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Sponsored by: City Clerk
CITY OF SEWARD,ALASKA
RESOLUTION 2020-041
A RESOLUTION OF THE CITY COUNCIL. OF THE CITY OF SEWARD,
ALASKA, RECOMMENDING THE KENAI PENINSULA BOROUGH
ASSEMBLY ENACT ORDINANCE 2020-24 WHICH WOULD PROVIDE
FOR VOTE BY MAIL EI.EC:TIONS, FOR MORE TIME BETWEEN A
REGULAR ELECTION AND A RUN-OFF ELECTION, AND TO
REMOVE PROPOSITION STATEMENTS
WHEREAS, in February, 2019, the Kenai Peninsula Borough (KPB) established the
Election Stakeholders Group (ESG) to increase voter participation by developing sustainable
election processes that maximize accessibility and inclusivity; and
WHEREAS, the City of Seward was represented on the ESG by Vice Mayor Sue
McClure, former Interim City Manager Jeff Bridges, and current City Manager Scott Meszaros.
City Clerk Brenda Ballou participated as a subject matter expert, and
WHEREAS, on July 26, 2019, the ESG approved their final report and
recommendations to the KPB with six final recommendations that included: 1) implementing
a vote by mail hybrid structure (VBMS), 2) an education and outreach campaign, 3) amending
the voter pamphlet process, 4) appointing service area board representatives, 5) eliminating
proposition statements, and 6) adopting a Borough Resolution regarding ranked voting for
run-off elections; and
WHEREAS, the ESG's number 1 recommendation was for the KPB to transition the
election process from the current polling site structure to a VBMS which is consistent with the
guiding principles adopted by the ESG, including: maximizing accessibility and inclusivity in
the election process; promoting efficient use of public resources; increasing voter satisfaction
and confidence in Borough elections; and ensuring the security and integrity of the voting
system-, and
WHEREAS, on September 23, 2019 the Seward City Council approved Resolution 19-
086, supporting KPB Resolution 2019-047 to recognize the recommendations of the KPB ESG
and directing staff to explore implementation of the recommendations, and signing Kenai
Peninsula Borough Joint Resolution 2019-001, and
WHEREAS, the KPB Clerk's Office entered into a contract with Resource Data in
December of 2019 for the purpose of preparing a feasibility study and cost analysis, which
concluded that the KPB would be able to successfully transition to area-wide vote by mail
elections; and
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CITY OF SEWARD,ALASKA
RESOLUTION 2020-041
WHEREAS, in December, 2019, the KPB Municipal and City Clerks began meeting
monthly to consider the VBMS and how to develop a unified process that meets the needs for
each municipality; and
WHEREAS, the City of Seward shares roughly 1,800 voters with the KPB, and
engaging in a joint effort with the KPB Election process will be a more convenient process for
the shared voters: and
WHEREAS, the KPB has been using a VBMS successfully in E of its 28 precincts
(Cooper Landing, Hope, Fox River, Moose Pass, Seldovia/Kachemak Bay, and Tyonek) for over
20 years, and
WHEREAS, KPB Ordinance 2020-24 addresses the ESG recommendations regarding
the removal of advocacy statements for or against ballot propositions and also the Borough's
restrictive timeline for run-off elections, and
WHEREAS, the current global health pandemic further reinforces the need to
implement a VBMS election process, to allow for greater flexibility and voter participation
when events make it impractical or difficult for borough residents to safely vote at a
traditional polling site.
NOW, THEREFORE, BE IT RESOLYED BY THE CITY COUNCIL OF THE
CITY OF SEWARD, ALASKA that:
Section 1. The Seward City Council hereby recommends the Kenai Peninsula Borough
Assembly enact Ordinance 2020-24, which amends the borough election process in ways that are
consistent with the recommendations and guiding principles adopted by the Election Stakeholder
Group in July, 2019.
Section 2. The Seward City Council hereby recommends a Vote By Mail System be
implemented to promote greater flexibility and voter participation when events make it
impractical, unsafe or impossible to vote at a traditional polling site.
Section 3. Upon the enactment of Kenai Peninsula Borough assembly Ordinance 2020-
24, the Seward City Council will take necessary steps to amend the City's election processes
to implement a Vote By Mail Hybrid System for the City of Seward, in conjunction with the
Kenai Peninsula Borough.
Section 4. This resolution shall take effect immediately upon adoption,
II CITY OF SEWARD, ALASKA
RESOLUTION 2020-041
PASSED AND APPROVED by the City Council of the City of Seward, Alaska, this
26`h day of May, 2020.
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AGENDA STATEMENT
Meeting Date: May 26, 2020
From: Brenda Ballou, City Clerk
Agenda Item: Recommending KPB Assembly Enact Ord 20-024 for By Mail Elections
BACKGROUND & JUSTIFICATION
In February, 2019, the Kenai Peninsula Borough (KPB) established the Election Stakeholders
Group (ESG) to increase voter participation by developing sustainable election processes that
maximize accessibility and inclusivity.
The City of Seward was represented on the ESG by Vice Mayor Sue McClure, former Interim
City Manager Jeff Bridges, City Manager Scott Meszaros. City Clerk Brenda Ballou participated
as a subject matter expert.
On July 26, 2019, the ESG approved their final report and recommendations to the KPB with six
final recommendations that included: 1) implementing a vote by mail hybrid structure (VBMS),
2) an education and outreach campaign, 3) amending the voter pamphlet process, 4) appointing
service area board representatives, 5) eliminating proposition statements, and 6) adopting a
Borough Resolution regarding ranked voting for run-off elections.
On September 23, 2019 the Seward City Council approved Resolution 19-086, supporting KPB
Resolution 2019-047 to recognize the recommendations of the KPB ESG and directing staff to
explore implementation of the recommendations, and signing Kenai Peninsula Borough Joint
Resolution 2019-001.
PURPOSE& INTENT
The Borough clerk's office entered into a contract with Resource Data in December of 2019 for
the purpose of preparing a feasibility study and cost analysis, which concluded that the KPB
would be able to successfully transition to area-wide vote by mail elections. KPB Ordinance
2020-24 addresses the ESG recommendations.
RECOMMENDATION
Approve Resolution 20-041 and send a copy of the signed document to the KPB Assembly.
165
Vote by Mail Feasibility Study
Kenai Peninsula Borough
April 29, 2020
Developed by Dennis Wheeler and Kami Fitch
►''� Resource
Data
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Table of Contents
1.0 Background and Purpose..................................................................................................... 1
1.1. Key Differences Between Poll-based Elections and Vote by Mail Elections..................... 1
1.2. Out of Scope ................................................................................................................... 1
2.0 Assessment and Recommendations.................................................................................... 2
2.1. Overall Assessment......................................................................................................... 1
2.2. Prepare for Vote by Mail .................................................................................................. 1
2.2.1. Update Legislative and Administrative Rules to Support Vote by Mail................................. 1
2.2.2. Acquire a Mail Sorter Solution...............................................................................................3
2.2.3. Prepare Election Center Site.................................................................................................7
2.2.4. Develop an Automated Method for Assigning Ballot Styles..................................................9
2.2.5. Collect Initial Set of Reference Signatures.......................................................................... 12
2.3. Prepare Election.............................................................................................................13
2.3.1. Education and Outreach...................................................................................................... 13
2.3.2. Identify"Undeliverable" Voters Before the Election ............................................................ 14
2.3.3. Design Envelopes................................................................................................................ 15
2.3.4. Obtain and Process Voter List............................................................................................. 18
2.4. Print and Mail Ballot Packages .......................................................................................21
2.4.1. Print Ballots..........................................................................................................................21
2.4.2. Print Envelopes....................................................................................................................21
2.4.3. Build Ballot Packages (Including Inserts)............................................................................21
2.4.4. Mail Ballot Packages to Voters............................................................................................22
2.4.5. Re-issue Ballot Packages (Temporary Addresses and Replacement Ballots)...................22
2.4.6. City Participation..................................................................................................................23
2.5. Voter Support .................................................................................................................23
2.5.1. Call Center...........................................................................................................................23
2.5.2. Vote Centers........................................................................................................................24
2.6. Process Returned Envelopes .........................................................................................26
2.6.1. Pick Up Returned Envelopes...............................................................................................26
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2.6.2. Scan and Sort Returned Envelopes....................................................................................29
2.6.3. Verify Signatures .................................................................................................................31
2.6.4. "Cure" Ballot Return Envelopes...........................................................................................32
2.6.5. Open Ballot Return Envelopes/Prepare Ballots for Scanning.............................................32
2.7. Store Election Records...................................................................................................33
2.7.1. Providing Election Information to the State.........................................................................33
2.7.2. Dispose of Records .............................................................................................................34
2.8. Staffing Requirements....................................................................................................34
3.0 Summary of Estimated Costs..............................................................................................35
3.1. Assistive Technology Cost Comparison..........................................................................37
3.2. Total Recurring Cost Estimate........................................................................................37
Appendix A: Sample Layout of Records Center ........................................................................38
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1 .0 Background and Purpose
The Kenai Peninsula Borough (KPB) currently holds poll-based elections (except for 6 small
precincts that are done as vote by mail). KPB is looking at changing to an all vote by mail format
for future elections. This feasibility study is intended to assess KPB's ability to transition to vote
by mail, what tasks would be required, and to provide high-level estimates of costs.
. A . Key Differences Between Poll-based Elections and
Vote by Mail Elections
The primary differences between poll-based elections and vote by mail elections are two-fold:
the transactions of ballot delivery to the voter and ballot return by the voter.
In a poll-based election, these transactions occur predominantly at the voter's polling location
and happen largely on a single day: Election Day. The unmarked ballots are sent out to the
polls, the voters appear at the polls and vote, and the ballots are scanned at the polls. The
scanner results are delivered to the Election Center in a variety of ways. These days, they
mostly arrive on the memory cards pulled from the scanners.
In a vote by mail hybrid, ballots are delivered to the voter's mailing address, the voter can vote
at home, and then deliver the ballot back by mail or by dropping it off in a secure drop box or at
designated vote centers. The voter typically has a few weeks to vote and return the ballot.
Returned ballots are processed and scanned at a central location. This process is not a new
concept, including for KPB, as it is just a more streamlined and wide-spread form of absentee
voting by mail, which has been around for a very long time.
While the differences between poll-based elections and vote by mail elections come down to
these two main aspects, these create a number of points where processes need to change to
support vote by mail on a large scale. This study focuses on these aspects.
1 .2. Out of Scope
The following items are considered out of scope for this study:
• Tasks completed using KPB's existing Election Management System (e.g., ballot
creation, scanning, and tabulation), except for recommendations related to preparing the
ballots to be scanned and the timing of scanning ballots as these aspects are different
with vote by mail.
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• Detailed and definitive cost estimates. While we have provided estimates, which are
based on general assumptions and include some sampling of known vendors, more
precise estimates would require that KPB make a number of business decisions.
2.0 Assessment and Recommendations
This section discusses various aspects of a vote by mail election in greater detail, describing
various aspects that KPB will need to consider or prepare for and making recommendations.
We have organized the information around the general workflow of a vote by mail election, as
illustrated by the diagram on the following page.
