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:
- 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.
- 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.
