better design, better elections

7/31/2019 Better Design, Better Elections

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BetterDesign,

BetterElections

B R E N N A N

C E N T E R

F O R J U S T I C E

B C J at New York University School o Law

L N h Wh Qb D C. Kb


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about the brennan center for justice

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about the brennan centers democracy program

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acknowledgmentsT h hk h h h k h ,

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. T b h C C Ab-N D-NC ( h://.). I b h B C J NYU Sh L , k h C b , h . T b , h, h h C . P h C k .


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about the authors

Lawrence Norden D D h B C D P. H h h z h, ,

. I 9, M. N Ch h Oh S S b ES C, h h h Oh

; h b h S h , h b Oh A E O. H h UbP A Ub I C L A h k .M. N h h h bk Te Machinery o Democracy: Protecting Elections in anElectronic World(A Ch P 7) b h Encyclopedia o American CivilLiberties(R 7). M. N Aj P h NYU Sh L, h hh h B C Pb P A C.

Whitney Quesenbery x h k , - j h N C I h O U. Sh h -h

bk: Storytelling or User Experience Global UX k bk b . Sh h b b h b h C P L hUb P A, h A B h S b . P h , h Ub C L, hh k h b h h b h h . Sh h H

F P h E A C h , h IIF Ab V h I.

David C. Kimball P S h U M-S. L.H h -h Helping America Vote (), Lobbying and Policy Change (9) WhyAmericans Split Teir ickets(). H - Controversies in Voting Behavior() hh bh, , b , bb. H h Ph.D. Oh S U. H h x b .


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Contents


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Key Points i

Introduction 2

2012 Election Recommendations 6Design and Usability: How Elections Have Fallen Behind 9

Ballot Design Checklist 10

Lost Votes: A Primer 12

Design and Usability Problems in 2008 and 2010 15

Problem 1: Ballot Layouts That Invite Overvotes or Undervotes 16

Ballots that Invite Undervotes: Failure to Differentiate

Between Contests, East St. Louis, IL., 2008 16

How East St. Louis 2008 Echoes Sarasota 2006 18Ballots that Invite Overvotes: Split Contest, Ohio 2008 19

Ballots that Invite Overvotes: Split Contests, New York City 2010 20

Problem 2: Poor Voter Instructions 22

Missing Instructions: Miami-Dade County,

Florida, 2008 and 2010 22

Confusing Instructions: Ohio, 2010 24

Problem 3: Unclear Voting Machine Messages 26

Inadequate Overvote Warnings: Florida 2008 and New York 2010 26

Problem 4: Difcult Absentee and Provisional Ballot Envelopes 30

The Evolution of A Better Absentee Ballot Envelope,

Minnesota After 2008 31

A Better Provisional Ballot Envelope: New York 34

How Usability Testing, Voter Education, and Corrective Action Have Saved Votes 36

Voting Both Sides of the Ballot: Sarasota And Duval Counties, Florida 2008 37

Voter Education About Straight-Party Voting Rules: North Carolina, 2008 39

Voter Education About Cumulative Voting Rules: Port Chester, New York, 2010 41

Corrective Action from the Chief Election Ofce, Ohio 2008 43

Endnotes 44


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Key Points

| BRENNAN CENER FOR JUSICE


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BEER DESIGN, BEER ELECIONS |

A b j b. A h b h b h b, hh .

Poordesignincreasestheriskoflostormisrecordedvotesamongallvoters,buttheriskis , - h .

Asdocumentedinthisreport,severalhundredthousandvoteswerenotcountedinthe2008

b k, h .

Teriseofabsenteeandprovisionalvotingsince2000hasonlyincreasedtheimportanceof

. W h h b, 4, h h b b j b h h k h h .

TerearesimplemeasureselectionocialscantakebeforeNovembertocuredesigndefects

b, h, .

Weencourageelectionocialstoreviewlostvotedatafrompreviouselections,conduct

b , k h x b b hNb .