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1 . Overall Assessment
Based on our review, we believe that KPB will be able to successfully transition to area-wide
vote by mail elections. However, to be successful, KPB should complete a number of significant
tasks before making this change, as identified in Section 2.2 Prepare for Vote by Mail. In
addition, in the lead-up to its first vote by mail election, KPB will have many decisions to make, a
variety of equipment to purchase, and procedures to define or change.
The transition to vote by mail will also require a significant amount of initial investment to
acquire the equipment and other materials needed to support vote by mail. Within this study, we
have provided estimates (either in dollars or hours as appropriate) to give KPB a rough idea of
costs. In most cases, we've estimated towards the high end to allow for a discussion of what a
maximum cost might look like. But we would expect KPB and its cities will be able to leverage
current resources to bring these costs down as they navigate and implement voting by mail.
Keep in mind these estimates are a rough order of magnitude and are based on many
assumptions. Actual costs may vary greatly depending on choices KPB makes and market
rates at the time.
Given the amount of work required to transition to vote by mail elections, we believe that KPB
can only make this change in time for the October 2020 election if they use manual processes
for mail sorting and a simplified signature verification process or leverage the election
equipment owned by the Municipality of Anchorage (MOA). Both of these options will introduce
some complexity into the election process, with a net effect of slightly delaying final election
results. This is manageable, especially if certain KPB Code changes are made, as
recommended.
2.2. Prepare for Vote by Mail
Before completing its first vote by mail election, KPB will need to complete several one-time
tasks in preparation.
2.2.1 . Update Legislative and Administrative Rules to Support Vote by Mail
KPB is a second-class borough under State statutes, with 6 incorporated cities within its
boundaries (Homer', Kachemak City, Kenai, Soldotna, Seldovia, and Seward).
Most borough and city codes will need to be modified to allow voting by mail. Although borough
and city codes already include absentee by mail voting as an option, absentee voting as
currently structured is too cumbersome for broad, area-wide use as it requires a voluntary,
' We understand Homer, Kachemak City, and Seldovia run their elections largely separately, but
for purposes of this study, we will assume that they would choose to be included.
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annual application process by each voter. Keeping this requirement would be very costly and
unnecessary with a full vote by mail program. In addition, some codes may restrict when a voter
can vote absentee by mail. For example, under current KPB code, a voter can only vote
absentee if the voter is either in a precinct approved for voting by mail (KPB 4.50.015) or cannot
reach the polls on election day (KPB 4.80.030).
Other election attributes of the current voting process should also either be changed (e.g.,
deadline dates) or eliminated (e.g., code sections that speak to voting at a polling location). With
respect to deadlines, most current deadlines need to be reviewed with an eye towards ensuring
there is sufficient time to complete all the steps needed early enough that ballot packages can
be sent 2-3 weeks before Election Day.
KPB should consider the following areas for code changes:
• Requirements of the ballot return envelope (overall design and appearance, flap/no flap,
identifiers, signatures, etc.)—refer to Section 2.3.3: Design Envelopes for additional
discussion
• Deadlines and other dates (e.g., notice of election, candidate declaration, candidate
withdraw, opening of Vote Centers, and similar dates that might be affected by the
longer process involved in preparing a vote by mail election)—refer to Section 2.2.1.1:
Changes to Deadlines for additional discussion
Note: The preparation process for vote by mail is approximately 1-2 weeks longer
than in a poll-based election.
• Date of runoff elections. Runoffs are often right on the heels of the regular election. This
very short window should be increased by a week to accommodate creating and mailing
the ballot packages. See AS 29.26.060(c)
• Exclusion of"undeliverable" addresses from the mailing list of voters—refer to Section
2.3.2: Identify "Undeliverable" Voters Before the Election for additional discussion.
• Drop box locations as an allowable method of receiving voted ballots—refer to Section
2.6.1.2: Drop Boxes for additional discussion
• Vote Centers to help voters (some aspects of this are already performed by locations
used for absentee voting in person)—refer to Section 2.5.2: Vote Centers for additional
discussion
• Rules for how a voter might correct their vote on the face of the ballot
• Rules for how a voter might cure their returned envelope and the deadline for doing so
(e.g., if the voter forgot to sign their return envelope, can they cure it, and if so, how and
when)—refer to Section 2.6.4: "Cure" Ballot Return Envelopes for additional discussion
2 For example, designing and printing ballots, assigning ballot styles to the State voter list, and
preparing ballot packages for each voter.
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• Rules for accepting ballot return envelopes (matching signatures, voiding envelopes,
etc.)—refer to Section 2.6.2: Scan and Sort Returned Envelopes for additional
discussion
• Rules for when KPB can begin scanning (but not tabulating) ballots3
• Any new or modified procedures that by law must be approved by the Assembly or city
councils
Ideally, KPB and the cities within it will adopt mirrored code provisions as much as possible to
support streamlined and consistent rules on voting by mail.
2.2.1.1. Changes to Deadlines
A key decision KPB will need to make is the target time between mailing the ballots to voters
and Election Day. Typically, this voting period (i.e., the time between mailing and close of the
election) is about 3 weeks4. Once this time period is decided, KPB will need to work backwards
to set other deadlines, making sure sufficient time is allowed for completing all the preparation
tasks (refer to Section 2.3: Prepare Election for more details). Typically, the preparation process
in a vote by mail election is approximately 1-2 weeks longer than a poll-based election. Because
of the additional printing and processing required of KPB's printing/mailing vendor in a vote by
mail election, KPB will need to work with this vendor to understand what is feasible for them
when determining what deadlines/dates to update in the Code.
2.2.2. Acquire a Mail Sorter Solution
When doing a vote by mail election, a key decision is how to process returned ballot envelopes,
which includes tasks such as the following:
• Identifying the ballot return envelopes in order to determine whether they are valid for the
current election and to track which voters have returned ballot envelopes, ensuring that only
one ballot is accepted from each voter
• Sorting ballot return envelopes into groups (e.g., by status, by precinct) based on KPB's
chosen requirements
• Verifying the voter's identity by validating the voter's signature on the ballot return envelope
3 Most jurisdictions using vote by mail begin scanning returned ballots before 8:00 PM on
Election Day—but then tabulate results only after that deadline. By allowing scanning in
advance, an initial set of results can be made available shortly after"polls close" on Election
Day.
4 Currently, KPB 4.50.015A.1 (which discusses permanent absentee locations) states that
"ballots shall be sent to each registered voter in the precinct on or before the 15th day prior to
the election."
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• Tracking the "cure" process when there is a problem with the voter's ballot return envelope
(i.e., allowing the voter an opportunity to resolve the problem so the ballot can be accepted)
Typically, government entities purchase a specialized election sorter to support this processing.
In addition to doing basic sorting, these machines also include software for the tracking,
reporting, and other functions necessary to support elections.
We made some preliminary inquiries with vendors about options that would be approximately
the right size for KPB.S Because these sorters are specially designed for elections, pricing for
sorters that include signature verification software is typically well above $100,000. While KPB
may be able to get reduced pricing through a competitive bid process, KPB should expect to
pay more than $100,000 for a sorter (plus ongoing annual support and maintenance). In
addition, sorters often require multiple months lead time before being ready for delivery.
Therefore, if KPB wants vote by mail in October 2020, it needs to immediately engage in the
procurement process, and it may be difficult to find a vendor who can deliver a sorter within that
timeframe.
KPB could choose to purchase its own sorting equipment, but does have other options
available, which would have lower up-front costs and quicker initial implementation:
1. Process ballot return envelopes manually: With this solution, the ballot return envelopes
would not be mechanically sorted. Election workers would need to manually look up each
voter to review the signatures, verify whether the voter had already returned a ballot, etc. If
this approach were used, KPB would need a method to help with tracking, which might
require building a custom software tool.
Manually processing ballot return envelopes is potentially feasible because of the relatively
small number of voters in KPB (approximately 50,000). If the number of registered voters or
voter turnout increases substantially, manual processing would become increasingly difficult.
2. Use MOA's sorter, at least in the first year: MOA has indicated they are willing to assist
other jurisdictions through use of their sorter and Election Center. MOA is offering its
facility and systems at no charge. Because this sorter can run approximately 18,000
envelopes an hour, KPB could run the bulk of their envelopes and complete signature
verification within 2-3 days. However, if KPB ran their envelopes in bulk at the end of the
election, this would affect the policies and processes for giving voters an opportunity to cure
any problems with their envelopes (e.g., no signature, no reference signature, unmatched
signature—refer to Section 2.6.4: "Cure" Ballot Return Envelopes for additional information
5 Potential vendors include ES&S, Fluence Automation, Runbeck Election Services, and Pitney
Bowes. Based on our tour of the facilities, any sorter KPB is likely to purchase would fit within
the identified space. Generally, powers requirements for these sorters are not unusual and likely
will not exceed a 50 Amp 220 circuit.
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about "curing"). These are solvable issues, which could be partly addressed in appropriate
Code changes.
The following table compares some aspects between the three alternatives:
• Highest Low to Medium Low
(> $100,000) (depending on
tracking solution)
• - - Longer (2020 Quicker (2020 Quicker (2020 possible)
unlikely) possible)
• - KPB KPB MOA
• Lowest Highest Medium (staff in KPB and
MOA)
• More time consuming Most or all envelopes
' - More error prone have to be transported to
Anchorage
Location of KPB staff
Because it is a better long-term solution, we recommend that KPB select and purchase an
election sorter6. In the long run, KPB will be able to more easily manage elections by having a
sorter located at the KPB Election Center.
In order to select the sorter that best meets their needs, KPB should begin the selection process
by defining their requirements for the sorter and the software that comes with it. As part of this
process, KPB will need to make decisions about potential system functions, including the
following:
• Importing voter data and signatures, including updating voter data?
• Exporting voter data for use by the printer$ and Vote Centers
6 If KPB needs to do a vote by mail election in 2020, the new sorter will likely not be available,
and KPB would need to use one of the alternative approaches for 2020.
Refer to Section 2.3.4: Obtain and Process Voter List for more information. In MOA's
experience, the printing and mailing vendors need initial voter information well in advance of
when the State has final timely voter updates entered in the voter registration database.
Therefore, KPB will need to process 2-3 versions of the voter list before ballot packages are
mailed.
8 Because of there may be 2-3 versions of the voter list, the sorter may need include
functionality for generating a file that shows just changes in the voter list. In addition, if KPB
excludes some voters from being mailed a ballot package initially (e.g., those designated as
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• Tracking the need for replacement ballots and/or temporary addresses
• Sorting ballot return envelopes, including conditions under which envelopes should be out-
sorted (e.g., invalid ID, potential duplicate, etc.)
• Capturing digital images of envelope signatures and/or the entire envelope
• Verifying voter signatures, using either an automated process and/or a manual review
• When there is a problem with a ballot return envelope, supporting the "cure" process
• Providing voters with information about whether their ballot has been received
• Reporting and exporting information to support and validate ballot return envelope
processing
• Exporting digital signature images for accepted envelopes (for loading to the State voter
registration database for use as future reference signature images)
In addition, KPB will need to define their technical requirements for the sorter (e.g., processing
speed, scalability, physical space, operating system/software, security, number of users who
can simultaneously verify signatures/perform other functions on the equipment). During the
selection process, KPB should evaluate the possible sorters against the defined requirements.
