Materials and Equipment

Planning, design, acquisition, and distribution of election materials and equipment for staffing and selection of voting sites is one of the major focuses of the electoral management body in ensuring that all is in readiness for voting day.

In developing supply programmes overall considerations must be that materials and equipment:

• are acquired in accordance with a planned acquisition program (it is essential that there is thorough and early planning of all materials and equipment needs);

• are appropriate for the environment;

• fulfil the legal obligations of the election framework;

• provide adequate security and transparency for all election processes;

• are acquired cost-effectively;

• are easy to use, and, particularly where used by voters, the emphasis is on simplicity in format;

• are monitored comprehensively and regularly to allow continuous assessment of election readiness and early implementation of contingency plans to address deficiencies.

It is extremely important to manage materials and equipment effectively in order to conduct an election that maintains public confidence in the integrity of voting processes and provides a quality service to voters. Failure to supply or late supply of essential materials for use by voters, or poor security in handling of voting materials, can have serious effects on both public perceptions and the actuality of election integrity and can lead to the rejection of election results.

It is prudent that accountability for equipment and materials supply tasks clearly reside with a senior administrator. It is also vital that supply managers are integrated into voting operations policy and management decision-making forums to ensure that procedures developed and adopted are supported by supplies with appropriate functionality, reliability and delivery times.

Importance of Reliable Data

Materials, equipment, and logistics planning cannot proceed effectively without provision of accurate data from other functional areas of electoral management. Early advice of voter registration figures, locations of voting stations, and any changes to voting operations procedures is essential if cost-effective, reliable, and sufficient supplies are to be made available to all voting stations. Important considerations include:

• changes to legislation and voting procedures as they affect the types, timing, and quantities of supplies required. Given the long lead times required for acquisition of some supplies (and subsequent effects on voter education and staff training), it is prudent if a moratorium on legislative or procedural changes affecting voting operations can be instituted for the three months before voting day.

• voter registration figures at national, electoral district, and voting station level, are the essential element in estimating the quantities of each type of material and equipment that will be required. Without early registration data, ensuring sufficient supplies for all voting stations is difficult

• effective logistics planning depends on knowledge of where voting stations are to be located. Late determination of voting station locations will affect not only the calculation of the overall quantities of supplies required, but can result in substantially more expensive forms of transport being required.

The short notice of elections, often given in systems where elections are not for fixed terms, heightens the need for continuous accurate data and a high state of readiness for materials and equipment planning.

Control Measures

Controls on the acquisition, distribution, use, and return of election materials and equipment are necessary to ensure:

• financial probity and the ability to prevent loss of assets;

• readiness assurance, so that election managers are aware at all times of the location, quantity and status of all equipment and materials and can take contingency actions to redress deficiencies.

Essential elements of these controls for materials and equipment controls include:

• clear specifications for all materials and equipment to be acquired;

• approval and maintenance testing programmes;

• a systematic numbering system for all materials and equipment to aid standard identification;

• systems for authorisations of expenditure on materials and equipment;

• simple systems for recording, collating, and examining despatch and receipt data for items at each stage of supply, from manufacture right through to post-voting day return to storage or for destruction;

• systems for restricting access to or allocation of supplies to authorised persons;

• accurate maintenance of asset registers showing quantities, locations, accountabilities for, and condition of voting operations materials and equipment;

• systems for authorising materials and equipment destruction or disposal.

All those involved in supply acquisition and distribution must receive clear instructions on maintaining the audit trial for suppliers, that is suppliers, transport and warehouse workers, polling officials, and electoral management body staff,.

It is important that copies of supply and distribution management summary records are available to managers at the local, regional, and central level so that they are aware of the readiness profiles and to enable effective monitoring of materials supply and distribution.

Lack of controls and proper audit trails on materials and equipment can cause grave problems for electoral management bodies. Acquisition in haste leads to lack of controls or inadequate controls being implemented often where elections are implemented in a very brief time frame, For example without knowing whether supply orders have yet been filled, supplies that have arrived at their destinations, or the quality and condition of supplies makes it difficult to ensure effective voting operations.

Lack of controls and accountability for distribution and control of supplies can affect election integrity if accountable materials are missing, and can cause serious financial loss. Many equipment items used in voting operations such as mobile phones, computer equipment, and vehicles are highly portable and susceptible to theft or loss.

Control of Supply Sources

Controls on sourcing of materials and equipment are also required to provide financial probity, cost-effective acquisitions, and reliability. Necessary controls include:

• transparent competitive bidding procedures to ensure cost-effective purchasing;

• careful consideration of the potential disadvantages of sourcing internationally in terms of sustainability, reliability, length of supply of lines, and cost-effectiveness;

• sourcing only from suppliers willing to enter into performance bonds or guarantees;

• sourcing from suppliers with accredited quality control systems.

Supply Requirements

Voting operations supply requirements entail a complex array of materials and equipment. (For discussion of requirements for major items, see Production of Ballots, Voting Day Equipment and Voting Materials.) Estimation of quantities of materials and equipment required must allow for all usage, not only what is needed for direct voting day operations.

In particular, consider in-house use by the electoral management body for staff training and other activities, and material and equipment required for public information and education activities. Contingency reserves and wastage must be calculated (for most supplies, generally in the range of 5 to 10 percent).

Use of Standard Reference Material

Development of standard reference material for voting operations is required to serve a number functions, including:

• translation of the legal and regulatory frameworks for voting operations into easily understandable terms;

• compendium of standard procedures and good practices for voting operations activities;

• assured and accurate basis from which voting operations staff can provide services to voters;

• basis for training voting operations staff;

• monitoring base against which the extent, timing, and quality of implementation of required tasks can be checked;

• repository of corporate knowledge about voting operations;

• transparent record of the ways in which the electoral management body provides voting services to the public.

Accurate and well-presented reference material provided to all staff and targeted to their specific duties will result in better voter service. Voting staff can be confident that they have correct guidelines for all activities if they have been provided with quality material.

In turn voters can be confident that they are being treated in an equitable fashion according to standard procedures and practices.

Reference material provided by the electoral management body to other participants in the elections, for example, parties or candidates and their representatives, independent observers, security forces, and the media, will assist in ensuring that all participants are fully aware of their roles, rights, and responsibilities in election processes.

Manuals

Formal manuals containing basic reference material are preferable to (see Manuals) ad hoc instructions. Informal ad hoc instructions are more likely to be mislaid and may lack comprehensiveness. During the election period it is advisable that election managers maintain regular formal communication with voting operations staff to monitor:

• overall activity progress;

• any changes to previously arranged procedures or practices (particularly where local variations may arise);

• present and imminent timetabled activities.

Communication in the form of a regular information bulletin during the voting operations period is a useful adjunct to existing reference material.

Checklists

Manuals may also be supplemented (or for less complex tasks, replaced) by task checklists (see Checklists and Cue Cards). Simplifying procedures and tasks to a checklist format enhances ease of understanding and provides a self-monitoring record of task completion. Messages in manuals showing demonstrations of the tasks described in the manuals can be reinforced by use of other visual reference material such as video, posters, or slides.

Development of Manuals

When developing manuals for voting operations, consideration needs to be given to the following basic issues:

Flexibility of format: The expected life and target audience of the manual needs to be carefully considered. If amendments may occur during the life of the manual, for example, a loose-leaf format is preferable and easily included in the existing manual. Breaking subject matter organisation within a manual or series of manuals into sections appropriate to particular staff or discrete tasks is effective.

Verification of accuracy of framework descriptions, and comprehensiveness, appropriateness, and practicality of procedures and practices described. Expert reviews of materials included in the manual are necessary. As manuals are for the use of field operations staff they are best placed to know if the format and instructions are readily understandable and that procedures and practices espoused are practicable and appropriate for the range of field conditions that may experience.

It is good practice to include a range of field operations staff, including local area administrators and assistants, voting station managers and staff, counting staff and client representatives in the development of voting operations manuals. If this is not possible, it is recommended that there should be a review of each manual's contents by such staff and clients prior to formal introduction.

Use of simple language, as well as pictorial representations or diagrams and appropriate examples wherever possible.

Timing of compilation and distribution so as to give staff sufficient time to become familiar with the contents before they have to apply them.

Version control mechanisms to ensure that amendments to manual contents are prepared, and received and understood by all relevant staff.

Manuals

There are some overall design and content issues to be addressed when designing manuals for voting operation purposes. As some manuals may have cost implications, manual designers need to be aware of how to provide maximum user friendliness at minimum cost.

Electoral management bodies utilize different kinds of manuals depending on the function and target audience. This section looks at the different manuals firstly in terms of the generic content and then in specific detail. Generic factors that need to be considered are:

Flexibility of format: For example the production of manuals wherever possible in a loose-leaf format to enable incorporation of any changes or additions of training material.

The nature and capabilities of the target audience: Language style and density of content needs to be suitable for the type of staff who will be using the manual. The use of simple, non-legal language, the breaking of complex actions down into simple, discrete steps, and visual rather than textual representations wherever possible enhances understanding.

Production and distribution costs: Questions such as: Is full color section differentiation really necessary to facilitate ease of reference, or will use of bold typefaces and clear indexes suffice? What durability and weight of covers or binders is really needed for the expected life of the manual? Need to be asked when designing a user friendly manual

Types and extent of information required: When considering this aspect consider whether all staff need a full, detailed explanation of their tasks in a manual format, or are check lists of their duties both easier to understand and less costly to produce for staff with simple functions? Another consideration is whether a single large manual should be produced, or are there sufficiently different staff functions and roles to make production of separate manuals of smaller size for staff undertaking different duties preferable?

Print Quantities - Determination of print quantities for manuals will depend on economy and ensuring that all relevant staff have access to the reference materials required to complete their tasks effectively.

Large quantity runs - the large quantities of manuals required for voting officials means that they are generally better handled by printing contractors rather than in-house by the electoral management body.

Short-run manuals – can be done in-house where such infrastructure is available. This includes manual for electoral management body staff responsible for voting operations administration, production of master copies in-house and bulk production by photocopy specialists may be an option, No matter how strict the guidelines, there will always be voting staff who lose or forget their manuals. The basic quantities of voting official manuals required will be determined by estimated staffing. It is important to include voting operations administration offices that will also require copies of the manuals used in voting locations.

Past experience, if available and relevant, is the best guide for excess quantities required. It is recommended to print at least an additional 10 percent for use as spares at training sessions and at voting locations. Additional copies could also be printed to meet any requests for copies from political parties, candidates, and the general public where this is offered. Voting operations manuals should preferably be available on request by the public as part of the promotion of transparency in voting operations administration.

Types of Manuals

Electoral management bodies normally produce:

• Administration manuals - for the overall administration of voting operations
• Voting Station Officials manuals - for voting and counting officials
• Trainers manuals for trainers involved in voting staff training

Electoral management bodies may also produce:

• • Party candidate handbooks - it is also highly useful for the electoral management body to produce a handbook for the use of political participants in the election, outlining the legal and procedural frameworks and party and candidate rights and responsibilities within these.
• • Security force manuals - security forces involved in election activities also need a guide for their role in the democratic process which can be included in their operational instructions for election-related tasks.
• Observers Manuals – observer groups require a manual as this assists in ensuring quality and consistency in observation activities. The development of observer manuals is sometimes undertaken by the sponsoring organization. However the electoral management body is best placed to provide information relevant to the conduct of the election and the legal framework within which an election takes place.

Administration Manuals

Administrative manuals are important to ensure equity in treatment of all voters and to ensure that election laws and regulations are consistently and correctly interpreted by administrative staff.  Having voting operations administrations manuals available as public documents promotes transparency in voting operations management.

The range and content of such manuals depends on the structure of the electoral management body such as whether they maintain a permanent local or regional presence or hire temporary local or regional managers, premises, and equipment for election purposes, whether they have national control of voting operations, or whether voting operations are undertaken by other local agencies

Codification of Procedures - Codify overall procedures and practices for administration of voting operations for use as reference material and as a basis for developing technical training for those staff of the electoral management body responsible for voting operations administration.