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Introduction



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D b h j . I , h B C Jb Better Ballots h , h h h . T h h b.

T h k Better Ballots, h b h . Uk Better Ballots, hh E D b, h h , b b , . T q h b h b h.

Wh h h h ? I h x, . I , h b h b h b. M , 9 h , h b b h h b

h .

Wh h h b , b h k h b x b E D, h h .

The Bad News: More Mistakes, More Lost Votes

Better Ballotsx b b. D h h h h b h , b .

T b h b

. A k h b b b h b hb b j . W h h b, 4, h h b b j b h

h k h h .

P h k , b h k . S h h hh - h h b; b h h h q b b

h .

S h h b , h h h b h . T h . T b ; h , , h b hh x h . N b

b h h.


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4 | BRENNAN CENER FOR JUSICE

The Good News: Mistakes Can Be Fixed

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, , h b.

E j h , x b . T h b . Ex h 7, , , .

Ahh h b Better Ballots h b , h h h j b Nb h h Better Ballots. I, h .T k h h . F h

h h b h .

InJune2007,theU.S.ElectionAssistanceCommission(EAC)publishedEective Designs orthe Administration o Federal Elections. T b . T EAC bD D, AIGA (h z ), hh bh bk b .4

In 2008, the Brookings Institution published Voting echnology: Te Not-So-Simple Acto Casting a Ballot, hh h q , h b h h h h

.

Te Field Guides to Ensuring Voter Intent z h b h EAC NI S h (NIS) b , ,

k , b .

Better Ballots q b b hk b . A h hk h h .

A, h b h x h , k h . F x, D D h k

I, K, Nbk, N Yk, O, Wh. D M NYk h b h Eective Designs. Ub C L( j h Ub P A) h k j C, F,K, M, N Yk, Oh. Ex h h , h I A Ck, R, E O, (IACREO) h N A E O (h E C).


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I h x k, h b hNb. T h h h, b h h h h .


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2012 Election

Recommendations



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BEER DESIGN, BEER ELECIONS | 7

A z b h h x k, h h b k h .

1. Review Lost Vote Data

T h . E h h h b h Nb. Sh h h x h.

2. Create a Checklist o Design Best Practices

O h , hk b. Chk h -z, hbb h h h .

T hk:

F G E V I, b b Ub C L AIGAD D ./;

AIGA E D G ./---/;

C P L Chk ./b--/hk/.

W x h b h b hh h .

3. Conduct Usability Testing

N h hh b h -h x h h, h

b b . Ub b, h h . O , h h k .

S b :

T F G E V I, V , b b, h . ./;

T L E O Ub K h .b.//--k/;

Better Ballots b b ( -). b.///b_b/.


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4. Make Voters Aware o Potential Problems

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, b b b h , b q b . I h , b .

I h , b h h x .6 S, h h , b .

F , 9 b P Chh M h U M, Rh

Sh h U.S. M A W P, P A, J C,C Ck R h b b b , q b

h h b .7

W x h h b h

b 94.


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Design and Usability: How Elections Have Fallen Behind

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b, h h b hb . I, b h b b b h k h h

h b. B h b x h k b .

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A h b h q . T x h b b h . T C F P B

bh . T h - b j.

F b M, h M S N h b b M. A MSN h

-- h, , h k h h .

A h h, b b h h , h x, h .


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Ballot Design ChecklistBallot Instructions

Instructions should be brie, simple, and clear.

Paper ballots and forms:

Displaygeneralinstructionsinthetopleft-handcorneroftheballot.Placespecicinstructions

h, h h h b h b.

Letvotersknowthatiftheymakeamistake,theycangetanewballot.I h h .

Electronic ballots:

Displaystartupinstructionsinaneasy-to-spotlocationinthevotingbooth.

Placespecicinstructionsandrelatedactionstogether.Donotputallinstructionsatthe

b h b.

Instructvoterstoreviewtheirselectionsandprovideclearinstructionsonhowtochangea

h b.