Ideally, KPB will be able to see a demo of each sorter being considered (and its software)
before making a final decision.
The sorter KPB selects will affect the details of many other aspects of the election. For example,
the sorter may have specific requirements for the ballot return envelopes or the format of the
imported voter list. In addition, how the sorter handles signature verification and curing
envelopes will affect the specifics of KPB procedures in these areas.
Nate. A(juitivr,ai tactvrs an(j consi(jerations wan tree sorter are referenced in subsequent
sections.
When considering the costs for acquiring a sorter, KPB needs to factor in staff time required for
the following activities:
• Defining requirements
• Evaluating and selecting potential solutions
• Working with the vendor to implement the sorter, which will include testing
• Developing policies and procedures for processes involving the sorter
These activities will likely require at least a few hundred hours of staff time.
Based on our tour of KPB facilities and our understanding of election sorters available, KPB's
facilities are adequate, and the requirements KPB is most likely to have are generally features
available with sorters currently in the marketplace.
undeliverable), functionality to exclude voters from the output based on a set of criteria may also
be needed.
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Irepare Election Center Site
KPB has identified that their Election Center will be at the KPB central offices, with ballot
tabulation being done in the main offices and envelope processing in the Records Center, which
is in a different building. While the spaces identified should be adequate for the election, KPB
should make changes to enhance security in these areas.
2.2.3.1. Alarms and Cameras
While KPB will be able to leverage the security features it already has in place, we recommend
adding some additional security measures in the form of more cameras and alarms.
KPB should have a few cameras for viewing election processing, including in the envelope
processing area and the ballot tabulation area. Ideally, the cameras will provide a feed to a
monitor for public viewing when the public is not allowed to be in close proximity to the activity.
The feeds for recording should record upon detecting motion, even in very low lighting, and
have sufficient storage on a secure drive. In addition, the recording drive should have
appropriate, separated backup.
We also recommend that both areas used for elections have door and window alarms that, if
breached, provide appropriate instant notification. If not already available, the alarm system
should log activation and deactivation by authorized personnel and provide the same instant
notification. Notification should go to an authorized alarm company that can provide the
appropriate response, as well as to the cell phones of appropriate KPB officials.
We estimate alarms and cameras will cost approximately $10,000, although this estimate could
change depending on how much existing KPB security equipment can be used.
2.2.3.2. Secure Storage
The Records Center should have one locking cage or special room in which ballot return
envelopes that have been received but are not ready for opening can be stored. We estimate a
cage of sufficient size would cost approximately $3,000.
The main offices already have secure storage, which would be suitable for storing ballots. We
believe no updates are required in that area, with the exception of"re-keying" a conference
room or two for use during the election.
2.2.3.3. Onsite Access
One way to build and maintain voter confidence is to allow public access for viewing the
process. Many jurisdictions provide access through a combination of video feeds, onsite tours,
and public viewing areas within the election processing areas. We recommend KPB provide a
reasonable level of access, while maintaining security and efficiency.
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Although space is limited in the Records Center, public viewing of the envelope processing area
can still be accommodated. However, KPB will probably need to impose a limit of no more than
5 persons at a time, depending on whether candidates and issue groups also have observers in
the area. The public should be kept far enough from the computers being used for signature
verification that voter information is not readily readable by visitors.
The ballot envelope opening area and ballot tabulation area within KPB's office will be smaller
and would be best served with a wide-angle camera with a monitor available in a more public
area within the KPB main office. This video could be part of the same feed for security.
Separation and security for public access can generally be well managed by requiring a sign-in
and issuing colored lanyards to distinguish visitors, and then employing some simple barriers,
such as stanchions with retractable belts.
Refer to Appendix A for sample layout.
2.2.3.4. Air Gapping Systems
Because of the sensitivity of information stored in election systems, we recommend that these
systems be "air gapped," meaning that they are not connected to other networks9. By physically
isolating this equipment and disabling any wireless capabilities, KPB will increase the security
on these systems.
The Election Management System (i.e., the equipment for designing, scanning, and tabulating
ballots) should always be air gapped and never accessed remotely by anyone. These systems
typically complete a rigorous certification process, which also dictates how any updates to these
computers are handled.
For the sorter system, KPB could choose to allow the vendor's technicians to access it remotely
through a secure firewall, so that they can support KPB on an "as-needed" basis. We
recommend that KPB have rules and security in place to prevent unauthorized access to the
system. Depending on the sorter selected, this may include the following:
• Physically disconnecting any wired access available to the vendor (and others) at
appropriate times (e.g., during an election cycle)
• Having strong password/log in requirements and setting rules for expiring passwords and
accounts
• Disabling USB and similar data ports, especially on machines that may have more than one
user
9 Typically the systems themselves include multiple computers/other pieces of equipment, which
are networked together. However, this is a local network only.
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• Buying equipment without wireless capabilities or disabling these features (this includes
printers or similar accessories that might have wireless features)
KPB will need to bring some data into and out of air gapped systems (e.g., importing the voter
list to the sorter, generating a list of voters for the printing/mailing vendor, etc.). Typically, these
transfers are done using encrypted USB drives that are kept in secure storage when not in use.
2.2.4. Develop an Automated Method for Assigning Ballot Styles
Being able to efficiently determine which ballot style each voter should receive is a key
component of being able to move to vote by mail elections. Unfortunately, in local elections,
state-defined precincts often get split between multiple ballot styles because boundaries for
assembly districts, service areas, etc. do not always match the precinct boundaries. Therefore,
determining the correct ballot style for a voter requires knowing where the voter lives in context
to the area covered by each ballot style defined for an election.
The most efficient method for doing this assignment is to use mapping software, placing voters
on the map based on the residential address provided in the State's voter list and overlaying the
ballot style boundaries to determine which ballot style to assign. While this sounds easy, there
are many complicating factors, such as
• Residential addresses in the State file may be structured differently from KPB address data,
making it difficult to match them
• Precinct boundaries (which are defined by the State) are imprecise in the State maps and
the textual descriptions in Statutes are sometimes vague or incorrect, causing parcels to
sometimes be in the wrong precinct
• District or service area boundaries split some parcels
Therefore, any automated process will require manual review and intervention, with the amount
required being dependent on the potential data discrepancies. Updates can be made to some
datasets feeding an automated process, but in some cases, there are legal limitations to what is
possible, meaning that KPB may need to make policy decisions on how to handle certain
situations.
2.2.4.1. MOA's Process
To support assigning ballot styles to voters, MOA has developed a custom "GIS process" that
uses Esri's ArcGIS software and Python scripts to automate the assignment of ballot styles10
The process uses the following data:
10 The computer used to run this process is a fairly basic Windows 10 computer, with the only
special installations being Python and ArcGIS.
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• State voter list: a CSV file provided by the State that lists all registered voters within MCA
(or a subset of precincts if for a special election that is for a limited area), with all the data
needed during the election, including voter ID, residential address, mailing address, status,
and voter identifiers.
• Address, street, and community data: various datasets that are used by the process to
place a voter on a map based on the residential address provided by the State.
• Ballot style polygons: geographic boundaries of where a particular ballot style should be
used. These boundaries are created by MOA's GIS department based on the contests
included in the election (e.g., which assembly districts and service areas have contests on
the ballot). Because MCA wants to report results by precinct, the precinct boundaries must
also be considered as there are different ballot styles for each precinct—even if the contests
on the ballots are identical. MOA's Municipal Clerk identifies the ballot style ID (which is
generated in the Election Management System as part of designing ballots) that should be
associated with each ballot style polygon.
MOA's process includes two steps: (1) placing voters on the map (geocoding) using a series of
rules and (2) assigning a ballot style to those voters who could be geocoded. The process then
outputs a file with the list of voters, including all voter data fields provided by the State, plus the
assigned ballot style ID, in the format MOA's sorter system can import.
When geocoding voters, there are always some voters that the GIS process cannot place on the
map. These are typically caused by
• Inaccuracies in the State residential addresses (either typos which the State will correct
when notified or mistakes made by the voter when completing the voter registration form)
• Differences in how the State formats its addresses vs. how MCA formats them
• Incomplete residential addresses
• Variances between the address the voter uses and the official MCA address for a location
The MCA Municipal Clerk reviews these unmapped voters to determine whether, based on a
set of rules, the address can be "overridden" for sake of placing the voter on the map (e.g., if
there is a difference in how the State formats an address vs. MOA, an override can be entered
to put the address in the MOA's format so the voter can be geocoded). Even with this manual
processing, there are some voters whose location cannot be accurately determined; these
voters are left "unmapped" and do not have a ballot style assigned, which means they do not
have a ballot package sent to them". For MOA, less than 1% of voters are unmapped and the
number of these has decreased each year.
11 These voters can go to a Vote Center to get a ballot or can contact MCA to request a ballot.
In both cases, the voter must identify where they live so the appropriate ballot style can be
provided.
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After voters have been geocoded and ballot styles have been assigned, the Municipal Clerk
reviews data about the number of voters assigned each ballot style and the precinct assigned to
each of those voters. This process can identify problems with the ballot style boundaries, errors
in the ballot style ID assigned to an area, discrepancies with precinct boundaries or
assignments, and issues with the geocoding process12. The Municipal Clerk reviews these
issues and makes adjustments as appropriate (e.g., to the ballot style polygons, etc.).
Fixing issues in either step triggers rerunning the process, and this cycle repeats until the
Municipal Clerk is confident in the accuracy of the final file produced. While the automated GIS
processing does not take long to run, the manual review and resolution of issues can be time
consuming, particularly for the first State file processed during an election cycle13
2.2.4.2. Recommendations
We recommend that KPB request a copy of MOA's Python scripts and then modify them to
meet KPB's needs. Using MOA's scripts as a starting point should minimize the amount of effort
required to create these processes. Changes will be required, particularly with the geocoding
processes, because KPB's GIS data will likely be structured/named differently. KPB may also
need to modify the format of the file output, based on the sorter solution KPB chooses. In
addition, KPB will need to decide whether any changes are needed to which data elements
about voters are included in the State file.
Because the output of this process is foundational to an effective vote by mail election, the
process will need to be carefully vetted to ensure it is working as expected. Therefore, we
recommend that KPB perform a trial run of the GIS processes (at least the geocoding portion),
before the first vote by mail election starts, in order to validate the process and identify any data
issues.
The first usage of the GIS process will likely identify a number of issues that need to be
addressed, either in the GIS datasets, with the script, or in defining rules around manual
intervention. Doing this outside of the pressures of election deadlines will make it easier to do
the thorough assessment needed.
Without reviewing KPB's datasets, it is difficult to estimate the amount of time required to update
the Python scripts. However, we believe it would be in the range of 30-40 hours (of a GIS
analyst), plus additional time to carefully review the outputs and make logic or data updates.
12 Issues with geocoding that are identified at this stage are typically a few odd cases. For
example, MCA has a trailer court that is split between two precincts. The geocoding process
looks at the street number, but not the specific trailer space. Therefore, the process places all
voters at that address in the same location, but some are in a different precinct. This can be
adjusted through the override process so the voters receive the correct ballot style.
13 The first file takes the longest because it includes —11 months of voter changes. In addition,
any problems with the ballot style polygons will be identified in during this first run.