Staff Responsibilities - clearly define the responsibilities of staff. Where administration is organized along lines of functional division, or there are central, regional, and/or local administrative offices maintained for the voting operations period, clarity of responsibilities can be promoted by producing a distinctive task/procedural manual for each organizational division or level. Subject matter should include:

• the range of tasks to be undertaken;

• their legal basis;

• relevant procedures;

• organisational methods and good practice models;

• examples of relevant standard forms;

• examples of common problems and solutions.

Subject Matter– there is a need to ensure that the subject matter covers relevant and pertinent information such as:

• codes of conduct;

• voting operations planning cycles, formats, responsibilities and inputs, implementation progress monitoring, reviews;

• review and determination of resource needs, e.g., voting sites and suitable locations, staffing and training, finance, materials supply and management, security, communications, logistics, special voting facilities (absentee voting, early voting and the like), voter information;

• budget inputs, preparation, and review;

• staff recruitment, training, payment, and performance monitoring for administrative assistance, voting stations, and the count;

• voting site selection and reservation;

• management oversight of voting station operations;

• materials management, e.g., requisitioning of materials and equipment, production and quality control, storage, distribution and return for administrative offices and voting and counting sites, materials security, post-election archiving;

• security arrangements;

• fraud and corruption control and electoral offences;

• nomination of candidates and registration of parties;

• determination of party and candidate order on ballots (where "mark choice" ballots are used);

• voter information procedures and campaigns;

• liaison with political participants, other agencies, community groups, and observers;

• rights of voters and political participants;

• management of any special voting facilities, e.g., additional specific arrangements for staffing, logistics, materials distribution and return, monitoring, different voting procedures;

• ballot counting procedures and management oversight of counts;

• verification of counts and recounts;

• determination and announcement of results;

• handling of complaints and challenges to administrative decisions;

• evaluating performance.

Voting Station Officials Manuals

Where staffs are categorised and assigned duties at different skill or responsibility levels within a voting station, separate manuals for these categories of staff may be justified, both to minimise the risk of confusion and to allow more detailed guidance for those staff in positions requiring superior literacy or skills.

Keeping the style of the manual and the checklist formats within them simple(see Checklists and Cue Cards), the more likely voting station officials are to refer to them to assist in swift and correct decision-making under the pressure of voting day.

Information Focus - Voting station officials’ manuals need to cover four basic areas of instructions:

• technical data on voting procedures;

• materials and personal security issues;

• maintenance of voter service and rights;

• staff rights, responsibilities, administration, and welfare issues.

Subject Matter - Specific issues voting station officials’ manuals include are:

• the voting station official's role, decisions within their responsibility, and when advice should be sought from more senior staff;

• payment, welfare, meal, accommodation, transport, insurance, and other entitlements;

• responsibilities under the election staff code of conduct

• responsibilities regarding training attendance and activity completion;

• pre-opening of voting station duties;

• materials to be issued to and maintained by staff;

• maintaining the security of voting materials while in and not in use;

• instructions for use of any equipment to be used by voting station officials;

• maintenance of voting station layout, cleanliness, and materials;

• information regarding handling of ballots (and any ballot envelopes used) and their relevant ballot box, and descriptions and instructions for use of electronic or other voting machines;

• voting station entrance and exit controls;

• persons authorised to be in voting stations;

• maintaining voter flow and controlling voter queues;

• providing information and assistance to voters;

• establishing identity of voters and required checks to prevent impersonation and multiple voting;

• use and correct marking of voters lists;

• treatment of persons not found to be on the voters lists;

• issue of ballots and control of computers or other voting machines;

• procedures for maintaining secrecy of voting within the voting station;

• treatment of spoilt, rejected, discarded, or cancelled ballots (or ballot envelopes, where these are accountable items);

• securing of ballot boxes;

• rights of voters within the voting station;

• rights and responsibilities of party and candidate representatives and independent observers in the voting station;

• common problems encountered in voting stations and standard responses;

• procedures for close of voting;

• procedures for reconciliation, packaging of materials, and their despatch or preparation for the count, following the close of voting;

• role of security forces;

• emergency, accident and adjourned voting procedures, and personal security measures.

Voting Station Managers: It may be prudent to provide managers of voting stations with a separate manual, since their responsibilities will also encompass additional or higher-level functions, for which additional guidance may be required. Additional duties to be covered in such manuals would often include:

• the management, training, and welfare of staff;

• establishment and maintenance of voting station layouts;

• management of complaints and challenges;

• overall materials security and accountability within the voting station;

• completion of voting records and voting station reports;

• liaison with voting operations administrators and other agencies;

• roles in staff and voting site selection.

Note: Where counting takes place at specific counting centers, rather than at voting stations, and is done by different staff, separate manuals for the count will be required. If counting takes place at voting stations, counting procedures may be better included with voting procedures in the one manual.

Officials for Special Voting Facilities Officials staffing special voting facilities will have some quite specific duties according to the nature of the special type of voting. Where there are considerable differences in their procedures and duties compared to officials in a normal voting station, to enhance clarity of instruction, it is preferable to produce separate manuals.

Mobile Voting Stations Officials on mobile voting stations particularly if operating for more than one day, will have specific additional functions in relation to logistics, materials security and reconciliations, and often voting procedures involving early or absentee voting

Voting Abroad - Where voting is conducted at voting stations in foreign countries , officials will have specific and different duties in regard to materials supply and return, and administration of mail voting or absentee voting.

Early Voting - Staff conducting early voting may  whether by mail or in person, may also be subject to different voting procedures.

Local Referenda: In some circumstances, referenda held concurrently with elections may be restricted in voter eligibility to particular local areas or community groups.

In such cases, rather than include instructions for such a referenda within all voting station officials manuals, it may be more effective to produce a specific manual for use only in the voting stations affected.

Trainers Manuals

Trainers of voting station staff need a different manual to voting station officials and administrative as these manuals address the construction of the training session and the manner in which information is delivered, They are essential where a cascade system of training is being implemented by those with little formal adult training experience.

Training Workbooks - specific works for completion by voting station officials during their trainer ensure that their competence can be monitored and are necessary as part of training reference and knowledge assessment materials. They have limited use in societies of lower literacy, or where cost considerations prevent their use.

In such cases the use of role playing and simulations, directed by experienced trainers, can be effective as a knowledge assessment process. (Refer to Information Direct to Voters for the use of suitable training aids)

Party/Candidate Manuals

Party Candidate Handbooks are useful for detailing the processes that will be applied by voting operations staff and the actions, responsibilities, and rights of political participants during this phase of the election. Providing political parties/candidates with this information minimizes the potential for conflict or tension at the voting station.

It is good practice to have these handbooks available to political participants well before the commencement of the period for nominating candidates or party groups for election.

(Similar handbooks on other issues affecting political parties and candidates, such as party registration and the framework for party funding and expenditure, are also useful.)

Content of Handbooks

• contact details for officials who can provide further clarification or assistance;

• participation of parties and candidates in the voting operations process;

• correct presentation of party and candidate nominations;

• checking processes for nominations and criteria for acceptance or rejection;

• determination of candidate or party order on ballots (where "mark choice" ballots are used);

• codes of conduct for political participants and election officials;

• media access rules;

• campaign rules;

• election security measures;

• provision and accessibility of election materials, including any rights of political participants to distribute these to voters;

• voting station sitting and layout;

• eligibility of voters;

• voting procedures, including those for any special voting facilities such as absentee voting, mail voting, mobile voting stations, voting abroad;

• roles, responsibilities, and authority of voting operations administrators and voting station officials;

• roles, rights, and responsibilities of party officials, candidates, and their representatives in relation to voting procedures, voting locations, and voting operations administration;

• procedures for the counting process, including criteria for determining validity of ballots and interpreting marks made by voters on ballots, aggregation of counts, and announcement of results;

• roles, rights, and responsibilities of party officials, candidates, and their observers in relation to counts, result determination, and announcement;

• rights, methods, and procedures with regard to challenging decisions made by voting operations administrators, voting station officials, and counting staff.

Observer Manuals

Audience - Observer groups comprise people from different backgrounds, with varying levels of technical knowledge about elections and different professional or other skills. As many observers will be operating in unfamiliar environments, their manuals should be a complete guide to the election framework and procedures, their monitoring role and responsibilities, observation administration, and observer survival. These subjects are the necessary basis for observer training

Subject Matter:

• purpose, scope, and objectives of the observation program;

• the principles of neutral, independent observation;

• the political and cultural background and legal and administrative frameworks for the election, including relevant extracts from electoral legislation and rules, examples, and potential problems or issues of interest which may need special attention;

• list of voting operations administration, political party, community organisation, media (where appropriate), and legal contacts at the appropriate levels;

• identification of required observer activities, including issues to be monitored, methods of monitoring, and action to be taken if irregularities are discovered;

• observer code of conduct, explanation of its meaning, and enforcement provisions;

• statement of rights of observers;

• accreditation requirements;

• examples of election materials;

• use of observer communications systems and reporting requirements;

• copies of monitoring checklists to be completed by observers and instructions on how to complete them;

• personal and group security information, including, where necessary, emergency evacuation plans and mine information;

• administration arrangements for observers, e.g., deployment details, administrative contacts, accommodation information, transport information, logistics, emergency services contacts, training requirements and details, regular and emergency payment arrangements.

Security Force Manuals

Electoral Management Body Contribution - Security forces produce their own threat analyses, operational security guides and manuals, and deployment strategies as a framework for their election action plans.

Electoral management bodies contribute by developing and assisting security forces in developing, a manual detailing security forces' overall responsibilities in assisting to ensure free and fair election processes. These manuals should be distributed to all security force personnel engaged in election security activity.

Subject Matter:

• human rights issues in relation to security forces' role in the election;

• security objectives and strategy in relation to the election;

• the standards of professional, impartial, neutral, and non-intimidating conduct to be upheld by security forces during the election period;

• contact mechanisms and liaison details between the electoral management body and security forces;

• an overview of election processes and methods, and security forces' roles in protecting these;

• details of offences against electoral laws.

The format and content of such manuals will clearly need to be pitched at the literacy levels of security forces.

Particular care in providing strict guidelines regarding the security forces' role in the election process may be needed in transitional environments or where security forces have recently incorporated previously irregular units into their ranks.

Checklists and Cue Cards

Checklists are effective as control and reference information providing simple standard formats that are prompts to action, monitoring tools, and more easily referenced than relying solely on accessing descriptive data in bulky manuals.

Checklists are particularly useful in encouraging consistent monitoring of task completion. Checklists are a supplement to, not a total replacement for, procedures manuals.

The design and method of production depends on the subject matter and target audience. Checklists for central administrative actions such as materials supply, may only be used by one or two staff, and can be hand drawn or in the form of simple computer generated control sheets.

Checklists that are used to standardize the action of larger numbers of staff, such as electoral district managers, materials packaging staff, voting station managers, and voting station staff, may better be produced as appendices or integrated sections of their procedural instructions or manuals.

Checklists can be especially useful for a range of tasks some of which include:

Nominations

Processing nominations can be a complex process, particularly where qualification checking involves obtaining data from other authorities.

Processing checklists will aid in accurately tracking the stage of processing for each nomination, and provide a standard format of data from which to accept or reject the nomination.

Voting Site Assessments

Checklists support consistent assessments of potential voting station locations to determine if they meet the standards required.

Materials Management

Maintaining checklists to monitor the design status, ordering, quality control, supply, and distribution of election materials is a necessary management control tool in a complex supply environment.

Constructing inventory, dispatch, and reconciliation records in simple checklist format will aid in correct completion.

Supervisors of Voting Stations

Active performance monitoring of voting stations during voting hours provides voting operations administrators with information on voting progress, operational problems, warning of any possible challenges, and data useful in voting site and staff selection for future elections.

If supervisors on visits to voting stations complete performance checklists, this information can be retained in a standardized format.