All ballots:

Ininstructionsforwrite-invotes,stateplainlythatvotersshouldnotvoteforbothanamed

- h .

Writeinstructionsinanactivevoiceandinpositiveterms.(Fillintheovalforyourwrite-in , h h I h k, b h- .)

Usecommon,easilyunderstoodwords.(Movetothenextpageoftheballot,orMoveto

h x , h h N hh h b.)

Providethecontextoftheactionrst,thentheaction.([Cx] h h, [A] h h h .)

Placeeachinstructiononitsownline.



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Ballot Design

Dont split contests.

Listallcandidatesforthesameraceonthesamepageandinthesamecolumn.

Make sure ballot design is consistent.

Beconsistentinalldesignelements:font,textsize,headings,andthelocationof .

Placeresponseoptions(suchasll-inovals)totheleftofcandidatenamesorballot

q h.

Make ballots easy to understand visually.

Electronic ballots:

Placeonlyonecontestoneachscreen,atleastforfederalandstatewideraces.

All ballots:

Useush-lefttext,insteadofcenteredtext.

Displayalltextinmixedcase,ratherthanallcapitalletters.

Useasimpleandeasy-to-readfont,suchasArialorUnivers.

Useconsistentheadingsorshadingtoseparatecontests.

Boldand/orshadecertaintext,suchasocenames.

Usealegible,minimumtextsize,meetingVVSGrequirements,suchas12points.

Eliminateextraneousinformation(e.g.,candidateshometown,occupation,etc.),ordesignit

. Mk bk , h .

Give voters maximum exibility.

Electronic ballots:

Allowvoterstoselectorchangethelanguageoftheballotatanytimeduringthe

.

Allowvoterstochangetextsizeandcontrastlevelsandtogetaudiosupportatanytime

h .



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| BRENNAN CENER FOR JUSICE | BRENNAN CENER FOR JUSICE

Lost Votes: A Primer


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b h , :

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h hh h h , h h b bb b h b. Ub

h b h b , h h .

S, h b hh .Ib, h b h h hh , , , ( ) bh.

E z k h h hj. (I , h b b b.) A hh , b h b h b

Nb. B qk h b b .

Residual votes. R h b h b

h b .

R h --h-k , , . T , h, . V h k . B hh h b b h h h h h

h h . T :

Overvotes T k h . A h , k h h h .4 T h hh b h b h . U, j

h , h .

Undervotes T k h . Uk , k. I b h b h

k x . B b h - b k .

Uncounted domestic absentee and provisional ballots.T h b b b h , h h h h b. W h h

b, 4, h h b b jb h h k h h .6Wh h b h h b b , h khh h x b h .


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Design and Usability

Problems in 2008 and 2010


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F h , b b h b . S h h h b . Oh k h b , h k h .

A , h b . B x

I , Oh , N Yk .

Ballots that Invite Undervotes: Failure to Dierentiate Between Contests,East St. Louis, IL., 2008

I b k . N h b , b b k h h b x h b k . A h b ( ) h b E S. L, I.

Te Problem: A h b h h b E S. L , h h h x h U S .Ixb, b h h .

Te Result:Ab E S. L, I h U.S. S.

I h j , h , . A h h b,

h , h h .

Residual Vote Rate or U.S. Senator 17

E S. L 9.6%S 4.4%

Te Diference: More than twice as many lost votes in East St. Louis.

Problem 1

Ballot Layouts That Invite Overvotes or Undervotes


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More examples o

inconsistent layout

in Better Ballots, p. 40

2008 East St. Louis, ILRevised ballot


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How East St. Louis 2008 Echoes Sarasota 2006

T b E S. L h h b h 6 F hC D, hh S.

I h , Rb R. V Bh h b 69 . Y h4, b S C h . M x h b

h x hh b b : S C,h b h b h h h.9 A , S C .9 h , j . hb Ch C,h h , h b .