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2.2.5. Collect Initial Set of Reference Signatures
In a vote by mail election, the voter's identity is typically verified by validating the voter's
signature on the ballot return envelope against a set of previously verified reference signatures
for that voter.
The State of Alaska maintains the voter registration database and has an ongoing and growing
repository of verified signatures. Therefore, over time KPB will be able to rely on an ever
growing and refreshed set of reference signatures that are gathered by the State and submitted
to the State by KPB after an election.
However, it is likely that the State currently has too few signatures of KPB voters to efficiently
conduct a vote by mail election. While a vote by mail election could still be done if there are too
few signatures, in this scenario KPB would need to manually intervene to verify a high
percentage of ballot return envelopes. This intervention will typically require one of the following:
1. Asking the voter to provide identification as part of the "cure" process, which is at best
cumbersome and time consuming, and at worst impossible. In addition, this process is
contrary to the efficiencies envisioned for vote by mail.
2. Contacting the State of Alaska, which can, almost 100% of the time, find and send a verified
signature that is on file (paper or microfiche) but not in its database. The State has
cooperatively provided this service for MCA, but a large number of requests to the State
during the election could be problematic for the State and would slow down the process for
KPB.
Note: Because KPB elections occur in the Fall, within the same timeframe that the State is
preparing for and conducting its own elections, there may be limits on what assistance
the State is able to provide. KPB will want to discuss this with the State in advance.
Alternatively, we recommend that KPB do a signature gathering project before its first vote by
mail election, which will minimize number of voters without reference signatures. To begin, KPB
should complete a gap analysis to determine how many reference signatures the State has for
KPB voters in its voter registration database. Unless the State has a significant percentage of
voter signatures, KPB should then complete a project to scan signatures from old pollbooks and
provide them to the State to build up their database of verified signatures.
The project would consist of disassembling and scanning the pollbooks from prior elections,
using software to parse out each signature, saving each signature image with a voter ID
identifier, and converting the image into a format the State can use. MCA used custom-built
software to support this process; if KPB is able to use MOA's software, it would save a good bit
of time and money.
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To do the signature gathering using MOA's software, KPB will need a scanner in which pages
can be fed in bulk as well as a Windows 10 computer with Python (application uses a SQLite
database and a small stand-alone .NET application and Python scripts). While there are no
minimum specifications for the computer, its specifications can significantly affect the speed at
which scanned pollbook pages are processed.
MOA scanned pollbooks from 4 years as well as absentee applications and other forms. This
effort took place over approximately 4 months, with extensive hours by election workers plus
approximately 80 hours from someone comfortable working with databases, troubleshooting,
etc.
Because KPB pollbooks will be smaller than MOA's, the amount of time required should be
significantly less than MOA's experience. However, processing will probably take at least 40
hours for each year of pollbooks and potentially more.
2.3. Prepare Election
2.3.1 , education and Outreach
Educating voters about vote by mail before the election and answering questions during the
election are important steps in building voter confidence and comfort with what vote by mail is
and how they can vote and securely return their ballots. We recommend the following forms of
voter engagement, as also recommended by the Election Stakeholders Group.
• Face-to-face Engagements. In the age of coronavirus this may be more of a logistical
challenge, but a great way to educate voters is by presenting an overview of vote by mail,
with Q&A time, at public gatherings such as community council meetings; chamber
meetings; and meetings of the League of Women Voters, Rotary, and similar civic groups.
KPB should also offer to present at other meetings (if invited), such as Republican or
Democratic Party meetings, and to be guests on local radio talk shows. Some of the
toughest critics ask the best questions and can become supporters.
Facility tours are another highly recommended way to engage with the voters. They get to
see that the actual processing of envelopes and ballots is straightforward, transparent, and
secure.
• Election Website. KPB should revamp its elections webpage to include vote by mail
resources, such as frequently asked questions, forms, instructions, and perhaps a video or
two.
• Pamphlets. A pamphlet is a nice-to-have option for handing out to voters and others at
meetings, but these are expensive. While it might be worthwhile to have them in the first
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year, it may make sense to produce an inexpensive two-sided card. Hand these out
whenever possible and also have these available at KPB and city hall public counters.
• Advertising on the Radio. A limited number of radio stations have reasonably good
Borough coverage, so we encourage radio advertising, especially if you can secure these as
free public announcements.
TV advertising is not particularly effective because there are just too many options for
viewers, and it is very expensive. Therefore, we do not recommend that KPB pursue any TV
ads.
• Social Media. KPB and the cities should agree on some consistent messaging about voting
by mail and provide that content on Facebook pages. In addition, use a single Twitter
account to disseminate election messaging leading up to the election. A critical component
to effective social media usage is being timely in responding to messaging, especially to
comments that contain misinformation or questions.
2.3.2. Identify "Undeliverable" Voters Before the Election
To give voters an extended opportunity to engage in voting, State law provides for a long
process and time period before the State Division of Elections can "purge" or remove a voter
from the voter registration database. During part of this period, many voters end up in a status
of"UN" or"Undeliverable," which essentially means that the mailing address information in the
State's database may no longer be valid for the voter because the mail has been returned to the
State as "undeliverable." In addition, there are likely many other voters not yet identified as
being undeliverable in the voter registration database but for whom the mailing address is no
longer valid. Based on MOA's experience, the number of voters meeting one of these criteria
within KPB could be upwards of 20% of registered voters14
In a poll-based election, the voter's status as undeliverable is less important as the voter is still
eligible to vote and just shows up at the precinct. However, in a vote by mail election, mailing
ballots to these undeliverable voters will increase costs as ballot packages that cannot be
delivered are printed and mailed. KPB can reduce their printing and mailing costs by defining
policies around who is mailed a ballot package in an election, as discussed in Section 2.2.1:
Update Legislative and Administrative Rules to Support Vote by Mail.
IMPORTANT. The vv ais would still t)e eligible to vote and may vote by requesting a ballot—
these voters just wouldn't be mailed a ballot package initially as it would likely be returned by
the Post Office. After appropriate verifications, KPB can meet a voter's request for a ballot by
14 MOA, which has more than 200,000 registered voters, has seen tens of thousands of
"undeliverables" each year.
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mailing it (to an updated mailing address) or by having the voter come into a Vote Center(refer
to Section 2.5.2: Vote Centers).
In combination with that policy, we recommend that KPB use a pre-election mailing to
proactively identify voters who are undeliverable so that the State can update that information in
the voter registration database before the KPB election cycle begins. With this process, KPB
would mail all registered voters a "Notice of Election" postcard approximately 90 days prior to an
election.
The postcard provides information about the upcoming election and may include the residence
address on file, as well as information about how voters can update their information with the
State. Subject to agreement with the State, any postcards returned as "undeliverable" can be
provided to the State, and the State updates its records to show these voters as being
undeliverable15
Sending postcards does incur printing and mailing costs. However, postcards are much cheaper
than ballot packages, so the savings from proactively identifying voters who will be
undeliverable (and therefore not sending them a ballot package) should more than offset the
postcard costs. In addition, since the postcards can be forwarded (unlike the ballot packages),
they become a reminder to voters (for whom forwarding is still active) to update their information
with the State, before the election.
By taking steps to minimize the ballot packages sent to voters with known bad addresses, KPB
will
• Avoid wasting money on ballot packages that can't be delivered
• Avoid putting ballots into the mail stream that won't be used (or might be the subject of
illegal voting attempts by other persons at the address)
• Avoid the administrative burden of processing, storing, and later destroying these
undelivered ballots
2.3.3. Design Envelopes
For a vote by mail election, KPB will need to design 3 envelopes:
1. Outer ballot package envelope
2. Ballot return envelope
3. Secrecy envelope or sleeve
15 To make it easier for the State, MOA developed a process in which they run returned
postcards through the sorter and generate reports that show voter IDs as barcodes so the State
can more quickly update their records. KPB will likely want to develop a similar process so that
the State can make updates to their records quickly. KPB should coordinate with the State in
advance to ensure the State has sufficient resources at the needed time.
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KPB's current envelopes may not need significant design changes but should be reviewed. Both
the outer ballot package envelope and the ballot return envelope must meet USPS Election Mail
standards. The USPS has a group specifically authorized and trained to approve envelope
designs. Most print vendors that do election mail are familiar with the standards and can help
KPB meet the standards.
The ballot return envelope design is especially important in communicating with the voter as
well as in supporting envelope processing by election workers. This envelope should have the
following features:
• Text and color to identify it as KPB election mail. This helps the voters and the election
workers to quickly identify the mail. Strategic placement of the color on the envelope helps
election workers sort and properly orientate the mail for feeding into the sorter.
• Text providing useful information to the voter, such as the deadline for the election (e.g.,
"Please return your ballot by 8 p.m. Election Day October 6, 2020") or other reminders.
• Voter's name, which is helpful to election workers needing to look up a voter or find a
particular envelope.
• A unique identifier in a location and format that can be read by the sorter. This
identifier is a number assigned to the voter that is specific to the election and is not used
with any other voter or subsequent election. The identifier is often referred to as the ballot
envelope ID and is typically printed as a barcode on the envelope. This ID number is
scanned by the sorter system for use in tracking/verifying which voters have returned a
ballot and in determining how to sort the envelopes (e.g., "good" envelopes sort into the
appropriate bin; "bad" envelopes are out-sorted for further investigation by election staff).
Note. t\PB wants to include "1 .jted"stickers in the ballot packages, these cat oe affixed to
the secrecy envelope/sleeve for removal by the voter. Including this sticker will increase
printing/mailing costs.
2.3.3.1. Inclusion and Security of Personal Identifiers on Ballot Return Envelopes
A key element of vote by mail is ensuring the ballot returned was voted by the right person.
Verifying this typically requires that the voter provide some "proof' of their identity.
Currently, KPB requires the ballot return envelope for mailed ballots to have
• At least one personal identifier, such as birthdate, voter ID, or last 4 of the Social Security
Number
• Voter's signature
• The attesting signature of a qualified witness (KPB Code 4.120.010D)
Of these, we recommend that KPB continue requiring the voter's signature, which would be
verified against a set of known signatures for that voter. While having an attesting signature
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would provide an additional, reasonable assurance of the voter's identity, requiring this could
disenfranchise voters who are unable to find a witness.
We strongly discourage having personal identifiers included on the envelope, even if hidden by
a flap on the envelope. We believe the risk of this information being stolen/misused outweighs
the justification for requiring it16
We understand KPB is concerned about signatures being visible on the ballot return envelopes.
A flap that covers the signature may be required (depending on the opinion of KPB's legal staff)
or may be included to increase voter confidence.
Note. If KPB chooses to continue requiring personal identifiers such as SSN or birthdate,
having a flap becomes more critical—if not mandatory—because of the sensitivity of the
information.
While some jurisdictions use a flap, many do not", and having a flap adds expense that may
not be justified. We recommend avoiding it, if possible, for the following reasons:
• Additional printing costs. Larger closure flaps can be more expensive because they
involve more paper content and, in some designs, more adhesive.
• Additional costs for processing returned envelopes. Because mail sorter systems are
designed to scan signatures as part of the sorting process, KPB would either have to
manually remove the flaps prior to sorting or its sorter would have to have the
hardware/software to remove the flap during processing. If doing it manually, KPB would
need additional staff to support this effort. If done mechanically, the sorter cost will be higher
(as a ballpark, likely more than $30,000, plus increased ongoing maintenance costs). In
addition, requiring this functionality may limit which sorters meet KPB's requirements.