Voting Station Staff

Checklists are an immediate reminder to voting station staff of their specific duties and a useful tool for voting station managers in monitoring staff performance and ensuring that required actions have been taken. Simple checklists that can effectively be used for tasks including:

• checks of material, equipment, and staff prior to opening the voting station;

• required actions in issuing ballots to voters effectively designed as place mats for the desks of voting station staff, or where signage identifying ballot issuing areas is attached to the tables being used, printed on the reverse side of these signs;

• close of voting procedures;

• packaging and reconciliation of materials following close of voting.

Manuals for voting station officials may be more functional if designed as a series of checklists. 

Ballot Counts

Ballot count checklists are useful reminders of counting procedures and validity criteria that apply to ballots for staff. . Specific tasks that lend themselves to simple detailing in checklist format include:

• steps for opening ballot boxes and reconciling ballots;

• steps for checking admissibility of enveloped ballots, including absentee or mail votes;

• criteria for determining validity of ballots;

• packaging of materials following completion of the ballot count.

Ballot Paper Design

Electoral management bodies need to take into account a range of issues when designing the ballot paper. A general principle underpinning any design is that the simpler the ballot paper the more effective. Ballot paper design has an impact on two important aspects of the election process:

1. The ability of voters to understand the choices of candidates or parties running in the election and select their choice in a valid manner. Elements on the ballot paper such as party symbols, candidate photographs, a short description of the party's and/or candidate's goals, and clear instruction on the ballot paper as to the method of casting a valid vote will support this.
2. The accuracy of counting of votes. Poorly designed ballot papers, with, for example, small and closely aligned preference squares, can lead to voters' marks overlapping more than one square, with consequent dispute at the count over whether the voter is valid, and, if valid, which party or candidate the voter selected.  Two other factors that impact on the design of the ballot paper are:

a; The cost of the design is a factor that needs to be considered.

b; The flexibility of design – this is constrained by limitations of the election system and the definition of ballot layouts in legislation.

It will be difficult to design a simple ballot paper, for instance, where the system allows large numbers of candidates and their parties to appear on the ballot, and the voter must choose to either make a single preference mark for the party of choice or number sequential preferences for each of the individual candidates.

Within these constraints election administrators can influence the ballot paper design by:

• the clarity of layout,

• the use of clear typefaces,

• having clear instructions on the ballot paper,

• the size of the font,

• the spacing between candidates/parties names, the quality of the print

• by advising on legislative changes that will simplify ballot completion.

• the space for the box in which the voter places his/her mark

• inclusion of party symbols

• inclusion of candidate/ party leader photographs

• color coding for different ballots

Essential Information

There is some essential information that printed ballot papers should contain.

• the date of the election

• the elected body for which the election is being conducted

• the electoral district for which the ballot is to be issued

Basic Types

The two basic types of ballot require voters to cast their ballots in two distinctly different ways:

• voters faced with a selection of different ballot papers, each representing a different party or candidate. Voters have to choose which ballot they prefer, usually sealing their choice of ballot in a ballot envelope before placing it in the ballot box.

• voters issued with a single ballot containing all the parties or candidates in the election. Voters have to indicate on the ballot paper which of these is preferred before placing the ballot in the ballot box.

Where separate ballot papers are provided for each candidate or party, and voters have to choose and envelope the one appropriate to their choice, ballot paper design considerations are relatively simple and should:

• clearly identify the party or candidate it represents, usually through use of a distinctive colour, or use of party name or symbol, or candidate name, symbol or photograph;

• give clear instructions for correctly selecting the preferred ballot and enveloping or otherwise depositing it in a ballot box.

Components of "Mark Choice" Ballot Paper Design

While there are common factors in "mark choice" ballot paper design, the manner in which they are implemented provides a wide array of different styles and possible permutations. The following examples are by no means an exhaustive review but give an indication of the range of possibilities in current ballot paper designs.

Methods of marking preferred choice:

• writing a number or mark in a box beside a candidate or party;

• writing a number or mark in a ruled off section containing the candidate or party

• circling the number next to a party or candidate

• crossing out all candidates or parties except the preferred one

• drawing a connecting line between two arrows next to a candidate or party

• filling in a small oval or circle next to a candidate or party

• striking through the name of the preferred candidate or party

• writing on a blank ballot a candidate or party number

• writing on a blank ballot the name of a candidate or party

• numbering sequentially all candidates on the ballot

• numbering sequentially a specified number or proportion of the number of candidates on the ballot

• recording a vote for "none of the above"

• setting a punch card machine to punch a hole in the ballot next to the candidate/party

• placing an official stamp on the name of the party

• having the option of placing a mark next to a party, or numbering all candidates sequentially

• keying the number or symbol of a candidate or party on a computer keyboard

• touching a computer screen on the symbol or name of a candidate or party

• pulling levers on a voting machine corresponding to parties or candidates

Party or candidate information:

• code number for party or candidate with no further information

• candidate name or party name

• Party list name and list candidates' names

• candidate name and party name or abbreviation

• party or candidate name, and party symbol

• candidate name and photograph, party name

• party name, party symbol, party abbreviation, party leader photograph

Voter instructions:

• none

• instruction on how to complete ballot

Size and color of ballot:

• one third A4 sheet

• around one metre wide

• consistent size for all electoral districts

• different size according to number of candidates

• colour coded for elections to different representative bodies

• colour coded for different methods of voting (normal, absentee, early, tendered/provisional)

Order of candidates and parties:

• alphabetical

• random draw for position

• rotating, so all candidates appear at the head on an equal number of ballots.

Simultaneous elections

• on the same ballot paper

• each election on a different ballot paper

Clear Specifications

Whatever the format of the ballot paper, clear specifications, approved by the electoral management body, will aid consistency and quality control of printing. These would cover issues such as:

• overall size restrictions

• information to be provided and its positioning

• fonts and point sizes used

• borders and other graphics

• minimum space between candidates or parties

• size of boxes in which voter's mark is to be placed (if used).

Making Voting Easier

The ballot paper form and content needs to be easily understandable. Simplicity aids speed of voter flow, and assists all voters - not only those less literate - to vote with confidence that they have not made a mistake. The following issues can assist voters and aid administrative effectiveness.

Clear instruction for voters on the ballot Paper: For most ballot papers these need only be variations on wording such as: "Write your mark next to the party of your choice." An illustration at the top of the ballot paper may assist in less literate societies.

Reviewing restrictive provisions that specify a single particular type of preference mark to the exclusion of all others such as a number, or "X", or "tick", or circled number, and disallow ballot papers marked in any other fashion, even when the voter's preference is clear.

Ensure that the size of the box or space in which preference marks have to be placed is large enough, especially for the elderly and physically challenged writers, to place their preference, especially where more than one preference has to be numbered. Similarly, the distance between spaces or boxes in which preferences have to be marked should be sufficient to prevent confusion.

Negative vote systems (crossing out all the candidates the voter doesn't want) can be more conducive to error, and take more time to mark a ballot paper than simple single positive preference systems. However, given the history of using negative vote systems in some countries, change can lead to confusion.

Information on candidates and parties assists voters in making their choice. At the very least, the party or candidate name, and for candidates the party affiliation, should appear.

In all environments, inclusion of the party symbols on the ballot paper will help voters. In less literate societies, especially where party affiliations are more fluid, candidate or party leader photographs are useful.

For simultaneous elections, color coding of ballot papers and ballot box signs for each separate election can reduce or minimize confusion.

Review fonts and point sizes used for clarity.

Where ballots for different electoral districts are different sizes, examine the possibilities of standardizing size.

Very large ballots, particularly those that have to be folded to fit into voting compartments, can take longer for the voter to understand the range of choices.

Examples of Ballot Papers can be found in ACE Electoral Materials Section.

Printing of Ballots

In systems where ballots are liable items, strict security and controls must surround ballot paper printing. If ballot authenticity is provided by the use of special papers, paper stocks must also be strictly controlled. As ballot paper printing is a high volume, short turnaround time process that demands total print accuracy, is necessary for the electoral management body to have total confidence in the capacity, quality control procedures, integrity, and security of ballot paper printing contractors. The electoral management body should be also instituting its own strict quality control mechanisms.

Where enveloped ballot voting procedures are used, such as in those following the French system, ballots are freely available to voters. While accuracy of ballot content is still an important issue, there is no need for the same levels of integrity and security controls as where "mark choice" ballot papers are used.

Printing Location

Before determining the design of the ballot papers, there is a need for the electoral management body to consider the time ballot papers take to print and whether potential contractors are capable of meeting the print specifications.

Ballot papers with special features may be restricted in potential production facilities, or not be able to be produced locally, either through lack of technology required or lack of capacity to complete the task within the available time frame. For example:

• using watermarked or other special papers;

• security print methods;

• producing in a booklet with numbered stubs;

• using full colour print and/or colour photographs of candidates.

Production of ballot papers using these more expensive methods can add significantly to election costs.

Additionally, foreign production can make it more difficult to control quality and supply scheduling for the most important item of election material and lead times may be longer, unless very expensive transport methods are adopted. Decisions to print in another country should only be made after very careful consideration of locally produced alternatives.

If there is not sufficient local expertise to print ballot papers contracting ballot paper printing at the regional level can be more appropriate, if suitable contractors are available due to the high volumes and short time period usually available. Contracting to multiple contractors at local levels is generally not sustainable as quality control and standardization of product can too easily be compromised.

Print Scheduling

Print scheduling also depends on how soon various ballots are required for use by voters. If full detail ballots are required for early voting, or sending to voting stations in other countries, there may be some urgency to produce small initial quantities of ballot papers for all electoral districts.

Conversely, where blank votes (which can be produced earlier) are used for early or absentee voting, central or regional production facilities usually start printing with the electoral districts at the furthest distance and with the longest transport lead time, to enable packaging of ballots, with their voting stations' other supplies, to begin first.

Print Quality Control

Before printing ballot papers there is a need to apply intensive quality control measures by both the electoral management body and the print contractor to ensure that ballot papers are correctly printed. Transference of ballot format and content data electronically from the electoral management body to the print contractor can assist in ensuring accurate printing. All ballot printing needs to be undertaken in line with strict control instructions, covering authorizations to print and transfer material, quantities, content, security, and distribution.

For each ballot paper printed (for different electoral districts, different types of voting, or different elections), the quality control measures that need to be implemented would include the following initial checks.

• provision of detailed design specifications to the contractor, and ensuring that these have been fully understood. Mock-up proofs obtained from the contractor and thoroughly checked;

• detailed checking of ballot content material before it is sent to the contractor for print set-up. Checking party/candidate order against the order announced following the close of nominations. Checking the correctness of all party/candidate details required on the ballot against the information provided on accepted nominations forms;

• checking and signing off all contractor-produced film and plate reproduction material, by electoral management ody staff, before production proofs are printed.

During print production, the following checks need to be implemented:

• an experienced electoral management body staff member should be present during the make-ready process for the press and check the format, information, colour, image position, and trim of the ballot. Production printing should only commence when proofs have been approved by the electoral management body as correct.

• there should be a regular extraction of sample ballots for checking as to colour, image position, and trim during printing. If any deficiencies are found, printing should cease until a fresh satisfactory proof has been printed and approved by the electoral management body. Stocks of ballots produced since the last accepted sample should be checked and faulty ballots destroyed.

• repeat these control processes whenever a new plate is used, a different press brought into production or commencement of a different ballot print.

• check samples of the final product to ensure stubs are numbered correctly in sequence and/or packs contain the correct number of ballots, where ballots are being produced in numbered stub booklets or other standard packages.

Although this may seem tedious the consequences of incorrect ballot format, party or candidate order or data, trimming of ballots (so candidate/party names, or ballot completion instructions are deleted), or color (particularly for color print ballots containing candidate photographs or party symbols) can be serious enough to jeopardise the election.

Security

Where ballots are liable materials, the following security measures should be applied during printing.

