Mr. Martinez worked as a legislative liaison for the Texas 

Attorney General’s office. 

A native of Alice, Texas, Mr. Martinez received his law degree from the University of 

Houston Law Center and his bachelor's degree from Southwestern University. He is married 

to Beth Stanley Martinez, a clinical social worker, and they are the parents of two children, 

Sofia Grace and Lorenzo Elder. They currently reside in Arlington, Virginia. 

 
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Appendix B: EAC Board of Advisors and

Standards Board Members

EAC Board of Advisors

National Conference of State Legislatures (1) 

Sheldon Silver 

Speaker, New York Assembly 

Albany, NY 

National Conference of State Legislatures (2) 

Christopher Rants 

Iowa Speaker of the House 

Des Moines, IA

National Governors Association (1) 

Vacant

National Governors Association (2) 

Vacant 

National Association of Secretaries of State (1) 

Mary Kiffmeyer 

Secretary of State 

St. Paul, MN

National Association of Secretaries of State (2) 

Dan A. Gwadosky 

Secretary of State 

Augusta, ME 

National Association of State Election 

Directors (1) 

Christopher Thomas 

Michigan State Director of Elections 

Lansing, MI 

National Association of State Election 

Directors (2) 

Thomas Wilkey 

Former Executive Director 

New York State Board of Elections 

Rensselaer, NY 

National Association of Counties (1) 

Wendy Noren 

Boone County Clerk 

Columbia, MO 

National Association of Counties (2) 

Helen Purcell 

Maricopa County Recorder 

Phoenix, AZ 

National Association of County Recorders, 

Election Officials and Clerks (1) 

Beverly Kaufman 

Harris County Clerk 

Houston, TX

National Association of County Recorders, 

Election Officials and Clerks (2) 

David Orr 

Cook County Clerk 

Chicago, IL 

U.S. Commission on Civil Rights (1) 

Francis Guess 

Vice President, The Danner Company 

Nashville, TN

U.S. Commission on Civil Rights (2) 

Victoria Wilson 

Vice President, Alfred A. Knopf Publishers 

New York, NY 

The Election Center (1) 

Doug Lewis 

Executive Director 

The Election Center 

Houston, TX 

The Election Center (2) 

Ernie Hawkins 

Former Registrar of Voters 

Sacramento County 

Elk Grove, CA 

U.S. Conference of Mayors (1) 

Vacant

U.S. Conference of Mayors (2) 

Vacant 
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International Association of Clerks, 

Recorders, Election Officials and Treasurers (1) 

Tony J. Sirvello, III 

IACREOT Executive Director 

Houston, TX 

International Association of Clerks, 

Recorders, Election Officials and Treasurers (2) 

Sharon Turner Buie 

Director of Elections, Board of Elections 

Kansas City, MO 

Architectural and Transportation Barrier 

Compliance Board (1) 

James R. Harding 

ACCESS Board Member 

Tallahassee, FL 

Architectural and Transportation Barrier 

Compliance Board (2) 

James Elekes 

ACCESS Board Member 

North Plainfield, NJ 

House Speaker (1) 

JC Watts 

Washington, D.C. 

House Minority Leader (1) 

Douglas Palmer 

Mayor 

Trenton, NJ 

Senate Majority Leader (1) 

Wesley R. Kliner, Jr. 

McDonald, TN 

Senate Minority Leader (1) 

Thomas H. Shortbull 

President, Oglala Lakota College 

House Administration, Chair (1) 

Jim Carnes 

Deputy Director 

Ohio Department of Natural Resources 

St. Clairesville, OH 

House Administration, Chair (2) 

Catherine L. Hanaway 

Speaker of the Missouri 

House of Representatives 

Jefferson City, MO 

House Administration Ranking Minority 

Member (1) 

Joseph F. Crangle, Esq. 

Attorney, Colucci & Gallaher, P.C. 

