Basic Issues
The act of voting, either manually or by using a voting machine or computer, is the fundamental purpose of an election. If a voter incorrectly marks (or in envelope-based systems, incorrectly envelopes) a ballot, or incorrectly casts a ballot so it is excluded from vote counts, the voter's participation in choosing a political representative is invalidated. Once the ballot is deposited in the ballot box or accepted by a machine, it is not a recoverable error. All election expenditure relating to that vote, in essence, has been wasted.
Underlying Factors
Information on how to vote correctly is of sufficient significance to justify its being a separate and a resource-intensive focus of voter information programs. The extent of its emphasis will depend on factors such as:
• proportion of votes completed incorrectly in past elections;
• the complexity of actions required to correctly mark, and/or envelope, and cast a ballot - ranging from simply depositing a token in the ballot box to having to allocate a different preference number to each of a long list of candidates on a ballot to correctly using a machine or computer for voting;
• the numbers of ballots to be completed (where simultaneous elections are being held);
• stability or change in procedural requirements for completing a ballot;
• she experience of voters in completing ballots.
There are certain conditions under which more intensive and comprehensive information campaigns on how to vote correctly will be a vital necessity. These include:
• where there has been a change to the election system. For example, a change from a first–past-the-post to a proportional representation system;
• where the franchise has been significantly extended or there are significant numbers of new voters;
• where the method of marking a ballot has changed. For example from a negative vote (deleting the candidates the voter doesn't want to vote for) to a positive vote (marking the candidate the voter wants to vote for); from an enveloped ballot system in which the voter chooses from amongst a number of possible ballot papers, to a "mark choice" system where the voter has to mark preferences on the ballot; or from optional preferential marking to full preferential marking of all candidates;
• where there has been a change from paper ballots to voting machines or computers for voting, or where machine-based systems have changed;
• where the design or format of the ballot has changed. For example in the use of symbols and names for candidates, or in order or style of appearance of candidates on the ballot.
• where new methods of voter identity eligibility have been introduced.
Audience Groups
For all elections, information on correct completion of ballots is an essential ingredient of voter information campaigns. Elections are held too infrequently to expect full retention of this information from election to election, even in the most elementary voting systems. Additionally, there will always be new voters who have reached voting age or gained voting rights through fulfillment of other qualifications such as citizenship.
Cost-effective targeting of campaigns to maximize the number of voters who complete their ballot correctly will depend on thorough research. While there is a need for maximum coverage on this issue, there may be pockets of voters requiring special attention, which will include:
• first-time voters;
• the young;
• voters from minority cultures or language groups;
• the elderly;
• newly acquired citizenship.
Many societies require special attention to be paid to information specifically targeted at women voters, particularly where they have not had a history of participation in public activity.
Research into invalid ballots from past elections will assist greatly in targeting this aspect of the voter information campaign. This research can highlight areas with higher proportions of invalid ballots where more intensive information campaigns can be of greater effect and/or the most common errors made in marking and/or casting ballots, on which information campaigns should concentrate.
Once the period for challenge to election results has elapsed, powers to examine ballots or other records for such research purposes are useful legislative or regulatory provisions for Electoral Management Bodies. Legislative requirements or administrative schedules for destruction of ballot material must also allow sufficient time for such analysis.
Significant Information Issues
Common issues that need to be addressed in informing voters about completing their ballots correctly will include:
• using a valid preference mark (permissibility of numbers, cross, tick, strikethrough of candidate's name, etc) to indicate the preferred candidate(s);
• the number of preference marks allowable or required, and if more than one, the order of sequence required;
• where voting machines or computers are used, the method of operating the machine;
• not placing any mark on the ballot that would identify the voter, i.e., signature, thumb mark, or the like;
• in enveloped ballot systems, following the French model, the correct method of choosing and enveloping ballots.
In areas of lower literacy, official information campaigns may also have to stress the symbols or images being used by different political participants or any official numbers used to identify candidates on ballots. This needs to be done equitably and very carefully, so as not to give rise to any perceptions of bias towards any political participants.
In some environments it may be possible to use a mock-up of the ballot, with political parties and candidates listed as they will appear on the ballot. However, caution needs to be exercised in using such "mock" material, so that there can be no perception of political bias in the information provided by officials.
In systems where more than one mark has to be placed on a ballot i.e.-where all or some candidates have to be numbered according to the voter's preferences or all but one candidate have to be deleted from the ballot, the added complexity of the voting system may require a series of separate ballot completion information messages. These messages could relate, for example, to:
• a requirement to use numbers rather than any other style of mark;
• a requirement to indicate a preference rank for all or a specified number of candidates.