• an undertaking by the contractor regarding security of ballot materials;

• secure, weatherproof storage by the print contractor of all printed ballots, ballot paper stock, printing plates and other ballot reproduction material;

• physical security in the printing plant, including searches of employees leaving the premises;

• secure return of all printing plates and reproduction material to the electoral management body for secure destruction at the conclusion of prints run.

Where special paper stock is used as an integrity control, security would also be required, including:

• secure storage of ballot paper stock on the print contractor's premises;

• contractor's accounting for and secure destruction of all off-cut and waste paper stock and printing spoils;

• contractor’s accounting for all paper stock supplied but not used.

Printed Ballot Integrity Controls

It is important that the production and distribution of ballots that are the accountable voting material issued to voters are subject to adequate integrity controls.These controls address two issues, namely:

• the number of ballots;

• the authenticity of ballot papers

In systems using enveloped ballots, following the French or similar models, the need for such strict controls on ballots is not necessarily evident.

Assurance that the number of ballots is correct can be attained by various secure packaging, numbering and counting methods. Assuring the authenticity of ballots issued to voters can be an expensive process if through use of special papers and print methods, or relatively simple and inexpensive through validation at the time of issue.

The types of integrity controls instituted depend on how much reassurance the voting public needs regarding voting integrity. Simple validation methods in the voting station can be effective but may not appear as professionally secure as special paper or secure printing.

Security features are necessary to maintain the integrity of the process. The cost of each of these features varies and the electoral management body may decide to use several methods to ensure maximum security.

As the costs vary from one feature to another and this may impact on the choice made by the electoral management body.

Number of Ballots

Printed ballots are normally subject to a series of reconciliations from the time that they are printed to the time of completion of ballot counts.

Counting the ballots at each stage of the distribution process and during reconciliation in voting stations and the count can be assisted if quantity control systems are instituted at the time of manufacture.

Systems banding ballots loose in packs of standard quantities according to specification. This system is the most simple but the least effective as bands can easily be torn, and accuracy of packaging with this method is often suspected. Shrink wrapping of loose ballots in standard packs provides more packaging security but can also be suspect in accuracy.

Printing ballots with a numbered, perforated stub and collating the ballots in standard, stapled booklet,-usually of fifty or a hundred ballots, provides more surety as to numbers.

The ballot paper itself should never be numbered as this indicates to voters that voting secrecy may not be maintained. If this method is adopted, it is important the electoral management body is satisfied that print contractors are experienced and qualified to produce these ballots in booklets accurately otherwise the additional expense will be to no avail. In some environments this facility may not be available locally.

Full Counts

It is essential that a full count of ballots be conducted on delivery of ballots to the voting station and for counts of both used and unused ballots during reconciliations at the close of voting, to identify any manufacturing errors in numbering of these ballots.

This also includes the use of numbered stub ballots.

Authenticity of Ballots

Ballot authenticity can be assured by using:

• special papers, such as watermarked or ultraviolet light sensitive coated paper;

• special security prints methods, such as micro-printed security codes and colour shift print.

Significant lead times for production may be required for these methods, particularly for watermarked or coated paper, which may not be readily available to the required specifications locally in all countries.

Costs of printing using these special papers or print methods are considerably higher than using normal paper stock and print facilities.

Use of Official Marks

In election systems where each ballot is accountable,the ballot paper is validated on issue by the election official placing an official mark or signing or initialing the back of the ballot paper. This is a cost-effective manner for assuring that only valid ballot papers enter the count, and in most environments provides as effective authenticity controls as special and expensive paper stocks or security print methods.

Perforating instruments or stamps can be official marks used by the election officials. A different, distinctive mark would preferably be provided to each voting station to enable full accountability and integrity checks during counts. These are highly accountable items whose design should be kept secret until use and that should be kept under strict security at all times.

Even more cost-effective--but of slightly less integrity and of less use in less literate societies--is the alternative method of requiring the ballot issuing polling official to sign or initial the reverse of each ballot as it is issued.

Place the official mark or election official endorsement in the same position on every ballot, to allow it to be visible when the ballot is folded by the voter.

The top right hand corner of the reverse of the ballot paper is probably the most expeditious position for quick application by most (right-handed) polling officials. The correct position could be marked by a box or other shape on the reverse side of the ballot.

The additional costs of two-sided printing, however, should be carefully weighed against any likely advantages in accuracy.

Voting Day Equipment and Maintenance Considerations

Equipment for use in elections comes from a wide variety of sources and in many different shapes, sizes and possible functions which can be quite confusing.

There are essential issues that require consideration in determining the range, method of acquisition and maintenance of election-related equipment.

Legislative definitions of equipment for use by the electoral management body: It can be useful to include the functions that equipment serves in legislation.

There needs to be a balance between too restrictive a legislative definition of the materials from which equipment, or its components, must be made as it can restrict the ability of the electoral management body to take advantages of technological change or new materials available in the market.

The election environment: Different equipment configurations will be more suitable for different climatic, security, and maintenance support conditions.

Equipment should meet the following conditions to be effective:

• capable of performing under, for example, extremes of heat, dust, or humidity, when these are likely to be encountered;

• capable of providing high levels of security where security risks are high (or conversely has high security features where these are not necessary);

• capable of being understood by its likely operators and/or voters;

• can be maintained and logistical supported locally;

• not waste resources, no matter how low the initial cost.

Costs and benefits to voter service: It is necessary to consider cost effectiveness when evaluating potential equipment acquisitions.

Equipment should bring real and reliable benefits to voter service in a cost-effective manner more than promote a progressive corporate image for the electoral management body.

Management Issues

The electoral management body needs to carefully plan equipment provision at both the strategic and operational levels to ensure effective and economical supply of all election equipment needs.

The following are significant matters requiring consideration when developing equipment management programs:

• integrate equipment management programs with the overall election planning process so that appropriate equipment types and acquisition timing is achieved;

• establish reliable source data for the quantities of equipment required, the locations at which they are be required, and the links to systems providing voter registration data and voting station location data;

• plan equipment needs well in advance to ensure that required equipment is available in sufficient time for use, and to avoid any penalty costs of last-minute acquisitions. Pay special attention to items with long supply lead times, either due to complex and/or innovative design specifications, or sourcing from distant or international sources;

• develop detailed specifications for all equipment needs to ensure that the functionality required of equipment is achieved;

• dmplement accurate systems for monitoring equipment on hand i.e. quantities, locations, movements, and monitoring the acquisition process, to aid reviews of election readiness and provide an audit trail for equipment management;

• ensure that acquisition methods are cost-effective. Since most election equipment will be used infrequently, the possibilities of hire or lease for durable equipment, or use of disposable equipment, may be considered;

• ensure that all uses of equipment are considered in the planning of required equipment quantities and delivery timing. Equipment is required not only on voting day, but for earlier activities such as election officials training, public information, voter education, as well as post election functions such as dealing with election challenges and maintenance programmes.

Further information on specific classes of election equipment can be found at:

Communications Systems
Ballot Boxes and Seals
Voting Compartments
Temporary Structures
Furniture
Amenities

Quality Control

Before entering into a contract to supply election equipment there is a need for electoral management bodies to ensure that implementation of an acceptable production quality control plan is a necessary condition in contracts for supply of equipment.

Evaluation and approval by the electoral management body of suppliers' quality control plans is necessary for ensuring that equipment supplied meets requirements. In some cases the electoral management body may want to implement its own additional quality control measures on production of essential equipment.

In general, more effective controls can be maintained over equipment quality under the following conditions:

• clear and accurate specifications for equipment requirements have been provided by the Electoral Management Body to suppliers;

• equipment is ordered only from reputable suppliers, preferably accredited under the International Standards Organisation (ISO) series of quality benchmarks;

• equipment is produced locally, enabling on-site production inspections by electoral management body staff, and shorter time delays in identifying quality deficiencies;

• a rigorous pre-delivery testing regime is instituted for all equipment to ensure that it meets specifications.

A consideration for electoral management bodies is that supply from other countries can make it difficult for the them have any oversight of quality issues until the equipment is delivered, which may be too late to remedy deficiencies properly.

Disposable Equipment

Recent development of disposable voting station equipment such as ballot boxes, voting compartments, or booths, and furniture made of corrugated cardboard or plastic sheeting;-provide lightweight, easily transportable and cost-effective alternatives to traditional durable equipment while meeting election security and transparency requirements.

In many environments disposable equipment represents a more practical alternative to holding large stocks of durable equipment for infrequent use. Where lightweight cardboard equipment is used, assembly methods should form part of election official training, and assembly instructions should be provided with the equipment.

A further side benefit may accrue from using disposable cardboard equipment in general, namely, where schools are used as voting stations, the disposable cardboard ballot boxes, voting compartments, and barriers can be left at the school for use by teachers and civic educators in continuing voter education for students.

Assurance of Performance

Methods of assurance that all election equipment will perform to the expected standard on voting day are necessary. Performance assurance methods require the preparation of detailed specifications, thorough testing, and implementation of continuing maintenance programmes.

Equipment storage

Equipment comprises a substantial portion of any election budget and consideration needs to be given to proper and effective storage between elections, especially if it is non durable

Costs of storage vs Costs of replacing equipment: This is especially relevant to disposable equipment or equipment that depreciates due to the rapid advancement in usable technology.

Safety: It is necessary to store equipment in a safe lock up area

Inventory: It is good practice to prepare a detailed inventory of the items being stored, the number of items, and the condition they are in at the time of storage and the estimated value. If items are being stored at different venues keep a list of where each item is stored.

Size of venue: The venue should have sufficient space to store the equipment without damage .

Temperature: Ensure that equipment that may be damaged in temperatures that are either too damp in or moist is stored in a suitable environment.

Maintenance

As a general rule, if the resources and storage facilities are not available for proper maintenance of durable equipment, it would be a waste of money to acquire it.

Regular maintenance checks (at the least at six-monthly intervals) of all durable equipment in storage prevents equipment failure during voting operations. Particular attention should be paid to regular testing of electronic and communications equipment.

Where special equipment is used to maintain voter eligibility controls-such as ultra-violet or other special lamps or fingerprint readers--particular care also needs to be taken with their maintenance.

It is highly preferable to develop formal maintenance and testing schedules for all durable equipment and ensure that reports on results are brought to the attention of senior electoral management body officials.

Sensible precautions for maintaining equipment in good condition need to be remembered, such as removing batteries from battery-operated equipment before it is placed in storage.

Testing of all equipment prior to it being shipped to voting stations will guard against the provision of useless items. It is also prudent to require that voting station managers thoroughly test all equipment in the voting station following installation, both to ensure that the equipment is in good working condition and that they know how to operate it.

Ballot Boxes and Seals

Ballot box design is of considerably varied nature, including:

• clear high density plastic construction (allowing highly visible proof that the ballots are not being tampered with);

• metal;

• other durable plastic construction;

• lightweight, disposable ballot boxes made of corrugated cardboard or, for multiple day use, corrugated plastic sheet;

• acceptable to all stakeholders including contesting political parties and voters. For example transparent ballot boxes may be necessary in some countries, whereas in others disposable ballot boxes may not be acceptable.

• the size of the ballot box taking into an account the number of estimated voters. In a highly conflicted environment it may be necessary to have one large ballot box sufficient to contain all estimated voters to avoid increasing tension due to mistrust between the participating stakeholders including voters, political party poll watchers and national observers.

• the maximum number of voters to be processed in a voting station (and hence the number of ballots) and ballot size.

• ensure that once the ballot box has been sealed, ballots cannot be removed from the ballot box without breaking security seals or locks.

• when folded in the correct manner, pass easily through the insertion slot .Some designs include a lockable slide to seal the ballot paper insertion slot; this more expensive option may provide no more security than covering the slot at close of voting with security tape.

• size - the weight of the construction material can mitigate larger size ballot boxes made of durable materials; no such restriction applies to cardboard ballot boxes.

These can be produced in a range of sizes, from the very compact and easily portable (for use by mobile voting stations) to large floor standing models that allow a single ballot box to be used for voting stations servicing large numbers of voters.