More examples



Sarasota County Charlotte County18


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Ballots that Invite Overvotes: Split Contest, Ohio 2008

T b b b Better Ballots h . T b

k h h b h .

T b k x h h b b P Bh C, F, h . I b h 6 , 9, b P Bh C, 4 h b, b h h

h h .T b b h . B b , h .

Te Problem: I , Oh b h .

Te Result:A ( h h h).

R b h h : .9%R b h b: .%

Te Diference: 50 percent more lost votes in the presidential contest.

More examples


LEFT

Auglaize County:

Split contest

RIGHT

Warren County:

No split


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Ballots that Invite Overvotes: Split Contests, New York City 2010

Te Problem: I N Yk C b . I h , h

U S S, h S. Ch Sh S. K Gb bh

-. B h b , Gb .

Te Result: T h Gb : b, h bh h .

O h Gb ,O h Sh ,67

Te Diference: 1,783 more lost votes (114 percent).

C h h h b h Gb b b b x h b h . N Yk A G A C, D, GOP B b C P. Y, h h , h h b.

2010 New York City


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B h N Yk C B E, h B C hh 6, h b , h hh N Yk C h . 4

N Yk S b q h h .

S , b h . Y, b b hN Yk .

F , D D, Ox D C., AIGA D D N Yk C b. T h hz, hh . I h N Yk

q h b , h q k h b. Ahhh k b h , h h h b h h b b . R h k h b .

Design concept, 2010 New York City


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V h b h q b IKEA. I h b . Y, b b h x . M, h h , k h, h h .6

I b b h :

I ;

I h h k b;

I h .

Missing Instructions: Miami-Dade County, Florida, 2008 and 2010

M-D C h h x hh h . A 6, h b bb h q h h h . B M-D C x h h F h h. A h hb b .

Te Problem: I bh , M-D b bh b - h h b. U, h

h , h h b. I, h:

Miami, 2008 Miami, 2010

Problem 2

Poor Voter Instructions


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Ahh h b h x h h (h b ), h h b

h k h q . I, h k h h . Y, h h b h h k k b? E , h bh h three additional h h h q k b h h .

Te Result: M-D h--k . hh

h h hh h h .7

Votes not counted due to overvoting in Miami-Dade County:I : 6, .7% . h

I : ,6 .% . h

Te Diference: 2.5 - 5 times more overvotes than the statewide rate o 0.11 percent.

Te Solution: S h h b . T b h h k k (.., k b) hq x h b h ( ).

T V C C. F b b , bh h z h --h-k U.S. S . I , M-DC h b b.

Citrus County, FL, 2008

More examples



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Conusing Instructions: Ohio, 2010

I , Rb R. Jh Kh h b D G.

Sk. I h . U, Oh

hh . T hh b h : h j h. T bb b h h b .

Te Result:I hh h B C b b ,9

x hh h b . I Ch C , h , h h h .

V *

County % Overvote Rate

L .6

A .

Ch .4

C .

S .4

Ah .4

Az .4

* O b

h. S,

h , hh h x.


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A , h b h . . Wh x . , Oh h h , .

Impact: Tousands o Ohio voters did not have their intended choice or governor counted.

Te Solution:T h b b h h .


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E b k , b h b k b h, . O b hh h , b k .

I h b, h b h , h h

(q b h H A V A) h h b bh b .

h, b h h h h h h h ( ) h h b h (

). S h h b , b h h . A h x .

Inadequate Overvote Warnings: Florida 2008 and New York 2010

Te Problem: T F ( M-D) , h N Yk , h h B C h .

T j (O V B) h x . I x h h h

h b .

I h h A b, k h hk, h b b h h , h b .

Te Result: I h F , h , h h h b h h h . I N Yk S , hB C h b , h h b h h h h , , 6, h . 4

Number o overvoted ballots

I F h ,

I N Yk , ()

I N Yk h , 6, ()

Impact: ens o thousands o votes not counted.