The primary voter concern behind having the flap is that the voter's signature could be stolen
while the envelope is in the mail stream and used for identity theft. While this is possible, we are
not aware of any circumstance where it has happened, and the risk appears to be very low. For
voters concerned about this, the best alternative is to use a secure drop box provided by KPB or
to drop the envelope off at a Vote Center (refer to Section 2.6.1.2: Drop Boxes and Section
2.5.2: Vote Centers for more information).
2.3.3.2. Including Prepaid Postage on Ballot Return Envelopes
The Election Stakeholders Group report contains a reference to "prepaid postage" for the ballot
return envelopes. Having postage pre-paid is an obvious convenience for voters, some of whom
16 K&H, a major West Coast ballot package printer (and the vendor for MOA), serves about 20
million vote-by-mail voters. None of the jurisdictions they work with put SSN numbers or
birthdate on the envelope.
" K&H has less than 10% use a flap to hide signatures.
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are in more remote locations where quickly getting postage is not as easy. However, in addition
to the added expense to KPB, there may be some additional drawbacks.
KPB currently supplies postage pre-paid envelopes for its 6 vote by mail precincts. We
recommend this policy be changed in an area-wide vote by mail model. However, if KPB wants
to explore providing pre-paid envelopes for the entire election, it should first have conversations
with the USPS to see what its most current offerings are for election mail.
Our current understanding is that not all postage pre-paid mail routinely gets a postmark. If a
ballot's timeliness is dependent on a postmark (as it is under current Code), using prepaid
postage increases the risk that some ballots will be rejected as untimely as the postmark may
not be on some ballot return envelopes.
In addition, we also understand that some types of postage pre-paid mail are not treated by
USPS the same as first class priority mail, meaning this form of mail may be slower to go
through USPS processes. This may also affect the timeliness of receipt by KPB, causing the
rejection of some ballots.
Given that the majority of voters wait until the final days of the election to submit their ballots, we
recommend that KPB avoid mailing options that might both delay return and give no indication
to election officials as to when the envelope was actually mailed. We recommend that voters
provide their own postage or use the other available return options.
2.3.4. Obtain and Process Voter List
Each election, the list of eligible voters is pulled from the State's voter registration database.
This information changes frequently as new voters register, existing voters update their
information (e.g., name, address, house district, precinct) or status (e.g., move out of state), or
the State purges voters who haven't participated in many years.
Under State statutes/regulations, voters can register or change their information up to 30 days
before Election Day. Because this deadline is based on when the voter's update was
postmarked, the State may receive timely updates for approximately 5 days after the deadline.
Therefore, KPB will not have a final list of eligible voters until about 3 weeks before Election
Day, right about the time that KPB likely wants to mail ballot packages to voters. This can create
timing issues for printing and mailing ballot packages as the vendors will need more lead time.
Therefore, KPB will need to work with the printing/mailing vendor to understand their deadlines
for the voter list based on KPB's date for mailing ballot packages and the expected volume (and
factor these into the deadlines defined in Code—refer to Section 2.2.1: Update Legislative and
Administrative Rules to Support Vote by Mail).
We also recommend that KPB coordinate with the State in advance in terms of
• What voter data KPB needs in the file
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• The file type
• Timing of the file(s)
• Method for transferring the files (refer to Section 2.3.4.1: Transferring Voter Data)
Note. As long as the format will set KPB's needs, it ,.l likely be easiest if KPB can use the
same voter file definition as MOA.
As an example of how the voter list process could work, the following table describes MOA's
procedure at a high level (refer also to Section 2.2.4: Develop an Automated Method for
Assigning Ballot Styles for a more detailed description of what is done). To meet the
printing/mailing schedules and ensure all voters get ballots, MOA gets the voter list 3 times from
the State for each election.
#1 -2 weeks before printer's MOA runs the automated process to
deadline for the initial file; assign ballot styles to each voter, which
typically around the time produces a list of voters that is loaded to
ballot designs are complete, the sorter. The sorter produces a list of
as ballot styles must be eligible voters who will be mailed ballot
known first packages, which is given to the printing
vendor so they can begin preparing ballot
packages.
#2 -1-2 days before printer's MOA runs the automated process to
deadline for the final file assign ballot styles to each voter, which
(often 3-5 business days produces a list of voters that is loaded to
before mailing) the sorter. The sorter produces
• A list of information for new or
changed voters since the original
file
• A list of"yanks" (i.e., voters in the
original list who should no longer
be mailed ballot package based on
changes to the voter's record in the
second State file)
These lists are provided to the printing
vendor, who finishes preparing ballot
packages and mails them.
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#3 —1 day before mailing date MOA runs the automated process to
(this delivery also includes assign ballot styles to each voter, which
reference signature files) produces a list of voters that is loaded to
the sorter. The sorter produces the list of
new/changed voters since the second
State file. MOA prepares and mails ballot
packages for these voters.
How many State files KPB will need will depend on the printing/mailing vendor's requirements.
In addition, KPB may choose to have the vendor do the final mailing instead of processing it
internally, depending on the vendor's capacity and how quickly KPB wants those ballots mailed.
If KPB uses a process similar to MOA's, we estimate the following staff time will be required for
processing the State file (although this will vary based on number of ballot styles, number of
new/changed voters, etc.):
Preparing Ballot Style Polygons 15-30 hours N/A N/A
(GIS staff and Election staff)
Geocoding and assigning ballot styles 12-16 hours 6-10 hours 4-8 hours
(Election staff)
2.3.4.1. Transferring Voter Data
KPB will need a method to obtain the voter files and signature images from the State and to
share voter information with the printer. The files will include confidential information—such as
voter ID, date of birth—and must be transferred and stored securely. In addition, because
timelines are often tight, data transfers largely need to be "same day" so current KPB's method
of using a CD may no longer be sufficient. MOA currently has an SFTP site that is used for
transferring data with the State, and MOA's printing/mailing vendor hosts an SFTP site used for
exchanging data with them.
For MOA, using SFTP for transferring reference signature files is getting more
problematic with each election as the number of files increases each year, so it takes
many hours to upload and download the .zip file containing them. KPB has about a
quarter of the voters that MOA does, so KPB should have fewer difficulties.
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4. Print and Mail Ballot Packages
KPB already has a vendor for printing ballots and mailing its ballot packages to the absentee
voters. However, KPB will need to determine whether it can expand the existing contract to
include mailing to all eligible voters or whether it will need to go out to competitive bid. Assuming
it can continue with the current contract, KPB will need to determine if the current vendor can
meet the requirements, described below. Total estimated costs, at $42,000, are based on
50,000 packages at known pricing from one vendor".
2.4.1 . `Irint Ballots
The vendor needs to be able to print more than 50,000 ballots capable of being scanned on
KPB's ballot scanners, all in a short timeframe.
,wLc: Soma Election Manayc,i,ciit Sys ciii vcildors require that a printerbe certified to print
ballots for use on their equipment.
Ballots may be two-sided and of varying lengths. In addition, ballots may be serialized and have
detachable stubs.
The process is very similar to what is currently being done, but ballots generally need to be
ready earlier than in the current poll-based elections. Ballots may cost around $.30 each.19
2.4.2. Print Envelopes
The print vendor will need to be able to print both outer envelopes and ballot return envelopes,
along with secrecy sleeves and any other inserts. Envelopes may include more than one color
and will have both "static" information (e.g., instructions and KPB's return address) and variable
information (e.g., voter name and address and the ballot package ID).
The vendor has to print envelopes to minimum standards so that the envelopes are readable,
especially the ballot package ID which needs to be read by a scanner on the sorter.
Envelopes can be ordered and printed well before an election, as long as KPB or the printer has
sufficient storage space. Estimated printing is approximately $.07 for each envelope (outer,
return, secrecy) and $.02 for the "I voted" sticker.
2.4.3. Build Ballot Packages (Including Inserts)
The print vendor needs to accurately manage the data provided by KPB and properly assemble
the ballot packages so each voter gets exactly the right ballot, with the appropriate inserts. The
18 Prices will likely vary between vendors and also based on size of orders.
19 Our estimated total price used 1 ballot per voter. This does not account for the additional
costs of ballots for city elections.
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types of envelopes used can add other complexities. For example, if a windowed outer
envelope is used, voter information is only printed on the ballot return envelope. However, if
non-windowed envelopes are used, voter information must be printed on both the outer
envelope and the ballot return envelope, meaning that the printer must ensure that the two
envelopes within a ballot package are for the same voter.
Because of some of the complexity around building the ballot packages, the print vendor needs
to have a high level of quality control. In addition, the vendor must have sufficient on-site
security during the entire period that ballots and voter data are at the printer's facilities. Finally,
the vendor needs a well thought out and executable disaster recovery plan.
Ballot package assembly is estimated at $.30 per package.
2.4.4. Mail Ballot Packages to Voters
With a vote by mail election, there is an initial "mail drop" on a day designated by KPB in which
ballot packages are put in the mail stream for all eligible voters (who meet any KPB criteria for
being set a ballot package in this initial mailing).
Note: 'Replacement"ballot packages may be subsequently sent to voters upon request. Refer
to Section 2.4.5: Re-issue Ballot Packages (Temporary Addresses and Replacement
Ballots) for additional information.
Mailing costs will be depending on factors such as weight of the ballot package and how many
are mailed. We estimate costs at approximately $.41 per piece, or$20,500 for 50,000 ballot
packages.
2.4.5. Re-issue Ballot Packages (Temporary Addresses and Replacement
Ballots)
Throughout an election, voters may need
• A ballot package mailed to a different address (e.g., voter is traveling or the voter's mailing
address on file with the State is wrong and it's past the deadline for updating)
• A replacement ballot mailed (e.g., previous one was not received, ballot was fouled in some
manner, ballot was not mailed because the voter is designated as being "undeliverable" but
the voter says the address is good)
KPB will need to have processes in place for documenting and fulfilling these requests. As part
of this, KPB will need to make decisions such as
• Will KPB produce and mail the ballot packages or will the printing/mailing vendor do so?
• At what point in time will KPB stop mailing ballot packages (i.e., because the package is
unlikely to arrive before Election Day)?
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How temporary addresses and replacement ballots are handled will also be affected by the
capabilities of the sorter solution that KPB selects.
2.4.6. City Participation
If the cities want to participate with KPB in a vote by mail election, we recommend that KPB
require that each voter is sent a single ballot package with appropriate city and Borough ballots
for that voter. Having separate ballot packages (one for KPB and one for the city) will
significantly increase complexity in managing the election while also increasing printing, mailing,
and staffing costs. In addition, a requirement to have multiple ballot packages would likely limit
which sorting solutions might work for KPB.
As mentioned above, each ballot return envelope is labeled with a unique ID for the election,
which helps ensure that a voter doesn't submit more than one ballot. Issuing multiple ballot
packages for a single voter and having the sorter properly identify potential duplicates might not
be supported in a feasible way by sorting systems. As an example, the MOA sorting solution
only supports a voter having one active ID in an election, and once one ballot return envelope
with that ID is received, any subsequent ballot return envelopes with that ID are out sorted as
duplicates. With MOA's system, to support multiple ballot packages per voter, KPB would have
to create multiple elections and then switch between them during processing (since only one
election can be active at a given time). This would have the net result of multiplying the amount
of effort required as it's the equivalent of having multiple simultaneous elections.
