The Slate
August 10, 2004
Provisional Ballots Raise New Questions
By Erica Werner
Associated Press
WASHINGTON
- Tens of thousands of Americans will vote in November using a
special kind of ballot that must be counted by hand, potentially leaving the
outcome of the presidential election in doubt as elections officials argue over
each vote.
Sound familiar?
Although it might stir memories of hanging and pregnant chads from the 2000
election, the "provisional ballot" is a new national voting
requirement meant to ensure no voter is turned away. For the first time,
provisional ballots will be available at precincts nationwide for those who
can't find their names listed at the polls.
Yet, just three months before what looks to be another extremely close
presidential election, states don't agree about how to count these ballots. Some
localities are worried they won't have time to tally them, and voting rights
advocates fear many won't be counted at all.
"They do have the potential to be the chad of 2004," said Doug
Chapin, director of the Election Reform Information Project, a nonpartisan group
that studies elections. "Given that you have to basically ascertain the
validity of a ballot, ballot by ballot, you open yourself up to the same kind of
high-stakes politicization of the process we saw in Florida in 2000."
The Help America Vote Act of 2002 mandated provisional ballots. The idea was
to prevent properly registered voters from being turned away from the polls
because of clerical errors with registration lists or other problems. Civil
rights groups estimate that happened to 1.5 million or more voters in 2000.
Under the new law, anyone who claims to be registered in the jurisdiction
where they try to vote but whose name is not listed must be given a provisional
ballot. If the voter's registration information is verified later, the ballot is
included in the total for the election.
No one knows how many provisional ballots will be cast in November, in part
because only about half the states allowed such ballots or something similar in
2000. It will easily be tens of thousands nationwide. In Los Angeles County
alone, 44,000 were cast in the March primary.
But verifying voter eligibility and hand-counting the ballots takes a long
time. Some states, by law, give counties just days to finish. That has election
administrators contemplating a nightmare scenario: What happens if the number of
provisional ballots is bigger than the apparent margin of victory on Election
Day? The outcome could hang in doubt while election officials rush to beat the
clock.
"It would be like Florida in 2000, basically," said Thomas Leach,
spokesman for the elections board in Chicago, where voters cast 5,914
provisional ballots in the March primary.
"We've talked about this all year, the fact that there could be a big
delay in the counting of these and the determination of who the victor
was," Leach said. "It was a task just going through the 5,914
applications. ... If you've got 50,000, it can overwhelm you."
Election officials say it could happen. In fact, it already has.
In a Utah city council primary last year, the outcome hinged on 31
provisional ballots.
Kansas has used provisional ballots since 1975. "Every election cycle,
there is a race somewhere in the state of Kansas decided by provisional
ballots," said Secretary of State Ron Thornburgh.
Adding to the potential for confusion, states differ over how and when
provisional ballots are counted.
Some, like California, New Mexico and Pennsylvania, count at least the
statewide and national races on provisional ballots cast in the wrong locality.
Others, including Florida, Illinois and Indiana, don't count a provisional
ballot at all unless the voter is in the right precinct.
"That is the problem with provisional balloting under the Help America
Vote Act," said Maria Valdez, midwest regional counsel for the Mexican
American Legal Defense and Educational Fund, which is considering a lawsuit on
the grounds that voters aren't treated equally.
"It really could look like it's trying to open access, but because it is
based on a state-by-state determination, it really could restrict access,"
Valdez said.
Valdez and other activists cite Chicago's primary. Of the 5,914 provisional
ballots cast, only 416 were ever counted. A total of 1,294 came from voters in
the wrong precinct, 2,461 from voters who didn't fill out an affidavit properly
and 1,461 from people who could not be verified as registered voters, according
to Chicago's elections board.
Another factor is time. In Illinois, officials have 14 days to tally
provisional ballots, while in California it's 28 days. Florida and Georgia give
elections officials just two days, raising the possibility of another court
battle if time is running out and ballots that could tip the election remain
uncounted.
Some Florida elections officials are confident they'll be able to validate
and count any provisional ballots within the allotted time, but others aren't so
sure.
"It's an incredible problem," said Ion Sancho, supervisor of
elections in Leon County, Fla. "But that's what the legislature told us to
deal with, so that's what we deal with."
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