Problem 3

Unclear Voting Machine Messages


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New York message, 2008

Over Voted is election

jargon many voters do not

understand.

The name of the contest is

hard to read.

The message does not explain

that this vote will not be

counted.

The Dont Cast Return Ballot

button sounds negative and

a red warning color, but is the

correct way to correctthe ballot.

The Accept is positive, green,

and has a check, but means

the vote will be lost.

New York message,

for 2012

The message explains the

problem in plain language.

The middle of the message

clearly spells out what the voter

did, and what is allowed.

Text, read before the buttons,

exaplains what each button

allows the voter to do.

The buttons are clear,

simple words, with language

matching the explanation,

and no color cues.


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C h b ( h h)

q h . Sh h b b bNb . M, b b h . T , h, h h h h h h .

Reject overvoted ballots

T h j b. I h b h, h h b b h h h .

I , h h b h b h , k h h b b b j , h, b b . M j h j b

. I h F h h h , h z b .6 M h h h h j z. 7 I h b j b.

Use plain language or overvote warnings

A b h N Yk S B E

b . N h b , b h h h hh h h - h , h h x k. T b b . T h 7 h h h .

Wh h b j b , h hh k h b.9

More examples ohelpul voter educationmaterials on pages39-42 o this report


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Have clear manuals or poll workers and clear voter instructions

A , : , , . Wh h , h k b,b . T b h x h h h b b k.

C h, h h h -, bh,

h h q b h k b , b, h bh b h b x h

x k h b.


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T b b h x . B h h k h h b. T h b h h h b b, hh h h b b E D.4

B b b, b b, b , b h

b b h E D.

W h , b , , b b b h 4 h b . T b , h ,

b , ,.4 T h h h , q , h b .

B b b h h b , b h b b h . Sh b h h h H A V A .4 W h , h , b b h h b .44

Problem 4

Difcult Absentee and Provisional Ballot Envelopes

19.12 %

2010

17.70 %

2008

14.62 %

2006

12.10 %

2004

Percentage o Absentee Ballots In Recent Elections


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O x h b h h , h , h b b q h .

The Evolution o a Better Absentee Ballot Envelope, Minnesota ater 2008

A h , h M S S b h b b h h . T h

h b b , b h h h b . T x h x k h .

Problem: A b h , h h h h b b h , k q

h b . , h b b h h b . T U S b A Fk N

C b j . M h h b, ,96 bb, b h .4 I , . ( h ) b b j b h b b .

Te Result: I 9, h M S S k h b, , x Ub C L h b b .A h h, h x h h h h b b , h h . T h , h bk h X.

Minnesota, 2008 Minnesota, 2010


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F h b . I , ,7 b b, 7 h , h h h .46 Wh h , b b M, h b h b,47 h

h h h h , b b .

Number o absentee ballot envelopes not signedI 96 .%I 7 .6%

Te Diference: Drastic reduction in the number o voters who missed the signature line.

Continuing work: E hh h b b j b , b : h h h

. S h b b j h . F, h h , h h b j b h

.4 T M S S h , h h h b b .

P h h h h h q , k h z, b h h . F , M h h hz h h h

b b. T h , h x .

M b k h b q b, h bh h h b .W k h b q b b.


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Minnesota, 2010 Minnesota, 2012


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A Better Provisional Ballot Envelope: New York

Te problem: I h , N Yk S h h hh

b j h .49 I , , b (

b N Yk), h , j b h h h ( h b). I , h j b h .

Te Result: I , h N Yk S B E k h b j b h b .

T b b h j Nb, h h . B h . A h:

T , h ;

Ch k h q ;

T , h ;

T h b h .

New York, 2008


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New York, 2011


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How Usability Testing,

Voter Education,and Corrective ActionHave Saved Votes

I h - , b b . S, b h h , , . B , h h x

b k b , h h h .

I h h h b , , h b h .