Other potential problems with having multiple ballot packages per voter include the following:
• Voters will make mistakes and put the wrong ballots in the wrong return envelopes, creating
more work for election officials and more opportunity for errors.
• Voters will return all the ballots in one of the two return envelopes, creating more work for
election officials and more opportunity for errors.
• Signatures would need to be adjudicated for each ballot return envelope, increasing the
amount of time required. In addition, if one envelope is accepted and another gets flagged
for a potential issue, it could cause voter anxiety and confusion.
• All processes and systems—from the call center to Vote Centers to issuing replacement
ballots—would have to support multiple ballot packages per voter, which is more complex
and could ultimately lead to voter confusion.
2.5. Voter Support
2.5.1 . Call Center
During an election, voters will have questions about many things, including the process, when
they will receive their ballots, how to get a replacement ballot, whether their ballot has been
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received by KPB, etc. KPB should have a designated phone number for elections20, which is
published in all media and communications. In the first year of vote by mail, plan to have 2
people staffing the Call Center. In subsequent elections, staffing can be reduced to one person
or the operations could be absorbed by the Clerk's Office staff.
The Call Center should open about 4 weeks before Election Day and, depending on call
volume, remain open for a few days after Election Day. Center staff need to have good training
and a readily available script on how to answer most questions, so that the messaging is
consistent and accurate.
The Call Center does need not elaborate equipment: desks, computers, and phones should be
sufficient. Ideally, the KPB phone system already has calling features that are useful, such as a
helpful customizable hold message, call rolling, and the option to leave a message.
While talking with voters, Call Center staff must be able to look up information about the voter
and whether that voter's ballot has been received, so they can answer inquiries. Whether ballot
receipt information is real time (i.e., Call Center staff are connected to the sorter's database) or
point-in-time (e.g., updated once per day with updates from the sorter) will depend on several
factors, including physical space limitations, noise levels (sorters can be noisy), and the relative
importance of having real-time information available.
Note: Some sorter systems include functionality for allowing voters to look up online whether
their ballots have been received. This functionality may have additional costs and require
more security measures for the sorter system.
If point-in-time information is sufficient and the Call Center is disconnected from the primary
sorter, staff will need a tool for looking up voters21. This tool would need to get updated with
information about processed ballot return envelopes on a regular basis.
2.5.2. Vote Centers
Vote Centers provide a location for voters to go if they didn't receive a ballot, need a
replacement ballot because they fouled their original ballot, need other assistance, or want to
drop off a ballot.
When a voter is given a ballot at a Vote Center, the voter is also given a secrecy sleeve and a
ballot return envelope—just as the voter would have received with a mailed ballot package. The
voter places the voted ballot in the secrecy sleeve and ballot return envelope, and it is
processed on the sorter, just like ballots returned in drop boxes or in the mail. In addition, voted
20 There doesn't appear to be an election-specific phone number on the KPB election
webpages, unless it is added/activated closer to each election.
21 MOA has a stand-alone Access database for use by the Call Center.
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ballots printed by ADA-compliant machines available at each Vote Center will be placed in a
ballot return envelope for processing, just like all other ballots.
In order to support voters, Vote Centers must be able to
• Verify whether a person is a registered voter in KPB (or whether the voter must vote a
questioned ballot)
• Identify the appropriate ballot style for the voter based on the voter's residential address
• Provide the appropriate ballot to voters who request one, along with a secrecy sleeve and a
ballot return envelope that includes the ballot envelope ID the sorter solution can read
• Secure voted ballots until they are taken to the central processing location
• Secure election materials
While there is technology available that would allow Vote Centers to have access to real-time
data from the centralized system, this increases security requirements and is not vital in Alaska,
especially since voters must be registered 30 days in advance of Election Day (so voter
information does not change).
However, without real-time access, KPB will need to provide a static copy of the voter
information at the Vote Centers. MOA has opted to do this type of offline model and has created
a stand-alone Access database that is installed on each laptop used at Vote Centers. This
Access database, which is loaded with voter data once at the beginning of the election, allows
Vote Center staff to look up a voter, verify the voter's identity using personal identifiers,
determine the appropriate ballot style, and print a barcode label that is placed on the ballot
return envelope so that the sorter can identify the ballot return envelope as being for a particular
voter.
For the ballots, KPB can keep a preprinted stock of ballots (of a variety of styles) at the Vote
Centers, with which styles and the number of each being based on the Vote Center location and
likely demand for a particular ballot style in that location. In addition, KPB could use "ballot on
demand" printers, which allows them to print a ballot of any style at the Vote Center.
We recommend KPB have 5 Vote Centers, in the following locations:
• Borough Office
• Homer
• Kenai
• Seldovia
• Seward
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Each Vote Center should have 2 Iaptops22 and 1 Dymo label printer. In addition, Vote Centers at
the Borough Office, Homer, and Kenai should have an Okidata23 ballot printer.
Note: KPB is planning on having one ADA compliant voting machine at each Vote Center. If
these machines can be used by any voter, regardless of need, KPB may not need the
Okidata printers for printing ballots on demand. Alternatively, KPB could discuss using
MOA's Okidata printers, at least in the first year, to save some money and to see if both
the printers and the ADA machines are needed, without actually buying printers outright.
KPB may also want to have printed maps at the Vote Centers to assist in determining the
appropriate ballot styles to those voters for whom this couldn't be identified when processing the
voter list (refer to Section 2.2.4: Develop an Automated Method for Assigning Ballot Styles).
Assuming KPB purchases new equipment for the Vote Centers, we estimate a total equipment
cost of approximately $20,000, which includes some contingency for additional equipment such
as tables, power cords/strips, secure boxes for voted ballots, miscellaneous supplies, etc.
Vote Centers should open about a week prior to Election Day, although it may be useful to have
one location (e.g., the Borough Office) open earlier to help voters who have special needs. On
Election Day, Vote Centers should stay open until the election ends at 8:00 PM.
Each Vote Center should have 3 staff members present (refer to Section 2.8: Staffing
Requirements for estimated staffing costs). It may be possible for city officials to provide staffing
for some of the Vote Centers. All staff working at a Vote Center should be trained at the same
time to ensure that they have received consistent instructions.
2.6. Process Returned Envelopes
2.6.1 . Pick Up Returned Envelopes
2.6.1.1. Mail Pick-up
KPB staff may already be familiar with the process for picking up mail from the Post Office,
given its ongoing vote by mail program.
22 We recommend two, in case there is a failure on one. While laptops have the convenience of
being more portable, KPB could substitute desktops with monitors, if desired or if it would save
money. The computers can be relatively low end, with the exact requirements being determined
by what tool KPB uses for workers to look up voters, etc.
23 There may be other, less expensive ballot-on-demand printers, but the Okidata printers are
known to work well and are used by both the State and MOA.
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Assuming USPS is not delivering to KPB and that KPB wants the election mail to be separate
from other KPB mail, KPB should use a separate address only for election mail. USPS will then
segregate this mail from other KPB mail.
If pre-arranged, KPB can send a 2-person team to pick up election mail from USPS on a routine
schedule.
Note: KPB must provide the names of authorized individuals to USPS as they allow only
named individuals to pick up mail.
Especially if KPB gives voters an opportunity to "cure" their ballot return envelopes, KPB should
pick up mail each day of the voting period, starting the day after ballot packages have been
mailed and ending when KPB stops accepting ballot return envelopes (i.e., when envelopes are
deemed "too late," even if they had been postmarked in time).
2.6.1.2. Drop Boxes
Outdoor secure drop boxes are an important convenience for voters. If properly designed and
located, they provide a great way for voters to easily return their ballots at any hour and, in
some cases, without even having to get out of their vehicles.
Locations and Property Owner Approval. Drop boxes should be placed in locations with good
lighting, traffic flow that avoids congestion and accommodates persons with disabilities, routine
snowplowing, and (when practical) security cameras. In larger jurisdictions, places like
government offices, schools, and larger retail often have these features24. High schools work
very well because they typically have all the needed features and (with certain exceptions) low
traffic volumes over most of the day.
When placing drop boxes, curbside locations are great because they can offer both walk-up and
drive-up service, but KPB may want to avoid scenarios where the box is in a right of way it does
not control.
We suggest close consideration be given to placing drop boxes in the following locations:
Anchor Point Anchor Point Senior Center (Mile .25 Milo Fritz Road)
Homer Homer City Hall (491 E. Pioneer) or Homer High School
Homer (east) Kachemak Community Center (59906 Bear Creek Drive)
Nikiski Nikiski Middle/High School or Nikiski Pool
24 Based on MOA's experience, Post Offices are not willing to have drop boxes.
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Ninilchik
Kenai Peninsula Fair Grounds (16200 Sterling Highway) or Ninilchik
School (15735 Sterling Hwy)
City of Kenai Kenai City Hall (210 Fidalgo Ave.) or Kenai High School
Seward Seward City Hall (5th and Adams) or Seward High School
Borough Offices (144 N. Binkley Street) or Soldotna High School
Soldotna
(Vote: Soldotna should likely have two locations
Sterling Funny River Community Center (35850 Pioneer Access)
KPB must work with location owners early because the owners will want to have control over
where the drop box is placed and will want to work out any liability concerns with KPB (these
discussions will need to include the KPB risk manager). Resolving liability concerns is a little
harder when dealing with private property owners (e.g., churches, retail locations) but is
generally not a significant issue with government/school district locations.
Sizing and Price. Boxes need to be sturdy and tamper proof, preferably anchored to the
ground or so heavy as to be an unattractive target for theft. In locations where daily checks are
not warranted, larger boxes, such as MOA has, may be a good choice.
Assuming KPB purchases drop boxes from the same vendor and of the same style as MOA,
each drop box would cost approximately $3,000-$3,500 each, plus shipping (which will be
relatively high because of their size and weight).
KPB could also place smaller, tabletop ballot boxes inside the various Borough and City Clerk
Offices.
Emptying Drop Boxes. How frequently KPB checks drop boxes will depend on the size of the
box and the estimated number of voters who may use it. Most drop boxes should be checked at
least once a day25 and have the ballots removed. Removing ballots daily minimizes the risk of
damage from vandals and potential issues with ambient moisture.
For security/chain of custody reasons, drop boxes should be checked by a team of 2, not unlike
when transporting ballots to and from a polling location. A typical box can be checked, emptied,
and re-sealed in approximately 5-10 minutes.
25 On Election Day, more heavily used drop boxes should be checked in the morning as well as
at 8:00 PM when the election ends.
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Note: Because checking drop boxes doesn't take long (other than travel time), a single team
can check multiple drop boxes. However, on Election Day, all drop boxes need to be
locked simultaneously at 8:00 PM. Therefore, at that time, KPB will need one team for
each drop box.
Where possible, ballots from drop boxes should be delivered to the Election Center for
processing on the same day they are picked up. However, for more remote locations, daily
delivery to the Election Center may not be practical, and ballots may be stored inside a secure
facility, such as in the various city offices (Homer, Seldovia, Seward) until they can be
transported to the Election Center.