Buffalo, NY

House Administration Ranking Minority 

Member (2) 

Hilary O. Shelton 

Director, Washington Bureau, NAACP 

Washington, DC 

Senate Rules & Administration, Chair (1) 

Sue Sautermeister 

Municipal Election Commissioner 

City of Ridgeland 

Ridgeland, MS 

Senate Rules & Administration, Chair (2)

Tamara Somerville 

Independent Consultant/Lobbyist 

Vancouver, WA 

Senate Rules & Administration 

Ranking Minority Member (1) 

James C. Dickson 

Vice President for Governmental Affairs 

American Association of People with Disabilities 

Washington, DC 

Chief, Voting Section, Civil Rights Division, 

U.S. Department of Justice 

Hans von Spakovsky 

Counsel to the Assistant Attorney General 

U.S. Department of Justice 

Washington, DC 

Chief, Office of Public Integrity, 

U.S. Department of Justice 

Noel Hillman 

Chief, Public Integrity Section 

Washington, DC 

Senate Rules & Administration 

Ranking Minority Member (2) 

Robin Carnahan 

Attorney at Law 

St. Louis, MO

Director, Federal Voting Assistance Program 

U.S. Department of Defense 

Polli Brunelli 

Director, Federal Voting Assistance Program 

Washington, DC 
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Standards Board

Alabama California 

Nancy L. Worley 

Secretary of State 

Montgomery, AL 

Kevin Shelley 

Secretary of State 

Sacramento, CA 

Luke Cooley 

Judge of Probate, Houston County 

Dothan, AL 

Bradley J. Clark 

Alameda County Registrar of Voters 

Oakland, CA 

Alaska Colorado 

Laura A. Glaiser 

Director, Division of Elections 

State of Alaska 

Juneau, AK

Donetta Davidson 

Secretary of State 

Denver, CO 80202 

Shelly Growden 

Regional III Supervisor 

Division of Elections 

State of Alaska 

Fairbanks, AK 

Russ G. Ragsdale 

City and County of Broomfield Clerk and 

Recorder 

Broomfield, CO 

American Samoa Connecticut 

Soliai T. Fuimaono 

Chief Election Officer 

Pago Pago, AS 

Susan Bysiewicz 

Secretary of State 

Hartford, CT 

Filivaa M. Mageo 

Election Administrator 

Pago Pago, AS 

Rae Tramontano 

New Haven Registrar of Voters 

New Haven, CT 

Arizona Delaware 

Jan Brewer 

Secretary of State 

Phoenix, AZ 

Frank B. Calio 

Commissioner of Elections 

Dover, DE 

Mitch Etter 

Assistant Elections Director 

Phoenix, AZ 

Howard G. Sholl, Jr. 

Deputy Administrative Director, 

Dept. of Elections for New Castle County 

Wilmington, DE 

Arkansas District of Columbia 

Charlie Daniels 

Secretary of State 

Little Rock, AR 

Alice P. Miller 

Executive Director 

DC Board of Elections and Ethics 

Washington, DC 

 

Mary Lou Slinkard 

Benton County Clerk 

Bentonville, AR 

Jonda McFarlane 

Board Member 

Washington, DC 
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Florida Illinois 

Dawn Kimmel Roberts 

Director of the Division of Elections 

Florida Department of State 

Tallahassee, FL 

Daniel W. White 

Executive Director, 

State Board of Elections 

Springfield, IL 

Bill Cowles 

Supervisor of Elections, Orange County 

Orlando, FL 

Richard Cowen 

Chicago Board of Election Commissioners 

Chicago, IL 

Georgia Indiana 

Kathy Rogers 

Director of Election Administration 

Atlanta, GA 

Todd Rokita 

Secretary of State 

Indianapolis, IN 

Lynn Bailey 

Executive Director, 

Richmond County Board of Elections 

Augusta, GA 

Lynne Spevak 

LaPorte County Clerk 

LaPorte, IN 

Guam Iowa 

Gerald A. Taitano 

Executive Director 

Hagatna, GU

Chet Culver 

Iowa Secretary of State 

Des Moines, IA 

Vacant Renee McClellan 

Hardin County Auditor 

Eldora, IA 

Hawaii Kansas 

Scott Nago 

Section Head, Counting Center Operations 

Honolulu, HI 

Ron Thornburgh 

Kansas Secretary of State 

Topeka, KS 

Glen Takahashi 

Election Administrator 

City and County of Honolulu 

Honolulu, HI 

Donald Merriman 

Saline County Clerk 

Salina, KS 

Idaho Kentucky 

Timothy A. Hurst 

Chief Deputy, Secretary of State 

Boise, ID 

Sarah Ball Johnson 

Executive Director 

State Board of Elections 

Frankfort, KY 

Dan English 

Kootenai County Clerk 

Coeur d'Alene, ID 

Don Blevins 

Fayette County Clerk 

Lexington, KY 
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Louisiana Mississippi 