Appropriate Materials

The effectiveness of ballot boxes is not necessarily in the strength of the material or the size of the lock. Lightweight cardboard ballot boxes when sealed properly offer no less security or transparency than those made of durable materials. When considering their lower transport costs, negligible storage and maintenance costs, and flexibility as to size, they are more cost-effective.

They may not be suitable for some environments, however, particularly in wet or very humid conditions (though similarly lightweight, disposable corrugated plastic ballot boxes can be).

Durable Ballot Boxes

Where durable ballot boxes are used, proper maintenance is important:

• in ensuring that they are all retrieved from voting stations;

• that regular stock takes are undertaken;

• that they are regularly inspected in storage;

• necessary repairs are made or replacements obtained.

Ballot Box Quantities

Quantities of ballot boxes required at each voting station will depend on a number of factors in the legal and procedural framework.

Significant amongst these are:

• the number of voters expected;

• the size of the ballot paper;

• the capacity of the ballot box;

• the number of different ballot papers to be completed or separate elections being held simultaneously;

• whether the voting station is split into different polling streams for different polling subdivisions.

A general rule is to:

• keep the number of ballot boxes to be dealt with at a voting station to a minimum as the most practicable course;

• have separate ballot boxes for each voting subdivision where there are different polling subdivision voting streams in one voting station, to allow effective reconciliations of voting materials;

• have separate ballot boxes where simultaneous elections are being held. While this has no real bearing on integrity, it can save time at the start of the counting process. Where voter numbers are low, a single ballot box can be used.

Unique Identification of Ballot Boxes

Where ballots are to be transported to separate counting centers, it is essential that unique identification codes be clearly marked on each ballot box and recorded before delivery to the voting station.

This unique coding can also be necessary when counting takes place at the voting station, especially if otherwise unidentified ballot boxes are used for different elections or voting subdivisions ballots in the voting station.

Seals for Ballot Boxes

Tamper-proof sealing of ballot boxes is one of the basic guarantees of voting integrity. Ballot boxes must be sealed from the commencement of voting through to their opening, after the close of voting, for removal of ballot boxes for the count.

Where ballot boxes are also used as the container for transporting accountable materials to the voting station and from the count back to the electoral management body, they will also need to be sealed for these shipments.

The following methods of sealing can be considered:

• One method of sealing ballot boxes is a uniquely numbered keyed lock or locks. It is appropriate to seal, with a paper seal, wax, or some other method, over the keyhole of each lock when it is affixed to the ballot box.

• Another method is uniquely numbered plastic or nylon security tied seals. Numbered plastic security tied seals are effective and generally more practicable.

• Assembly joins may be further secured by the use of security tape where disposable ballot boxes are used.

Whether plastic security ties or traditional locks are used, these are liable items that need to be maintained securely. To ensure the integrity of the process accurately record their use on each ballot box used in voting stations.

The quantities of seals required will depend on the number and design of ballot boxes. Sufficient seals should be on hand in each voting station to cover all sealing points for all required and re-sealing of the boxes.

• Durable ballot boxes normally have two sealing points, on a hinged lid and on a sealing slide on the slot.

• Designs for disposable ballot boxes of two-piece construction (separate lid) normally have four sealing points (at each top corner).

• Single piece constructions (fold-down lid) have two sealing points.

Voting Compartments

The purpose of voting compartments, or voting booths, is to allow voters to mark or select their choices of candidate or party in secret. It does not require expensive (in both production and storage terms) durable equipment.

Where "mark choice" ballots are used, and no tables are available in the voting station, it will need to be of solid free-standing or interlocked construction and contain a strong writing tray.

Design

Common alternatives in styles of voting compartments include:

Table-top models: need be little more than a simple double or single fold piece of corrugated cardboard, which can be taped to a table, or of durable wood, plastic, or metal.

These should be of sufficient height to prevent voters in adjoining compartments being able to view each other's ballots. Where table-top or free-standing compartments are used, the writing area within the compartment should preferably be wide and deep enough to allow the ballot paper to be placed on it without having to be folded and the height of the compartment above the writing surface level sufficient to prevent voters in adjoining compartments from viewing each other's ballot paper.

Free-standing voting compartments, of disposable corrugated cardboard or durable wood, metal, or plastic. Durable equipment of this nature is bulky and expensive to store, maintain in good repair, and transport.

If durable construction, storage and transport costs can be reduced if voting compartments can be kept in permanent, secure storage at the voting site, particularly for voting stations in rural areas. This will presume the availability of the same voting sites for successive elections. Where free-standing compartments are normally used, at least one table-top version should be issued to each voting station for the use of disabled voters.

Drop cloths of dark or opaque fabric, with the addition of some nails, can be cost-effectively used to curtain off areas in which a table can be placed. In the same, but more design-conscious, vein, commercially produced compartments, featuring cloth hanging from a supporting frame, are also available, at a cost.

Fundamental to the choice of the voting compartment is that voting remains secret. Even split cardboard boxes, taped to a tabletop, may be suitable in an emergency. Where voters mark their choice of party or candidate on the ballot paper, voting compartments should contain some means of attaching a pen or pencil to the compartment.

Where normal tables with a makeshift screen are used, this could be as simple as attaching the writing implements with tape or string. Specially designed voting compartments with a self contained writing surface would preferably have a drilled hole through which the writing implement can be attached.

Disposable Cardboard Compartments

Disposable free-standing compartments need to be rigid and solid when assembled. Some voters are likely to place young children, briefcases, or the morning's shopping on the writing surface while completing their vote. Most fully recycled corrugated board does not have sufficient strength.

Best results generally come from using corrugated board made from a mix of recycled and virgin pulp. Effective construction normally means an interlocking design in which each screen is supported by the one on either side.

Using cardboard voting compartments will allow printing of voting instructions directly onto the side of the compartment directly facing the voter rather than having to print and affix separate instruction posters.

Quantities Required

Quantities of voting compartments supplied to each voting station depend on:

• the number of voters to be serviced;

• the times the voting station is open;

• the average time estimated for each voter to vote;

• the number of ballot papers to complete;

• the complexity of the voting procedure. For example exhaustively marked full preferential ballot papers take longer to complete than those on which a single mark is placed.

Sufficient voting compartments need to be provided to each voting station to allow a smooth flow of voters through the voting station. Insufficient voting compartments cause delays in voting. Ballot papers should only be issued to voters when there is a vacant voting compartment. Conversely, if ballot papers continue to be issued when all voting compartments are occupied, voting secrecy is likely to be compromised as voters may then complete their ballot papers in the open.

Supply quantities of voting compartments in various jurisdictions are generally in the range of one compartment for every one to two hundred voters, depending on the factors listed above.

In France, using an enveloped voting system where the voter chooses which party or candidate ballot to place in the voting envelope, the ratio is one screen to two hundred voters.

For Australian national elections, where each voter has to complete two ballot papers, one a fully marked preferential vote and the other a ballot which can be marked with a single party reference or an exhaustive preferential numbering of candidates, the ratio is one compartment to every 120 voters.

Larger quantities of compartments need to be allocated to specific voting stations where voters may take longer than average to complete their vote. These groups include:

• aged voters;

• voters unfamiliar with voting procedures;

• voters of lower literacy

• voters from minority language groups.

Temporary Structures

Voting stations that are located in areas that have no suitable permanent premises for voting will require the use of temporary structures.

Appropriate temporary structures vary in style, according to local costs, weather conditions, and transport availability.

Typically, tents or canvas or plastic sheeting shelters would be used and delivered for erection with the voting materials. However, some other solutions have proven effective when available and suitable transport can be provided. Shipping containers, for example, can make effective portable voting stations. They also have the added advantage of providing adequate security for materials if delivered on site prior to voting day.

In environments where there is little risk of inclement weather and where voting in the open is an accepted practice, it may be possible to dispense with any structure and have the voting station area merely delimited with ropes or similar barriers. Mobile voting stations catering to very small numbers of people at a voting location may be able to dispense with temporary structures or barriers altogether.

Light/Power

Lighting equipment needs to be supplied with portable structures or permanent structures without reliable electricity if the voting station set-up, voting, or counting is to continue through hours of darkness.

The supply of generators and portable lights may be necessary for larger voting stations. Where this is not cost-effective or feasible, gas or battery lamps can be suitable--preferably battery powered, for safety reasons.

It is important that operating instructions are supplied with this equipment. It is necessary to ensure that voting officials are given adequate training on how to use temporary lighting supplies as they may be unfamiliar with, for example, safe methods of replacing gas cylinders on gas lamps.

Furniture

When identifying premises it is highly preferable that premises that already have sufficient furniture on site are used as voting stations. Schools, in particular, are likely to meet furniture needs. Delivering and retrieving furniture from voting stations, particularly bulky items such as tables, can be costly.

Sources of Additional Furniture

The following sources can be considered when additional furniture is required for voting sites:

Other government sources: Loan or rental may be arranged from other government agencies. Government surplus stores may also hold stocks of useable furniture.

Private furniture leasing contractors

Purchase of disposable corrugated cardboard furniture. Disposable cardboard two-person tables for voting officials, crowd control barriers, and rubbish receptacles have been developed in some jurisdictions.

Costs for tables, in particular, can compare favorably with leasing costs for durable items, especially when transport is considered. For examples of design specifications for disposable corrugated cardboard furniture for voting stations, see the following:

It is very unlikely that there will be any justification for the Electoral Management Body to purchase durable furniture for voting station use although in some less developed environments the purchase of furniture may be the only option to ensure that voting stations can function effectively if there is insufficient private leasing or other government stocks available.

If furniture does have to be acquired, specifications would preferably ensure that it is of future wide utility in other public sector activities.

Furniture Requirements

The amount of furniture required for a voting station depends on the staffing levels and numbers of expected voters. The essential basic requirements include:

• Tables and chairs available in good condition and sufficient for use by voting staff, in voting compartments (if required), as ballot box stands (if required), party or candidate representatives and observers, and to provide seating for elderly or physically challenged voters;

• Barriers to direct voter traffic flow and maintain queue control, as simple and cost-effective as rope strung between poles or as corporate image conscious as the cardboard equipment whose specifications are linked above.

Additional furniture requirements, such as secure storage cabinets and waste bins, may also be useful. 

Amenities

To provide an acceptable standard of amenities for staff (who will be spending a very long day within the confines of the voting station) and for voters, additional equipment may be required. Before doing so electoral management bodies need to ensure that basic services are available at the voting site. Where there are deficiencies the following may need to be obtained:

• lighting, where voting or counting is undertaken after daylight hours;

• toilet facilities;

• drinking water;

• food.

Lighting and associated power generators would preferably be obtained from other government agencies (such as military forces) or leased from private contractors.

Leasing of portable toilets (at a ratio of one to every 400 to 500 voters expected) is preferable to having voting staff, as their first duty on voting day, digging latrines.

There is generally little justification for the purchase of these items, though stocks of small-scale lighting equipment (torches and lamps) can be held by the electoral management body.

Voting stations with no running water available can be assisted by, visits from local government or military water tankers may be arranged. Small quantities of drinking water for use by voting staff may be delivered with voting materials. 

Sensitive vs. Non-Sensitive Material

The material required for conducting elections varies from basic stationery such as pens, papers and rulers, to voters’ lists, validation marks and ballot papers. The election management body has the responsibility to manage the wide range of material and equipment in a way that ensures the confidence of the electorate and the contesting parties in their ability to conduct the election in an efficient and impartial way. The material can be categorized into sensitive and non sensitive material.

Sensitive Material

Sensitive material refers to items such as:

• validation seals that are placed on ballot papers to verify their authenticity. This is especially necessary during the counting process;

• ballot papers;

• voters lists;

• computers - this is particularly relevant in systems where the voters list is computerized or electronic voting is used;

• ballot paper stamps;

• indelible ink where this is used as means of verification to prevent duplicate voting;

• voters identity cards;

• ballot box seals.