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Voting Both Sides o the Ballot: Sarasota and Duval Counties, Florida 2008

S h h b . Ub S D C h

h h k - b , b b ,

b b .

I Sb , S b h . E S D C h B C Ub C L h . T j h b bh

h h j h A , b h b h b h . T h VOE BOH SIDES OFBALLO h b h b h b.

Duval, FL, 2008 - Before testing


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A h h b , h bh h b h h , k hh b h b .

Solution: U x, h b , just belowh h h b. T EAC Eective Designs or the Administration o Federal Elections h b.

Results: E h h h . T D S C C A (h h bk D S ) . . I h F h h , h 4.7 . T 4.

D S q , h h .

D S R V R C A .%R h 4.7%

Te Diference: 28,000 ewer lost votes.

Duval, FL, 2008 - After testing


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Voter Education About Straight-Party Voting Rules: North Carolina, 2008

M b Nh C h

h h , b .

Nh C, k h , h h b h h-b h k. Sh- qk , -b . B b h . A Nh C, h- k: h- (-) doesnot k k h .

Ph , h h- k bh, Nh C hh h x b h h .I 4, . h , b h h. I , h Nh C b h , h

h b. TeNew York imes h bb.4 T b b h k h h . E h hh h b h , ; bh j h Ob h . T Nh C S B E k b b h h k ,

h h b h h .

North Carolina, 2008

Results:A h b h . T

h j . , h h h . 4. Wh h b bb h h h b 4 , 6 k h h h b.

Residual vote rate in the presidential contestI 4 .%I .%

Te Diference: More than 50,000 votes or president saved in 2008.

M b Bk Ob Jh MC: j 4, .


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North Carolina, 2008


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Voter Education About Cumulative Voting Rules: Port Chester, New York, 2010

I , h V P Ch, N Yk h h V B .

T h q bh H Sh-

z.7 U h , hh h x h h, h .

T q x b b h h

.9 I , Ub C L b h bh h bh h b.

T b h hh h , h h . I , h hb h h h ( h ) b h h

h .

A , H V h C V b h b, h , h h kk h . T b , h , h .

Results: T x 6 P Ch h . M h h h b h , H , h b h. I , j h b h h . M h

9 x h h . E b h. T P Ch h b h .6

Te Diference: Low rates o residual votes, even with a new voting method.


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Port Chester, NY, 2010


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Corrective Action rom the Chie Election Ofce, Ohio 2008

A b Oh S S h h

b h h h .

A 9 h , h h b. Wh b h B C, h h h b h Oh S S .6 Wh h h b, h

b b , h h not . I h , h j b h .

T x h b q b h h

k. I h h , h b , k .

Te Diference: Tousands o more votes or president counted in counties that ollowed guidance.


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Endnotes



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T . W h , b h j h , hh b j . U.S. Election

Assistance Commn, 2008 Election Administration and Voting Survey 7-, b. , 4A, 4B, 4C, , 6A, 6B (9) (h EAVS); U.S. Election Assistance Commn, 2010 Election Administration andVoting Survey 38-58, b. , A, B, C, 4, A, B () (h EAVS). F h

h , h b h j b b: , , , , b , b , , h , b . F b, h b h : /b/b, b , . O b . , h b h q: h b b b b h b b b . W h b. P Ch S MI h EAC x h h.

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4 H A V A (HAVA) , 4 U.S.C.A. 4 (W ).

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46 EAVS, supra , 4-44 b. A. T EAVS 6 b b M, b h 6 .

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4 D-F-Lb Mk D Rb E b 9, , x h b b b j M . Nb , G E R, M. S S, h://....// ( J , ).

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E, Tis Years Butterfy Ballot, N.Y. imes, O. 7, , A6; L B, N. Carolina Ballot Design May CutVotes Cast or President, Raleig News & Oserver, O. , , h://.h.////47/--b---.h; B Sh, Straight icket, Plus One, Politico, O. , , h://../b/bh//Sh_k__.h.

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