Merietta Spencer-Norton 

General Counsel, Department of State 

 Baton Rouge, LA 

Eric Clark 

Secretary of State 

Jackson, MS 

Louie Bernard 

Clerk of Court, Natchitoches Parish 

Natchitoches, LA 

Marilyn Avery 

Election Commissioner, Hinds County 

Jackson, MS 

Maine Missouri 

Julie L. Flynn 

Deputy Secretary of State 

Augusta, ME 

Terry M. Jarrett 

General Counsel, Missouri Secretary of State 

Jefferson City, MO 

Ethelyn S. Marthia 

Town Clerk Kennebunk 

Kennebunk, ME 

Mary Berry 

DeKalb County Clerk 

Maysville, MO 

Maryland Montana 

Linda H. Lamone 

Administrator of Elections 

Annapolis, MD 

Bob Brown 

Secretary of State 

Helena, MT 

Kim A. Atkins 

Voter Registration Manager, 

Harford County Board of Elections 

Bel Air, MD 

Vickie Zeier 

Missoula County Clerk and 

Recorder/Treasurer 

Missoula, MT 

Massachusetts Nebraska 

William Francis Galvin 

Secretary of the Commonwealth 

Boston, MA 

John Gale 

Secretary of State 

Lincoln, NE 

William Campbell 

City Clerk, City of Woburn 

Woburn, MA 

Robert Zoucha 

Boone County Clerk 

Albion, NE 

Michigan Nevada 

Terri Lynn Land 

Secretary of State 

Lansing, MI 

Dean Heller 

Secretary of State 

Carson City, NV 

Tonni Bartholomew 

Troy City Clerk 

Troy, MI 

Harvard L. Lomax 

Clark County Registrar of Voters 

North Las Vegas, NV 

Minnesota New Hampshire 

Mary Kiffmeyer 

Secretary of State 

St. Paul, MN

William Gardner 

Secretary of State 

Concord, NH 

Gary Poser 

Elections and License Bureau Supervisor 

Anoka, MN 

C. Donald Stritch 

Town Moderator of Auburn 

Auburn, NH 
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New Jersey Oklahoma 

Peter C. Harvey 

Attorney General 

Trenton, NJ 

Clint Parr 

Vice Chairman, Tulsa County Election Board 

Tulsa, OK 

Joanne Armbruster 

Atlantic County Superintendent of Elections 

Atlantic City, NJ 

Vacant 

New Mexico Oregon 

Rebecca Vigil-Giron 

Secretary of State 

Santa Fe, NM

John Lindback 

Director, State of Oregon Elections Division 

Salem, OR 

David Kunko 

Chaues County Clerk 

Roswell, NM 

John Kauffman 

Director, Multnomah County Elections 

Portland, OR 

New York Pennsylvania 

John Haggerty, Jr. 

Deputy Executive Director 

Task Force on Election Modernization 

Forest Hills, NY 

Pedro A. Cortés 

Secretary of the Commonwealth 

Harrisburg, PA 

Edward J. Szczesniak 

Onondaga County Comm. of Elections 

Syracuse, NY 

Regis Young 

Butler County Election Director 

Butler, PA 

North Carolina Puerto Rico 

Johnnie F. McLean 

Deputy Director 

Raleigh, NC 

Nestor J. Colón Berlingeri 

First VP, State Elections Commission 

San Juan, PR 

Kathie Chastain Cooper 

Director of Elections, Forsyth County 

Winston-Salem, NC 

Juan M. Toledo-Diaz 

Second VP, State Elections Commission 

San Juan, PR 

North Dakota Rhode Island 

I. James Silrum 

Deputy Secretary of State 

Bismarck, ND 

Jan Ruggiero 

Director of Elections 

Providence, RI 

Michael M. Montplaisir 

County Auditor 

Fargo, ND 

Marian Clarke 

Chair, Jamestown Board of Canvassers 

Jamestown, RI 

Ohio South Carolina 

J. Kenneth Blackwell 

Ohio Secretary of State 

Columbus, OH 

Marci Andino 

Executive Director, State Election Comm. 