Non sensitive material

Items such as:

• voting equipment, that is, voting compartments, ballot boxes, tables, chairs;

• stationery – pens, paper, rulers, erasers;

• tape for cordoning off the voting area or indicating where voters may or may not queue,

Security

While all equipment needs to be adequately stored, storage of sensitive material in particular is extremely important. To ensure maximum security most electoral management bodies allocate this responsibility to senior election staff such as District Electoral Officers who in turn may designate this responsibility to the Electoral Manager.

These election officials work closely with the relevant security forces (where the security forces have the trust of the public) or make alternative arrangements for additional security. In some countries election staff to agree to abide by a Code of Conduct that binds them to confidentiality regarding sensitive material

Voting Materials

Timely and accurate production of voting day materials is essential if voting station supplies are to be packaged and distributed effectively. Voting station supplies such as election forms are the interface with the voting public. Their impression of election quality will be influenced by how easy it is for them to understand the materials they have to use.

It is important that there are strict specifications and quality control procedures applied to the large volumes of materials that are produced for use on voting day to ensure this timely supply and functionality.

Production Capacity

Production capacity is an important factor to consider in determining the scheduling and location of materials production. Election form production in particular, can put great pressure on available print capacities.

Where production deadlines are tight, print scheduling also needs to take into account transport times. If voting station specific or electoral district specific items, such as voters’ lists, are produced centrally, print those for the most distant electoral districts first.

Decisions will need to be made on whether materials are to be produced locally, regionally, or nationally, and for some items internationally. The packaging and distribution method adopted for voting station supplies is an important factor in this decision (for example, it would generally be unwise to produce materials at a local level if a centralized packaging methodology has been adopted).

Where standard materials are required in large volumes, there are cost-effectiveness and quality control benefits in centralized or regionalized production, provided that there are effective distribution methods available. Local production can be more effective for controlling materials with substantial local variations, or for local use only.

Voters’ Lists

Voters’ lists will be the most used item in voting stations on voting day. They need to be designed in a format that allows speedy and accurate location by polling officials of all relevant voter information. As they will be the basis for determining eligibility to vote, it is important that they are an accurate representation of the relevant section of the voters register. (For detailed information on voters lists, see Voters Lists)

Voter Identification Cards

In many systems, voters are issued, either at the time of registration as a voter or at a date prior to voting day, a voter identification card that is the basic document to be presented at the voting station to prove an entitlement to vote.

The voter identification card must contain adequate safeguards against transferability in order to be effective. This could be through including a non-removable photograph, fingerprint, or other assurance of identity of the bearer capable of being accurately checked at the voting station. Cards bearing only the signature of the voter may provide less integrity assurance.

Election Forms

Voting day is a massive exercise in information transfer. Much of this information records answerable actions, or needs to be recorded in a consistent manner to aid decision-making and transparency.

Hence, there are likely to be significant numbers of election forms, no matter what efforts are made to minimize their number. It is important that election forms are simply designed and easy to understand. (The production of election forms is discussed in detail at Election Forms. For issues regarding the printing and supply of ballots, see Production of Ballots)

Voter Information Materials

Production needs for voter information materials also have to be considered. Large quantities of these materials may be required, particularly if voter information guides are to be provided to each registered voter or household.

Arrangements will need to be made for production of information posters and pamphlets on voting procedures for use in voting stations, as well as a range of other signs and visual aids, such as voter direction signs and voting station location notices, that will assist voters.

General Supplies

A large range of general supplies will need to be acquired and supplied to voting stations, including:

• Stationery items such as pens, pencils, envelopes, and note paper;

• Packaging materials;

• Emergency lighting supplies;

• Items specific to particular voting procedures, such as ballot validation marks or multiple voting control supplies.

(For voting station needs for general supplies are discussed in detail, see General Supplies.)

Voters' Lists

The accuracy of voters' lists used in voting stations in extremely important for  the integrity of the voting process and needs to be ensured by The electoral management body.  Rigorous checking that each voter' lits accurately reflects the relevant portion of the voters' register must be undertaken. Any errors found need to be corrected immediately, preferably by revising and reprinting the affected lists before the lists are distributed to voting stations

As voters' lists are likely to be the most used single time of material during voting hours, it is important that they are a quality product. Information in them needs to be clearly presented, and the material on which they are constructed needs to be durable.

Quantity Produced

Voters' list are a highly accountable item. They should be maintained under security while awaiting distribution to voting stations and on their return following close of voting.  Normally they are only produced in the exact quantity needed for voting station use. This is generally one copy of each unique voters' lists. In systems where voters may have a choice of voting stations to attend within an electoral district or subdivision, multiple copies of the relevant lists will be required.

Voters' lists or full voters registers for electoral districts are normally also printed for public information purposes

Timing of Production

The production of voting station  voters' lists is determined by the legal deadline for additions , deletions or amendments to be made to the voters'  register. In setting the deadline, a balance  has to be achieved between

• accuracy of the voters' list in ensuring that recently deceased voters can be removed and other allowable changes made;

• time required for printing and distribution of voters' lists to all voting stations

Location of production , whether centralised , regionalised or distributed to local areas depends on the processing structure of the voter registration system.

Certification

It is important that  a legally designated electoral management body or other official certify that each voters' list used in a voting station is a true copy of the relevant portion of the voters' register. In some systems, the integrity of this process is protected by requiring this function to be undertaken by a member of the judiciary or a member or a revision court convened to review the register.

Design

The format of voters' lists are almost as numerous as the formats of ballot papers depending on the voter registration systems, voter identification , and post-voting day list processing methods used.   Information required in the list is usually and properly defined in electoral legislation.  Voters' list formats include:

• A handwritten or typed listing of electors eligible to vote at a voting station
• An index of the original voter registration cards for all voters eligible to vote at the relevant voting station
• Printed lists of voters eligible to vote at that voting station generated from computerised data
• Optical character readable lists
• Lists containing a photograph of each eligible voter for the voting station as well as textual information 
  
  

Basic Design Requirements

The three major considerations in the design of voters' lists are:

1) the inclusion of all information required by election legislation

2) user-friendliness for voting officials

3) cost-effectiveness in printing

Some basic design specifications can serve as  guidelines for the wide variety of potential designs for voters' lists (where these are printed volume)

• Each page should contain the election title and date, electoral district name , subdistrict or voting subdivision name, voting station identification code and/or name and consecutive page number
• Paper size should be at a minimum of A4 and the color white
• Paper weight should be at a minimum of 70-80 g
  
• Suitable binding such as lockable ring binders , make ruling through of names easier. Binding specifications must ensure that the voters' list opens flat, without splitting.
• The names of voters should be shown in strict alphabetical order, in most societies in order of family name.
• Typefaces uses should be of a point size that is easy to read quickly
• Single sided printing of the list would be preferable.
• Names should spaced sufficiently for them to be marked clearly when the voter is issued a  ballot paper , without obscuring any adjacent names.
• Information shown should include the voter's full name as it appears on the  voter register, ( family name generally first) full address of registration and serial number or identification number on the full voters register or a link number to this serial number.
  

 

Special voting facilities

 

 

Where special voting facilities are available, ( such as absentee , early or mail vote),  methods of ensuring that voters cannot claim both a special vote and a normal vote at their voting station will be required.

Some alternatives in voting frameworks include

• marking voters who have cast a special vote on the relevant voting station voters' list before it is dispatched to the voting station
• constructing a special voter's list or lists for all voters applying for special votes and removing them from their normal voter's lists
• using enveloped ballots for special voting with voter details contained on the envelope being checked against the relevant voting station voters's list - to guard against impersonation and multiple voting- before the envelope is opened and the ballot acepted for counting.
  

Election Forms

Forms serve a vital control function in voting operations. While every effort should be made to keep the number of forms required to the minimum necessary, there will always be a significant number of voting operations forms, due to:

• the highly accountable nature of many voting operations actions, and the need to be able to demonstrate, possibly in response to a challenge to the election, the exact nature of actions taken;

• the need to record the vast amount of information associated with voting events in a standard manner, to enable consistent decision-making and to protect election integrity. 

Reviews

Forms are a necessary but obtrusive part of voting operations accountability mechanisms. It is important that voting operations management undertakes regular reviews of the numbers of forms and their content, to determine how much of the information being collected is:

• required by legislation;

• needed to ensure election accountability and transparency;

• used for effective current management of voting operations;

• may be useful to look at sometime;

• information whose purpose can't be immediately ascertained.

The last three categories should be closely scrutinized to determine which forms and information items collected:

• are really required as a formal record;

• have been overtaken by current practices and need revision;

• would be equally useable if merely noted or reported informally;

• have no discernible purpose.

Information being collected for no discernible purpose, especially, is a waste of valuable voting operations resources.

Forms for Internal Use

Avoid overloading voting operations staff with an excessive number of data collection, supplies tracking, and monitoring forms to complete. Voting operations staff will already be under pressure, and adding to that with requests for non-essential information or multiple requests for the same information from different management areas of the electoral management body, will not assist their performance.

Too many or too complex a system of required forms will lead to errors in completion, and, at worst, failure to respond to essential data requests that have been buried in a mass of other information requests. Try and keep forms simple but in a way that they are able to capture the necessary information.

Language

Forms may need to be produced in more than one language in societies with different official language groups or significant minority language groups.

To simplify supply, it is preferable for multi-lingual forms to be produced, rather than separate forms for each language. The time needed for effective translations needs to be considered in designing form and supply timetables.

Design Principles

The most effective forms are those that are easy to understand and to complete. Some principles that can be considered in designing voting operations forms include:

• use ordinary language, not legalese. Only a very small proportion of people who use voting operations forms will be lawyers.

• clear instructions for completing the form. Instructions are generally better as an integrated design element of the form, rather than as an add-on.

• all required information about the respondent (name, address, etc.) that can be identified clearly.

• information in a logical flow, using grouping of information requests where this is useful.

• clear spaces between individual information requests. Trying to put too much on to a single sheet is not efficient; it just makes understanding the form more difficult.

• areas in which responses are to be written are clearly delineated and sufficient room is provided for possible responses.

• a checklist on the form where there are standard administrative processes to be applied as a result of responses to a form. These administrative action checklists should be clearly separated from the information gathering section of the form.

• an indication on the form o how the information will be used. In countries with privacy protection legislation, this may be mandatory.

• as long as the intent of questions remains clear, and different sections are clearly delineated, collecting different types of data on the one form (instead of providing multiple forms) can be effective.

• collecting data only once, as far as possible. Multiple forms requesting the same information become a nuisance and may hinder correct completion of the requested data.

Other Distribution

Examples of relevant forms are usefully included with voting officials manuals, with their use being explained, if possible by simulations, during training.

In the interests of transparency it is also useful to make reasonable quantities of voting operations form samples available to political participants and other interested citizens.

Domiciling

Using laser or ink jet printing facilities can be effective to pre-print electoral district and voting station information, name or code number and electoral district/voting subdivision directly onto forms.

However a judgment has to be made as to whether this assistance to voting officials and assurance that all material is domiciled is outweighed by any added costs and complications in quality control for packaging and distribution of voting station material.

Forms Control

The amount of data that may need to be recorded on forms for voting operations can be immense. The forms listing examples at Election Forms Control Inventory give some idea of the number of forms that may need to be designed, produced, and completed.

Controlling form design and production is a major task in itself and requires adequate resourcing. Rigorously enforced systems of standard form numbers and revision and version control are necessary to maintain controls on voting operations forms numbers and content.

The following listing does not attempt to note all forms that will or can be used for voting operations, but it highlights the areas where standard recording or provision of information on forms, or their electronic equivalents, is likely to be necessary.

Nominations

• formal notices of nominations period

• nominations forms and any attachments 

• rejection or acceptance of nomination.

• withdrawal of nomination

• declaration of accepted nominations

• ballot order determination

• appointment of party/candidate representatives

• campaign expense and contribution reports

Materials Control

• contract/purchasing documentation

• labels or pre-printed envelopes for despatch and return of voting station materials

• inventories, supplies receipts, and delivery schedules

• loss and destruction notices.