Simultaneous Elections under Different Systems
Additional complications will arise when more than one ballot is being used for the same or simultaneous elections, especially if these have to be marked by the voter in different ways. Simultaneous elections for bicameral parliaments where an election for one house requires a voter to place a mark or number against the name of more than one party or candidate, while for the other house only a single preference mark may be made on the ballot, will present a special challenge for voter information. In such a case, information campaigns would generally deal with each ballot method in separate messages, rather than trying to combine correct completion instructions for both in one message.
Similarly, there will be a need for enhanced, specialized local information campaigns where voters in different electoral districts have different ballot marking requirements. This will occur, for example, where:
• different voting equipment is used in different electoral administration areas - an issue particularly where local electoral administrations independently determine voting procedures for elections at state, province or national level;
• different electoral districts elect different numbers of representatives under multi-member district systems.
Information Methods
Information methods vary depending on the information that is being imparted as indicated below:
• Providing a separate distinctive public message on correct ballot marking and/or casting will clarify the issue in the minds of voters. This is information that is better represented visually, and pictorially (rather than by long textual explanations), through print media, posters, television or simulations. Audio information is better used as reinforcement or to assist those not accessible by visual media, through language, distance, affordability or literacy differences.
• In areas where voting participation is a new phenomenon, or of lower literacy, or of poor media penetration, simulations of voting or mock elections are an important component of voter education campaigns. Such simulations can also be used to good effect close to voting day for voter information purposes, guiding voters through the act of marking and/or casting a ballot.
• Materials used in information campaigns on this issue are most effective when based on the actual ballot appearance i.e., color, layout, and shape,-and by showing a correctly marked and/or cast ballot. In preparing materials in this way, great care must be taken so that if imaginary candidates or party groups are depicted on these simulated ballots, they could in no way be associated with any political participant in the election. This applies to names, symbols, pictures, abbreviations used and needs to take into account public perceptions of political participant nicknames and images. In addition, complete, rather than partial, representations of ballots should be shown. It is important that no perceptions of apparent bias can be drawn from this information material.
To maximize the impact of this information, use of mass media is better concentrated in the week before voting day.
Where comprehensive voter information guides are produced for general distribution, ballot marking and/or casting instructions should form a prominent section of the guide.
Voting Day Assistance
On voting day, provision of posters in the voting station showing how to mark and/or cast a ballot correctly will provide a reminder to voters at the time of voting. Placement of posters in each voting compartment, either facing the voter, or as a placemat on the writing surface used, or as an integral part of voting machine booths (where used), will maximize effectiveness.
If cardboard voting booths are used, this information could be printed directly onto the booth itself.
Most importantly, where paper or card ballots are used, each ballot itself should contain succinct, clear instructions to the voter on the correct way in which to mark a ballot. For example: "Place a cross (X) in the box next to the candidate of your choice."
Information from Voting Operations Officials
Voting operations officials can also actively promote valid completion of ballots. For instance, where any slogan has been used to promote correct ballot marking information, this could be used as reinforcement by voting officials involved in controlling voter queues.
Officials should also be ready to explain correct ballot marking following any voter requests for information. Officials should be careful not to actually assist voters to complete ballots unless allowable under rules governing such voter assistance.
Use of Computers
Where voters have to use computer terminals to vote, whether by touch-screen or keyboard methods, intensive assistance will be required in the voting station to ensure that voters know how to use the machines correctly. In general, each voter should be allowed a trial run on a simulation computer (with imaginary candidates) under the guidance of a well-trained polling official, who should be satisfied that the voter is capable of using the computer to cast an actual vote.
Special Voting Facilities
Special voting facilitities - Voters using special voting facilities such as absentee or mail ballots will need particular instructions on how to complete both their ballots, and any forms or envelopes that accompany their ballots to establish their eligibility to vote. While these instructions may be available in separate formats, or promoted in specifically targeted voter information campaigns, they must also be on or with the ballot materials that have to be completed.
Enveloping system - If an enveloping system is used, instructions on how to correctly insert ballots into envelopes will also be required and, for mail voters, instructions on return post, including a clear statement of the deadline for the receipt of returned mail ballots.
Since such voters are likely to be unable to make contact easily with the Election Management Body for further clarifications, it is extremely important that these instructions are comprehensive and clearly understood.