If KPB institutes a "cure opportunity" (refer to Section 2.6.4: "Cure" Ballot Return Envelopes),
how timely envelopes are received at the Election Center becomes very important as KPB will
want to identify issues and notify voters as quickly as possible. To support "curing," KPB may
need to get creative, particularly for the locations located further away from the Election Center.
For example, KPB could
• Encourage voters to vote early so there is more time to cure.
• Encourage voters to add their phone or email to the ballot return envelope so KPB can
call them if there is an issue.
Note: KPB would need to include places for this information when designing the
ballot return envelope.
• Contract with commercial services that can provide daily delivery. If this is done, the
envelopes should be boxed and locked, with a tamper evident seal that includes a
tracking code.
2.6.2. Scan and Sort Returned Envelopes
Most election mail sorting is done in a two-step process.
The first step validates the envelope, separating ineligible from eligible envelopes. Ineligible
envelopes include those that
• Are too damaged to be run through the sorter
• Are something other than a return ballot envelope for this election
• Have been voided
• Are for a voter who has already returned a ballot (refer also to Section 2.6.2.1: Which Ballot
Counts if a Voter Returns Multiple?)
Note: Some sorters also include functionality that will out-sort envelopes that are too thick or
too thin.
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The eligible envelopes are those that are ready for signature verification (refer to Section 2.6.3:
Verify Signatures for more information).
After signature verification if complete, the second step sorts the verified envelopes based on
those that have "good" signatures and those that were flagged as having an issue, such as no
signature, no matching signature, or missing any other required information (witness, identifier,
etc.).
One option generally available with sorters is to have this second step sort the "good" envelopes
by precinct. However, since KPB's new Election Management System can report results by
precinct, sorting the envelopes by precinct is not required. A decision to simply sort to "good"
bins would save on cost and configuration of the system as well as administration of the
envelopes. Therefore, we recommend that KPB not sort envelopes by precinct.
2.6.2.1. Which Ballot Counts if a Voter Returns Multiple?
Voting more than once in any election is, of course, illegal. However, although rare, it is not
uncommon for a few voters in a vote by mail election to return than one ballot return envelope.
Some very small percentage of this number might be a deliberate attempt at fraud, but most
instances are voters who sincerely forget they have previously voted. Here are two common
occurrences:
• The voter is mailed a ballot but goes to a Vote Center and votes there. The voter also sends
back the mailed ballot either before or after voting at the Vote Center.
• The voter is mailed a ballot to their home address, but then travels and asks to be mailed a
ballot at the temporary address. Occasionally, if the timing of when they are each location
"works out," and the voter votes and returns both ballots.
Mail sorter systems are designed to catch circumstances where the voter has attempted to vote
twice, which is another reason for the unique ballot ID identifier on each ballot return envelope.
However, each jurisdiction needs to decide which ballot counts if a voter returns multiple.
We recommend that KPB set its rules to count the voter's first ballot return envelope received
for the following reasons:
• Timeliness of reporting results: With "first one counts," KPB can process envelopes and
scan (but not tabulate) ballots prior to all ballot return envelopes being received. With a
different rule, KPB would have to hold all envelopes until after the election closes (not
knowing if a second one might come in), which would greatly delay results.
• Discourage attempts to vote twice: Counting the first ballot received removes the
incentive and greatly discourages voters from trying to vote again.
• Simplifies explanations: "First one counts" is very easy to explain and for voters to
understand.
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If a voter returns more than one ballot, subsequent voting attempts should be reported to either
the local police or State Troopers for investigation. In addition, we recommend sending a letter
to the voter reminding them that they cannot legally vote twice.
2.6.2.2. Notifying External Entities of Who Has Voted
KPB may want to produce a daily report that lists the voters for whom KPB has received a ballot
return envelope, based on information from the sorter system.
I ii16 iIiIY .,.: I i i I i I vvi � :&iui...:;. n't provide any Information about
how the person voted.
Candidates and issue groups often appreciate getting this information as they then know to no
longer target voters who have already voted—and voters likely also appreciate getting fewer
political ads and robocalls.
If KPB provides this information, they will need to include the voter identifier that the State
includes on the voter lists it distributes members of the public who request them. This identifier
is different from the voter ID.
2.6.2.3. Securing Envelopes
As mentioned in Section 2.2.3.2: Secure Storage, ballot return envelopes will need to be
secured in the Records Center when not being actively processed.
2.6.3. Verify Signatures
KPB may choose to verify signatures using
• An automated process where the sorter software compares signatures
• A manual process where election officials verify signatures, typically having 2 officials review
each signature
• A combination of the two
Note: A decision on whether to use automated signature verification should be made when
selecting a sorter solution to ensure that the sorter meets KPB's requirement-
We recommend at least one signature review step be done by an election official, rather than
leaving it entirely to the software. Doing signature verification entirely manually is also a viable
alternative and may give voters a greater confidence in the process, knowing that each
signature is being reviewed by two individuals. Many jurisdictions, including MCA and King
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County (WA)26, use such manual processes, where each signature is reviewed by two different
election officials trained in signature verification.
When manual verification is done, officials are trained each year in signature verification before
the election. MOA's training is done by the Washington State Patrol (their version of the AK
State Troopers), with the trainer coming to Anchorage each year. KPB could potentially
participate in that training or bring the WSP official to KPB for training at a reduced cost, if they
shared some of the travel expenses with MCA. However, the downside of this is the timing
difference between MOA's election and KPB's election.
2.6.4. "Cure" Ballot Return Envelopes
Sometimes there are issues with ballot return envelopes, such as the voter forgets to sign or to
provide other required information or KPB cannot determine a signature match. We recommend
that KPB implement a process in which voters are notified of these issues and given an
opportunity to "cure" the problem, so that their ballots can be counted.
Note. Based on MOA's and King County's e,, eriei-e, after the first election, only about 1% of
votes cast require this "cure"process.
The voter could be contacted by form letter, called, or emailed (if phone number or email are
included on the ballot return envelope). Regardless of the contact method, KPB would explain
the problem and give the voter a chance to fix it, as long as the voter responds before the
deadline for curing.
In order to avoid disenfranchising voters, we recommend voters be allowed to cure up to the
day of the public session of canvas (currently the Monday following the election, KPB 4.90.020).
For example, a voter who drops off a ballot on election night could expect to get a notification
within a day or two and be able to respond prior to the deadline.
When voters are allowed to "cure" their envelopes, it becomes increasing important that KPB
pick up and process ballot return envelopes as quickly as possible so that notifications can be
given to voters in a timely manner. The faster a voter is notified of an issue, the longer the
period of time the voter has to resolve that issue so that the ballot can be counted.
2.6.5. Open Ballot Return Envelopes/Prepare Ballots for Scanning
After ballot return envelopes have been successfully verified (i.e., are a "good" envelope on the
second run through the sorter), the envelopes can be opened and the ballots removed. The
process will likely be the same as KPB uses for its current vote by mail precincts.
26 A short video of King County's process is here:
https://www.kingcounty.gov/depts/elections/education-and-outreach/take-a-tour.aspx
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Typically, the envelopes will be run through an envelope opening machine, which slices a thin
strip off the envelope so that contents can be easily removed. Ballot return envelopes are then
given in batches to 3-member envelope opening teams who
1. While keeping the envelope "face down" to hide the voter's name, remove the security
sleeve (with the ballot inside) from the ballot return envelope, separating the ballot from the
return ballot envelope. The return ballot envelopes are then set aside so that the ballot is no
longer associated with any information that would identify which voter cast that ballot.
2. Separate the ballot from the security sleeve.
3. Open and flatten the ballot. If there are obvious potential issues with the ballot that would
cause it to not be scanned, it can be set aside to be facsimiled.
Envelope opening teams take steps to ensure that all envelopes have been emptied and that all
ballots are accounted for. KPB will need to define the procedures that the opening teams will
follow.
Once this process is complete, ballots are ready to be scanned. KPB will need to securely store
these ballots in their main office. We are anticipating a conference room will be "re-keyed"
during the election and used for secure storage.
2.6.5.1. Timing of Scanning Ballots
As mentioned earlier, KPB will need to decide when to scan ballots. Note that this is just
scanning them—tabulation of results should never be done until after the election closes at 8:00
PM on Election Day. While KPB could wait to scan ballots until after 8:00 PM on Election Day,
this will delay delivery of results as it will take time to scan the ballots. Therefore, we
recommend that KPB define how far in advance scanning can begin. This timing varies by
jurisdiction, with some allowing it to begin only the day before or on Election Day. We
recommend that KPB allow scanning to begin at least a couple days before Election Day to give
greater flexibility in staff assignments.
2.7. Store Election Records
2.7.1 . Providing Election Information to the State
When an election is complete, KPB will need to provide the State with the following information:
• Which voters returned a ballot
• Signature images from the ballot return envelopes of voters whose signatures were verified
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Providing the State with the signature images will help build the reference signature library for
KPB voters. For these files, KPB will need to provide the images as TIFF, and the files will need
to be named with the voter ID.
2.7.2. Dispose of Records
In a vote by mail election, KPB will have more election records to dispose. These will include the
return ballot envelopes as well as the electronic records from the sorter system and other tools
used during the election. KPB will need to update their procedures to ensure that all appropriate
information is disposed of.
2.8. Staffing Requirements
KPB currently hires approximately 130 people during an election cycle in order to staff all of its
polling locations. In a vote by mail election, the number of staff required will be substantially
lower.
Peak staffing levels will start about a week before Election Day, around the time Vote Centers
open, drop boxes are being checked, envelopes are being processed, and ballots scanned (but
not tabulated!). The table below shows what peak staffing might look like, with the following
caveats:
• Choices KPB makes will affect actual numbers.
• Clerk's Office staff for KPB and the cities are not considered in the counts; various Clerk's
Office staff may fill some of these roles, reducing the count.
• The table shows counts by functions, but many people can perform more than one function,
flexing from one position to another within a day, depending on the volume of envelopes and
ballots to process on that day. Therefore, the table's counts do not equate to total number
of people required.
As an example of staff flexing, a 2-member team picks up the mail from USPS and checks the
drop boxes in the Kenai/Soldotna area, then sorts and runs those envelopes through the sorter.
Meanwhile, another 2-member team performs signature verification on the previous day's
envelopes and then moves on to an envelope opening team.