Staffing and Training

• information pamphlets for prospective staff

• offers of recruitment, suitability assessments, and contracts/appointments 

• training schedules, advisory notices and assessments.

• undertakings to abide by codes of conduct/maintain voting secrecy

• staff identification badges

• records of staff attendance and payment records

Voting Site Management

•premises and security assessments

• determination and notification of voting locations

• voting hours notifications

• ballot paper issue, accounting, and reconciliation records 

• boting station notices - voter flow signage, prohibitions on voter behaviour (no smoking, no firearms, and the like)

• instructions to voting officials 

• instructions to voters

• voter information posters and pamphlets 

• ballot envelopes for enveloped ballot system

• spoilt and cancelled ballot envelopes

• adjournment of voting

• summary of voters not on the voters list

• voting day voter registrations

• supervisors checklists

• voting station managers reports--could be a series of separate forms covering all aspects of ballot accounting, voting activity, staff and premise management, or a voting record booklet

Count Recording and Results

• notification of counting times and venues

• reconciliations and movements of voting materials to and from counts (

• counting records, summaries, and reconciliations

• determination and declaration of results  Counting total and result compilation forms must be designed to show all the calculations necessary for a result to be declared; leave nothing to back-of-an-envelope, non-transparent, invisible-to-observers calculations. Results slips, protocols, or minutes should not contain any pre-printed numbers in count columns (e.g., "1" in the thousands column against candidates expected to receive a large proportion of the vote).

Special Voting

Included here are absentee, early, and mail voting, as well as voters requiring assistance:

• information posters and pamphlets for voters

• application for a ballot paper

• instructions for completing the vote

• ballot envelopes and outer envelopes

• records and reconciliations of ballots issued

• reports by managers of special voting locations. This could be a series of separate forms covering all aspects of ballot accounting, voting activity, staff and premise management, or a voting record booklet

Challenges

• statements of challenges

• requests for recounts 

• investigation reports.

Accreditation for Observers and Party Representatives

• applications for accreditation or appointments as representatives

• identification badges

• statements of acceptance of code of conduct

Voter Follow-Up

•  voter fraud statements and investigation reports
•  voter registration confirmations and inquiries (in continuous registration systems)
  
• Compulsory voting inquiries, responses, investigation records, and summaries (in compulsory voting systems)

General Supplies

Apart from the variety of forms, equipment, and information materials supplied to voting stations, there is a wide variety of general supplies required for voting station operations.

Many of these will be standard stationery or supply items that can be acquired as easily through any standard government supply arrangements, or private contractors, without need for modification for election purposes.

However, as for equipment and materials produced specifically for election purposes, it is important that specifications for each general supply item are developed and samples of planned acquisitions tested against these specifications before acquisition. It might only be a plain envelope that is required, but if the form that has to be contained in it won't fit, or it doesn't maintain its seal under election conditions, it becomes useless to supply to a voting station.

Voting stations require general and specific supply items for the effective functioning of a voting station. They deserve as much attention in their acquisition as do other more innovative or customized material. Clearly expressed information materials at the voting station will assist voters and take some pressure off election officials by providing a constantly visible set of information to satisfy potential queries from voters.

The legal framework often specifies the basic directional and procedural information material that must be provided for voters in voting stations. It is appropriate to think beyond these minimum requirements to devise information signs, posters, and pamphlets that enhance efficient processing of voters and assist voters' understanding of how to vote.

When designing this information material the emphasis should be on facilitating quick comprehension. Thus, the use of symbols, diagrams, and pictorial representations, rather than large blocks of text, is important.

Consideration of the needs of less literate voters and of minority language groups is necessary.

Types of Materials

The types and quantities of general supply materials required for voting operations Varies widely according to voting methods and voting station management procedures. There will be little use, for example, in providing pens and pencils for marking ballots where machines or computers are used for voting. However, there will generally be a need for general supplies in some quantities in the following categories:

• office stationery-pens, pencils, note paper for use by polling officials and voters;

• packaging materials-for packing supply kits for dispatch to the voting station, securing materials within the voting station, and return of materials from the voting station;

• emergency lighting, in case of power failure;

Under specific voting methods, there will also be a need for such items as:

• ballot validation tools;

• multiple voting prevention supplies--special inks and, if invisible inks are used, ultraviolet lights;

• tape or rope to seal off areas within or around the voting station;

Voting station information materials basically falls into two categories:

• directional and other advisory material for orienting voters;

• information on voting procedures.

Voting Stations

Outside the Voting Station

It can be useful to provide directional signs to the voting station put up in the surrounding streets, particularly where voting station locations have changed since the last election. Where new premises are being used, it will be helpful to place a notice of where voting is now being conducted outside the former premises. People can be creatures of habit, no matter how much publicity has been given to current voting station locations.

Clear identification of the voting station through the use of an external sign is necessary. If voting station materials are delivered and returned in a large heavy duty bag, the bag can be designed so that it can double as a "Voting Station" sign that can be tied to the front of the premises.

Internal Signs for Voter Control

Signage throughout the voting station that designates different operational areas and provides general information on how voters should proceed throughout the voting station will aid voter flow. Basic signs or posters that would be needed include those that:

• state the hours of voting;

• identify entrances and exits;

• show the geographic area serviced by the voting station;

• identify key areas of the voting station, such as "Queue Here" signs (or if queues are split, the alphabetic or geographic split of the queue), special voting facilities, and the voting station manager's desk.

Signs indicating any required conduct within the voting station (e.g., no smoking, no firearms, prohibitions on campaigning, and the like) should also be provided.

Voting Procedures

Information materials available in the voting station on voting procedures should cover the range of actions required of voters. Specific information materials generally include:

• posters showing how to cast a valid vote, in larger sizes for the voting station walls and smaller to fit in each voting compartment or booth;

• posters advising voters to have their identification documents ready for inspection and showing the identification documents required to be presented;

• posters and handouts on the rights of voters to vote and any challenge mechanisms;

• posters on facilities for physically impaired voters or other voters needing assistance or special facilities;

• posters and handouts on contesting candidates or parties;

• posters indicating the availability and pamphlets explaining the details of special voting facilities available;

• where different ballot boxes are provided for different ballot papers or voter streams, clear signs as to who is to use and what has to be placed into each ballot box;

• in continuous registration systems, information and forms for updating voter registration;

• in complex or new voting systems, posters and pamphlets containing a brief explanation of how the voting and representation system works.

Voting Station materials

Quantities of voter information material required for voting stations depends on the number and characteristics of voters and the size and configuration of the voting station.

While it would be efficient to have voter information material supplies based on standard packs, the need for additional material in specific circumstances must be considered. This could include:

•voting station premises with multiple rooms or more than one entrance and exit;

• local voting populations with significant proportions of voters from minority language groups, first time voters, or voters with specific information needs.

Stationery Supplies

General stationery supplies are likely to include:

• pens and/or pencils: in sufficient quantities for record keeping by each voting official, for marking voters lists, preparing reports, completing voting records. Where ballots have to be manually marked by voters, pens or pencils for each voting compartment will be needed (including sufficient replacements for those that will inevitably disappear during voting). If pencils are used, sharpeners will also be required.

• rulers: to assist voting officials working with voters lists.

• ink and ink pad are necessary: if there are official stamps to be applied to voting materials or records

• note paper: for voting officials

• envelopes: for voting material and forms could be specifically designed and printed for election purposes, or standard stock used. The latter method can be less costly. However, if used, it is highly preferable that stock envelopes either have stick-on labels for use in the voting station or overprinted by the electoral management to provide for standard completion of details such as:

• the voting station to which the material enclosed in the envelope refers;

• the type of material contained in the envelope;

• the election type and date;

• the signature of the relevant voting official.

• staplers/staples, rubber bands, paper clips or similar fastening materials.

Packaging Materials

Packaging methods and materials can vary widely. Packaging needs to include:

Containers used to transport materials to and from voting stations. These could be cardboard boxes or heavy duty sacks for outer containers. It is also useful to provide inner containers i.e. heavy duty envelopes or plastic bags, for packaging the various classes of material for return from the voting station.

Each of these inner containers should either be supplied with a label on which the contents and other relevant election information can be noted, or directly overprinted. Complicated systems of color-coded inner containers and labels tend to confuse more than assist voting officials.

Some jurisdictions supply voting stations with sheets of brown paper in which to wrap materials for return; while economical, this is not necessarily effective.

If counting is to take place at the voting station all this packaging material can be supplied to the voting station. If counting takes place at a separate counting centre sufficient labels, envelopes, and inner packaging appropriate to post-counting packaging (for separation of ballot papers for the different parties or candidates, invalid ballots, forms used at the count) will also need to be supplied to the counting centre.

Methods of fastening the packages e.g. Balls of string or rolls of tape. Corporate printed adhesive tape promotes a professional image but does not add any fastening power for the additional expense. Where separate counting centers are used, additional supplies for use during and after the count will be required.

Security sealing for packages of materials - this can be by paper adhesive seals or security tape. Whichever is used, it should be of the type that is split, and breaks apart when an attempt is made to open the package. What is important is that any attempt to open packages is visible. Where locks are used on ballot boxes, wax may be needed to seal keyholes. Sufficient supplies of security sealing materials need to be acquired to accommodate:

• Packaging of materials following close of voting;

• Any opening and resealing of packages during the count;

• The inevitable further opening and resealing that will occur once voting materials have been returned to storage--for investigations, research purposes, and the like.

Discussion of packaging methods is at Packaging Materials and Equipment for Delivery

Emergency Lighting

Voting stations that will be in operation in hours of darkness will need to be supplied with some form of emergency lighting. This could be torches/batteries, battery or gas powered lamps, or even candles and matches.

Even in highly developed societies, power outages can occur during voting day. For voting locations where portable generators are supplied to provide power and lighting, arrangements for supply of fuel will also be necessary.

Validation Marks

In election systems where each ballot is accountable, the ballot paper is validated on issue by the voting official placing an official mark or signing/initialing the back of the ballot paper.

This can be a cost-effective manner of controlling that only valid ballot papers enter the count, and may preclude the need for special and expensive paper stocks or security print for ballots.

Official validating marks used by voting officials can be perforating instruments or stamps. A different, distinctive mark is preferable for each voting station to enable full accountability and integrity checks during counting. As these are highly accountable items, keep the design secret until use. At all times the validing marker should be kept under strict security at all times.

An official seal may also be used by the voting station manager to validate forms completed in the voting station or the integrity of materials packages to be returned after closing of the voting station. In some systems (though it is not a recommended solution) voters mark their ballot paper with an official stamp to indicate their voting preference. If this system is in use these seals need to be supplied also as a highly accountable item, under strict security.

Multiple Voting Control Equipment

It has become more common in recent years for voters to have some part of their hand marked with ink when they are issued a ballot paper to prevent multiple voting.

Although this is a fairly expensive control to apply, it is appropriate where there is lack of confidence in the quality of the voters lists, or where voters may vote at more than one voting station or where an election is being held for the first time in a post conflict situation.

To ensure the integrity of the process it is important that the ink used is visible and indelible. The disadvantage of this method that it can be a personal safety risk in divided communities as it indicates that the voter has cast his/her vote.

The most commonly used method for using indelible ink is to use ink that can only be detected under ultra violet light (under normal light conditions) Where these are used, ultra violet lamps should be supplied to each voting station with spare bulbs. Battery powered models (with spare batteries also made available) will often be more appropriate to acquire, as they can operate in areas without reliable electricity supply.

If the effort is going to be made to mark voters’ hands with ink, it is important that:

The ink formula is secret- preferably with a different formulation for each election, so that it is not likely that voters will be able to chemically remove the ink before the end of the voting period. To ensure that the most effective ink is used it is often determined to obtain inks from suppliers in another country. Therefore the acquisition program will need to allow for potential time-lags in foreign supply.