Columbia, SC 

Michael Sciortino 

Director, Mahoning County Board of 

Elections 

Youngstown, OH 

Hoyt Campbell 

Director 

Darlington County Registration and Elections 

Darlington, SC 
UNITED STATES OF AMERICA

ELECTION ASSISTANCE COMMISSION 

U.S. Election Assistance Commission Fiscal Year 2004 Annual Report 

42

U.S. Election Assistance Commission 

Fiscal Year 2004 Annual Report Submitted January 2005

South Dakota Virgin Islands 

Kea Warne 

State Election Supervisor 

Pierre, SD 

Corinne Halyard Plaskett 

Deputy Supervisor of Elections 

Kingshill St. Croix, VI 

 Sue Roust 

 Minnehaha County Auditor 

 Sioux Falls, SD 

Natalie Thomas 

Deputy Chairperson 

Board of Elections 

St. Thomas, VI 

Tennessee Washington

Brook Thompson 

State Coordinator of Elections 

Nashville, TN 

Nick Handy 

Director of Elections, State of Washington 

Olympia, WA 

Joe Enoch 

Dyer County Election Commissioner 

Dyersburg, TN 

Bob Terwilliger 

Snohomish County Auditor 

Everett, WA

Texas West Virginia 

Geoffrey S. Connor 

Secretary of State 

Austin, TX 

Cindy Smith 

Secretary of State's Office 

Charleston, WV 

Dana DeBeauvoir 

Travis County Clerk 

Austin, TX 

Debbie Wilfong 

Clerk of the Upshur County Commission 

Buckhannon, WV

Utah Wisconsin 

Amy Naccarato 

Director of Elections 

Salt Lake City, UT 

Kevin J. Kennedy 

Executive Director, State Elections Board 

Madison, WI 

Dennis Ewing 

Tooele County Clerk 

Tooele, UT 

Sandi Wesolowski 

City of Franklin Clerk 

 Franklin, WI

Vermont Wyoming 

Deborah L. Markowitz 

Secretary of State 

Montpelier, VT 

Peggy Nighswonger 

State Elections Director 

Cheyenne, WY 

Annette L. Cappy 

Clerk, Town of Brattleboro 

Brattleboro, VT 

Julie Freese 

Fremont County Clerk 

 Lander, WY

Virginia 

Jean R. Jensen 

Secretary, State Board of Elections 

Richmond, VA 

Allen Harrison, Jr. 

Chair, Arlington County Electoral Board 

Arlington, VA 
UNITED STATES OF AMERICA

ELECTION ASSISTANCE COMMISSION 

U.S. Election Assistance Commission Fiscal Year 2004 Annual Report 

43

U.S. Election Assistance Commission 

Fiscal Year 2004 Annual Report Submitted January 2005

Appendix C: Technical Guidelines

Development Committee (TGDC) Members

Committee Chair

Dr. Hratch Semerjian 

Acting Director, National Institute of 

Standards and Technology (NIST) 

Gaithersburg, MD 

Donetta Davidson 

Colorado Secretary of State 

Standards Board (EAC) 

Denver, CO 

 

Alice Miller 

Director of Elections-District of Columbia 

Standards Board (EAC) 

Washington, DC 

 

Sharon Turner Buie 

Director of Elections-Kansas City 

Board of Advisors (EAC) 

Kansas City, MO 

 

Helen Purcell 

Maricopa County Recorder 

Board of Advisors (EAC) 

Phoenix, AZ 

Dr. James (“J.R.”) R. Harding 

Architectural and Transportation Barrier 

Compliance Board 

Tallahassee, FL 

James Elekes 

Architectural and Transportation Barrier 

Compliance Board 

North Plainfield, NJ 

 

Ann Caldas 

Director Procedures and Standards 

Administration 

American National Standards Institute (ANSI) 

New York, NY 

H. Stephen Berger 

TEM Consulting, Chair, IEEE SEC 38 (Voting 

Syst. Stds.) 

Institute of Electrical and Electronics 

Engineers (IEEE) 

Georgetown, TX 

 

Brittain Williams 

Retired professor, Kennesaw State University 

National Association of State Election 

Directors (NASED) 

Tucker, GA 

 

Paul Craft 

Florida Department of State, Voting Systems 

Division 

National Association of State Election 

Directors (NASED) 

Tallahassee, FL 

Ronald Rivest 

Professor, MIT, Department of Electrical 

Engineering and Computer Science 

Cambridge, MA 

Daniel Schutzer 

Vice President & Director of External 

Standards and Advanced Technology, 

e-Citi, CitiGroup 

Stamford, CT 

 

Patrick Gannon 

President and CEO, 

OASIS 

Billerica, MA 

Whitney Quesenbery 

President-Usability Professionals' Association 

High Bridge, NJ