The ink does not provide a permanent stain: but wears off within a defined period. Care must be taken, where voting extends for more than one day, that the life of the detectable ink mark is longer than the period during which voters may vote. Similarly if a two-round voting system is used, ink used should be formulated to wear off before the second round of voting or strict instructions need to be given to election officials to mark different sections of the voter's body at the first and second election rounds be followed.

Sufficient quantities of the ink to mark the number of expected voters will need to be supplied in leak-proof, security-sealed containers to each voting station. Supply from manufacturers in the final containers, rather than later repackaging by the electoral management body, is preferable.

Materials Quality Control

Implementation of materials production quality control procedures is vital for ensuring that the electoral management body has sufficient quantities of useable, quality materials for the election.

An effective quality control plan needs to be developed by the electoral management body. Unfortunately, in the effort to complete other urgent election tasks, this is a matter that can often be overlooked.

The practical objectives of, and guiding principles underlying, the quality control plan need to be clearly defined and understood by materials contractors and electoral management body staff.

Materials quality control can be more effective where:

• clear, accurate design specifications are provided to all suppliers by the electoral management body;

• materials are ordered from reputable suppliers;

• suppliers' production methods hold quality accreditation under International Standards Organisation (ISO) or similar standards;

• there is some on-site production monitoring by electoral management body officials. For this reason it will be preferable to use supply contractors within the country.

Quality Control Plan Elements

There are a number of basic steps that need to be included in quality control plans for print and materials production. These include:

• formal sign-off and approval of materials design specifications;

• provision of sample materials, testing of these against the design specifications, and formal approval of samples before full production is commenced (random samples drawn from each production run is advisable, especially print materials, to ensure print legibility and correct print positioning;

• monitoring of materials production quantities and production rates;

• controls over materials movement and security;

• creation of a proper audit trail of decisions on specifications, acceptance of product, and materials movements.

Maintenance of Materials

Where unused materials can be used for future elections, maintenance plans need to be implemented to ensure their future availability and reliability.

Appropriate storage conditions (addressing issues such as security, the effects of heat, dust, dampness, or humidity) and locations must be considered. Particular care needs to be taken with the storage of paper-based materials.

Regular inspections of the condition of materials and inventory of all materials should be scheduled as part of a formal materials quality control plan.

Requisition and Inventory Preparation

Requisitions and inventories are more usefully prepared as multi-level documents to meet the following needs:

• Master requisitions and inventories for the total supplies required in each area of election administration at local, regional, and central levels;

• Individual inventory and supply requirements for each voting location (including any special voting facilities such as mobile voting stations, mail voting facilities, or foreign country voting locations) and each election administration office.

Use of standard materials packages (see Packaging Materials and Equipment for Delivery) will aid voting station inventory preparation.

Method

Requisition preparation is more effectively undertaken on a bottom-up basis, with voter registration or expected voter turnout data determining the materials and equipment needs for each individual voting location, and then combining these to arrive at a master inventory and requisition requirement.

Master Inventories

Master inventories listing all supplies for an election may be unwieldy if they show the total supply needs for all individual locations and functions in the one document, particularly if prepared manually.

Manual and simple spreadsheet methods, will comfortably handle these master requisitions and inventories if they are designed as a summary sheet which is then broken down into separate pages for supply categories--e.g., voters' lists, election forms, ballots, etc.--showing individual voting location requirements.

Control Function

Voting station inventories play an essential control function in ensuring correct receipt of materials at the voting station. All voting station managers should be provided with copies of the inventory of materials and equipment they are meant to have received, and they should personally check supplies received against it.

A copy of the inventory, noting actual supply quantities and highlighting any shortfalls, can be used as the detailed receipt of delivery and returned to the electoral management body.

Automated Production

Inventories and packaging lists can be effectively produced automatically from expected voter turnout at a voting station or registered voter data, where voting station supplies are based on standard packages (see Packaging Materials and Equipment for Delivery).

Such automated systems could also produce additional items such as packaging labels and ballot box identification numbers and labels.

Storage Prior to Voting

Materials and equipment for voting day are likely to be produced over a period of several weeks or even months.

Suitable storage facilities for such material and equipment awaiting packaging and/or dispatch to voting stations will be required. It is important that the premises used for storage are both accessible and secure. Security in particular is of the utmost importance as the builds the confidence of the electorate and political parties in the election process.

Security

Security levels for storage will need to be appropriate to the existing security risks. All liable voting materials, and especially ballot papers, need to be subject to strictly secure storage conditions.

Even in low-risk environments it is usually appropriate to have armed guards on stores containing printed ballots around the clock. The public perception that the ballot papers are strictly secure is necessary even if not needed in reality.

In very volatile situations it may be appropriate to use military or civilian police installations for storage of liable materials. The use of security forces however depends on the perceptions of impartiality of security forces.

Storage Environment

The storage facilities that are suitable for the equipment. For example if the ballot papers are in storage the facility needs to be suitably ventilated and damp proof. Material should be stored in an orderly and well organized manner to allow for easy and quick dispatch.

Local or Central Storage

Storage locations should aim to reduce redundant handling to the minimum. Where voting day supplies are being packaged centrally or regionally (see Packaging Materials and Equipment for Delivery), centralized or regional storage of materials is appropriate. Where supplies are packaged at the local level, it is generally more effective to maintain them in central or regional facilities until immediately before packaging commences.

In any case, it is cost-effective if storage facilities used are also the packaging centre and dispatch point for voting station materials.

It is important that reserve supplies be available at the local level for voting day. It may be possible to use electoral district managers' offices for this purpose. In rural or remote electoral districts of large geographic size, depots for emergency supplies may need to be established in key community centers.

Durable Equipment

Some equipment and materials, such as durable ballot boxes, voting screens, voting machines, and computer equipment, may be maintained in storage from election to election. It is important to implement regular inventories and testing of this equipment and material to ensure that it is in good condition and to effect repairs or replacements if it is not.

Computer equipment especially, will need to be stored in controlled conditions that are away from dust, heat, and humidity, if it is to remain in operable condition following long-term storage. Forms and other paper-based supplies kept in long-term storage will also need to be kept in facilities that are free from dust and humidity to maintain good condition.

Where durable ballot boxes and voting screens are to be supplied to voting stations in more remote locations, it may be more cost-effective to arrange for secure storage on-site. This may be possible if locations such as schools or government offices are used as continuing voting stations.

Ballot Paper and Printed Ballots

Printed ballots must always be stored under tight security. Where special paper is used for ballot printing, such as distinctively watermarked paper, secure storage should be maintained. Special papers can have long production lead times.

Especially in systems where elections are not at fixed intervals; there may be a need to maintain considerable reserve quantities of special ballot paper stock to ensure supply. It is important that the storage conditions for this paper stock are monitored to ensure the material remains in good condition.

Packaging Materials and Equipment for Delivery

There are two basic methods of packaging materials for delivery:

1. A "pick and pack" exercise, where materials from each voting station are individually packaged according to a detailed inventory of supplies needed for each voting station* This may be appropriate where voting stations are of widely differing voter capacities and where wages and other costs are low compared to materials costs.
2. A standard pack with uniform quantities of materials (in one or more containers) for delivery to voting stations. Where voting station capacities are similar (particularly where there is a low limit on maximum numbers of voters to be serviced), this is the more effective method.

Even where voting station capacities vary widely, the provision of multiple standard packs to larger voting stations or the creation of a standard "normal" pack and a standard "reserve" pack will generally be more efficient than packing individually for each voting station.

In either case, it is more effective to pack a single item of material at a time, rather than attempt to assemble a complete package, or voting station inventory, before moving to the next one. In this fashion, materials can be packaged for voting stations progressively as they arrive from suppliers.

In addition, it will be more effective to deliver all supplies to a voting station in a single delivery. Multiple deliveries may make control more difficult for the voting station manager and will add to shipping costs, as well as increase demands on security at most voting stations.

Additional measures include:

• packages of election materials and equipment must be in containers of construction, size, and weight suitable for the method of shipment;

• packs should be sealed with security seals and/or security tape so that any tampering is immediately evident;

• packs must be labelled clearly as to their destination and contents.

Location of Packing

It is more effective where standard materials kits for voting stations are used, to place this material at central locations and this eliminates redundant handling in packing and transportation and removes the potential for errors. Whether individual packs are made up for each voting station or centrally or regionalised, packaging:

• avoids redundant handling and thereby reduce shipping costs and potential errors;

• provides better quality control.

Packaging Controls

It is good practice to ensure that strict accountability and audit trails are maintained during packaging in the following respects:

• implementation of a packaging sequence plan;

• marking off individual pack or voting station inventories materials as they are packed;

• reconciliations of accountable materials following packing;

• numbering and labelling packages;

• maintenance of packaging progress records;

• maintenance of strict security over the packaging site.

Health and Safety Standards

Packaging should comply with legal requirements for occupational health and safety. To ensure that materials are transportable to and within the various voting station environments, no individual package should exceed twenty kilograms in weight.

Storage After Voting Day

Before putting material into storage there is a need for the electoral management body to sort and categorize the material. It may be helpful when doing so to sort material into the following categories:

• materials that may be immediately destroyed;

• reusable materials and equipment, either to be placed in storage until the next election or to be used in the course of normal business;

• material to be maintained under strict security.

It would be usual for the electoral legislation to define election materials that must be maintained in strictly secure storage as well as the period for which they must be kept.

Additional materials such as election officials’ payment records and other financial, purchasing, or recruitment documentation may also have to be maintained securely for audit purposes. Security cannot be stressed enough especially if any component of the election including the results is to be challenged.

Liable Materials

Accountable voting materials should always be maintained under strict security until the period for challenge to election results has elapsed. These include:

• ballot papers, both used and unused;

• accountable ballot envelopes, both used and unused;

• applications for votes;

• voting day registrations;

• declarations of eligibility made by voters, for normal or special voting facilities;

• voters lists;

• materials supply records;

• ballot accounting and reconciliation records;

• voting station managers' and count centre managers' reports on proceedings;

• challenge and complaint records from voting stations and ballot counting centres

• documentation of ballot count totals and results as well as decisions on validity of ballots.

In election systems where retiring, dismissed, or deceased representatives are replaced by means of a recount of ballots from the last election, used ballot materials will need to be maintained under security for the term of the elected representative body.

Access to this material may be necessary for voter follow-up investigations, for research purposes, or in relation to challenges. For equity reasons, persons formally challenging aspects of the election would be allowed to view relevant accountable materials in the presence of election officials. However they the material should not be allowed to be removed for their own investigations, or altered or tampered with it in any way.

The electoral management body needs to ensure that all access to sealed packs of accountable materials must be strictly controlled, with each access recorded, and packages promptly resealed.

Unsealing and resealing should be endorsed on the packages, and, if new plastic tie seals are attached, a record maintained of their numbers. Maintaining a register of access to these sealed packages is useful with the "who," "when," and "why" of each sealing and resealing. Any material extracted from sealed packages must be held securely while being used for investigations. Packages of accountable materials should not be left unsealed if opened.

Asset Management

As election materials and equipment represents a considerable investment, accountability for election equipment and materials needs to be reinforced through imposition of thorough audit trails tracking to whom equipment has been assigned and asset control measures such as regular inventories.

An asset management plan should be developed for reusable equipment and materials, either for them to be put back into storage until the next election or to be made available for intermediate use by the electoral management body or other agencies.

Disposal Schedules

Destruction of used election-related materials should be strictly in accordance with approved disposal schedules. Some retainment periods may be specified in electoral or other legislation.

Comprehensive disposal schedules for all election materials should be developed by the electoral management body, if materials retainment periods are not subject to detailed public sector-wide direction. There must be defined accountabilities for materials destruction, and use of secure destruction methods for liable voting materials or materials containing personal information on voters or polling staff.

In addition to requirements for retainment of material for potential challenges, recounts, and audit purposes, disposal or destruction schedules for election materials should take into account issues such as:

• keeping examples of materials for the historical record and future reference;

• the time required for research and evaluation of election procedures and programs.

 Illegitimate ballots, for example, can be a fruitful source for information on the efficacy of current voter registration methods and future information campaign emphases.