Location/Function Total Time 27 CoSt28
Vote Centers (5 centers, 3 people each) 15 1 week + 1 hour $8,610
training
Drop Box Team 2 2 hours/day for 3 $840
weeks
27 8 hour days, 5 days a week, unless otherwise specified
28 Based on $14 per hour
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Election Center Envelope Sorter Process 2 3 weeks $3,360
Signature Verification 3 3 weeks $5,040
Review and Resolution 1 3 weeks $1,680
Envelope Opening Teams (2 teams, 3 people 6 1 week $3,360
each)
Call Center 2 4 weeks $4,480
Ballot Scanning and Adjudication 2 1 week $1,120
Total 33 $28,490.00
In addition, for at least 3-4 months before the first vote by mail election is started, KPB should
have a staff member dedicated to preparing KPB for vote by mail. This individual would
preferably be experienced in elections and also have a high proficiency with and lack of fear in
using software and computers. This individual would spearhead a lot of the vote by mail
implementation and would be doing tasks such as the following:
• Working with vendors
• Learning to be a "super user" on acquired equipment and software
• Being involved in user acceptance testing on the equipment and software
• Creating templates and drafting letters, sheets, and other documentation in Word, Excel,
etc. for use by election officials
• Coordinating staffing schedules
• Helping with ordering supplies
• Completing other sundry things that are needed when launching vote by mail
3.0 Summary of Estimated Costs
Below are the estimated costs as described in this Study. These may not be all costs and
actual costs may vary greatly depending on choices KPB makes and market rates at the
time. For example, KPB staff time (Clerk's office, GIS staff) associated with the election are not
included but, especially in the first vote by mail election, the hours will be substantially higher
than would be required in a normal election and may require that KPB hire additional staff or
contract work out. In addition, these estimates assume that KPB will leverage custom tools that
MOA had built and that most of these will not require changes for KPB.
Beyond the general "miscellaneous" costs that will come with setting up a new process, KPB
may wish to hire a project manager for the project and be sure to have adequate staffing levels
in its own GIS department and Clerk's Office. These costs would be modified by any use of
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current resources, as well as by the results of competitive bidding and decisions about the
timing, structure, and requirements adopted to implement vote by mail.
udy Section Recurring
Mail Sorter and First Year Licensing 2.2.2 $150,000 $30,000
Alarms/Cameras 2.2.3.1 $10,000
Records Center cage 2.2.3.2 $3,000
GIS enhancements 2.2.4.2 $6,000
Pollbook scanning 2.2.5 $3,000
Education and Outreach 2.3.1 $15,000 $3,000
Postcard (Undeliverables) — printing & 2 3.2 $4,000 $4,000
mailing
Ballot package set up, printing, assembly, 2.4 $42,000 $42,000
and Q/A
"I voted" sticker 2.4.2 $1,000 $1,000
Ballot package postage 2.4.4 $20,500 $20,500
Vote Center equipment 2.5.2 $20,000
Drop Boxes 2.6.1.2 $35,000
Temporary Election Workers 2.8 $28,490 $28,490
Total $337,990 $128,990
One measure of cost comparison can be the cost per voter, focusing on the number of voters
who actually cast ballots. If we assume the KPB approved budget for elections includes all costs
(which we acknowledge does not include the cities), then the cost per voter, using 2019 budget
and turnout, is $10.72 per voter ($113,910/10,622 voters).
If you assume a vote by mail election increases voter participation, using the percent increase in
turnout between the last MOA poll-based election and its most recent vote by mail election29,
the estimated cost per voter may be determined as follows:
• MOA 2017 - 49,370 ballots cast for a 23.2% turnout
• MOA 2020 - 71,268 ballots cast for a 30.68% turnout
• (21,898 /49,370) x100 = 44.4% increase
• 10,622 x 44.4% = 4,716 potential "new KPB voters, for an estimated turnout of 15,338
29 Using unofficial results as of April 15, 2020. These years are an "apples-to-apples"
comparison as both years were Assembly election years for MOA. Year with mayoral elections
usually have a higher turnout.
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Our estimate of$128,990 in recurring costs divided by the 15,338 voters equals $8.41 per voter,
a potential reduction of$2.31 per vote cast.
3. 1 . Assistive Technology Cost Comparison
KPB is currently subject to an agreement with the State of Alaska Commission for Human
Rights, which requires KPB to explore and implement options for providing assistive technology
to visually impaired voters. One option is to implement voting by mail, along with providing ADA
compliant voting machines in Voting Centers. Another option is to buy or lease these ADA
voting machines for every polling location. Both options require purchasing a new centralized
ballot tabulation system that supports the ADA machines.
The following table compares the estimated costs associated with these two options.
Note: NUN macmnesisortware costs are based on jury July vendor quote. Actual costs may
be different.
Poll-BasedVote By Mail
Estimated 1st year Election Cost $337,99030 $113,91031
Add 5 ADA machines\software for $197,804 $0
Voting Centers
Add 30 ADA machines\software for
polling locations $0 $337,144
Total $535,794 $451,05432
3.2. Total Recurring Cost Estimate
Year 2 Vote by Mail Poll-Based
Recurring $128,990 $113,910
Annual ADA hardware/software $27,580 $36,640
licensing and warranty
Totals $156,570 $150,550
30 Estimated "year one" vote by mail cost (see above for breakdown and caveats)
31 KPB 2019 election budget
32 Subsequent year costs are approximately $8,712 higher for poll-based voting for the licensing
and warranty on the 24 additional ADA machines.
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Appendix A : Sample Layout of
Records Center
Public
Entrance
Check in
Curtain
Public viewing area
----------------------------
Stanchions
Ballot Envelope Processing Area
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DocuSign Envelope ID:E8382BBF-CFEO-48EB-BF33-FE4F783D5D25
Kenai Peninsula Borough
Office of the Borough Clerk
MEMORANDUM
TO: Kelly Cooper, Assembly President
Members, Kenai Peninsula Borough Assembly
THRU: Tyson Cox, Willy Dunne, and Brent Hibbert A \ 7r-, C
FROM: Johni Blankenship, Borough Clerk �� � � /„�_ W /a ,
DATE: April 23, 2020
RE: Ordinance 2020-_1, Amending KPB Title 4 Regarding Borough Elections
to Provide for Vote by Mail Elections, for More Time Between a Regular
Election and a Run-Off Election, and to Remove Proposition Statements
(Cox, Dunne, Hibbert)
In 2018, the Kenai Peninsula Borough entered into a conciliation agreement with
the Alaska Human Rights Commission which specified that the borough would
have an ADA compliant election process in place by the end of 2020.The Election
Stakeholders Group was formed in response to the case before the Alaska Human
Rights Commission. Resolution 2019-047 "Adopted Joint Resolution No. 2019-001
of the Assembly of the Kenai Peninsula Borough and Councils of the Cities of
Homer, Kachemak, Kenai, Seldovia, Seward and Soldotna, Recognizing the
Recommendations of the Kenai Peninsula Borough's Election Stakeholders Group
and Directing Staff to Explore Implementation of the Recommendations" was
adopted by the Assembly on September 3, 2019.
On December 27, 2019, the clerk's office entered into a contract with Resource
Data to prepare a feasibility study and cost analysis for Vote by Mail System
(VBMS) implementation and operation.
Resource Data's final feasibility study states, in section 2.1 . Overall Assessment -
Based on our review we believe that KPB will be able to successfully transition to
area-wide vote by mail elections.
This ordinance seeks to codify and therefore implement the following
recommendations of the Election Stakeholders Group: #1 Vote by Mail Hybrid, #4
Voter Pamphlet, and #b - Statements Advocating for Approval or Rejection of
Propositions as well the recommendations provided by Resource Data's feasibility
study.
Your consideration is appreciated.
210
Introduced by: Cox,Dunne,Hibbert
Date: 05/05/20
Hearing: 06/20/20
Action:
Vote:
KENAI PENINSULA BOROUGH
ORDINANCE 2020-24
AN ORDINANCE AMENDING KPB TITLE 4 REGARDING BOROUGH ELECTIONS
TO PROVIDE FOR VOTE BY MAIL ELECTIONS,FOR MORE TIME BETWEEN A
REGULAR ELECTION AND A RUN-OFF ELECTION,AND TO REMOVE
PROPOSITION STATEMENTS
WHEREAS, state statutes provide that the local governing body establish the procedures
governing local elections; and
WHEREAS, the remote nature of areas of the borough would make voting by mail more
efficient, convenient, and less complicated; and
WHEREAS, jurisdictions that have instituted vote-by-mail have experienced increased voter
participation; and
WHEREAS, recruiting, training and retaining election officials has been an ongoing challenge;
and
WHEREAS, by mail elections can be conducted with fewer election officials than in person
voting; and
WHEREAS, the Kenai Peninsula Borough entered into a conciliation agreement with the
Alaska Human Rights Commission which specified that the borough would have
an ADA compliant election process in place by the end of 2020; and
WHEREAS, the Kenai Peninsula Borough Assembly established the Election Stakeholders
Group ("ESG") through the direction and adoption of Resolution 2019-006,
which included community members and members from many local governments
in the borough, researched ways to increase voter participation by developing
sustainable election processes that maximize accessibility and inclusivity; and
WHEREAS, after holding many public meetings throughout 2019 the ESG issued a final report
with six specific recommendations regarding potential changes to borough code
and election processes which are intended to achieve guiding principles initially
adopted by the ESG; and
WHEREAS, recommendation number 1 of the ESG was for the borough assembly to transition
the election process from the current polling site structure to a vote by mail hybrid
structure (VBMS); and
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WHEREAS, recommendation number 6 of the ESG is that the assembly amend KPB 4.10.110
by deleting Section B which provides for the inclusion of statements advocating
voter approval or rejection of propositions in the voter pamphlet; and
WHEREAS, in the event of a run-off election, KPB 4.10.050 is amended to provide for an
extra week between the regular election and the run-off election to allow more
time for the clerk's office to get ballot packages out to ensure receipt by the voter
and return receipt by the borough; and
WHEREAS, recent catastrophic events including disaster declarations related to local floods,
fires and a global public health pandemic reinforce the need to implement a
VBMS election process that would allow for greater flexibility and voter
participating when events make it impractical or impossible to vote at a traditional
polling site; and
WHEREAS, in response to the current statewide emergency disaster, Governor Dunleavy
signed Senate Bill 241 in to law which, among other things, authorizes elections
to be conducted by mail during the emergency disaster;
NOW, THEREFORE, BE IT ORDAINED BY THE ASSEMBLY OF THE KENAI
PENINSULA BOROUGH:
SECTION 1. That KPB 4.10.020 is hereby amended as follows:
4.10.020. Definitions.
In this title, unless the context otherwise requires:
[A.] "Borough election" means any election:
1. To fill a borough office;
2. Upon a proposition submitted to the voters under the ordinances of
the borough; or
3. That the borough is required by law to administer.
[B.] "Borough office" means an elective office under the ordinances of the
borough.
[C.] "Clerk" means the clerk of the borough, any properly authorized assistant
or designee.
[D.] "Day" means a calendar day including Saturday, Sunday and holidays.
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[E.] "Election" includes a regular, special or run-off borough election.
[F.] "Election official" means the clerk and members of all election boards.
[G. RESERVED.]
[H.] "Election supervisor" means the clerk.
J] "Oath" includes affirmation on penalty of perjury.
[J.] "Precinct" means the geographical area for voting purposes that is defined
by the Alaska State Legislature.
[K.] "Proposition" includes question.
[L.] "Publication" means a newspaper of general circulation or posting in
public places.
[M.] "Qualified voter" means any person who has the qualifications required by
this chapter and is not disqualified under Article V of the Alaska State
Constitution.
[O.] "Regular election" means a general election to fill borough offices as
required by Alaska Statutes.
[P.] "Registration" or "registered" refers to the form of registration required by
the state election code. For borough elections, a person is registered if
registered to vote in state elections in the precinct in which that person
seeks to vote 30 days prior to the borough election.
[Q.] "Signature" includes any mark intended as a signature or subscription.
[R] "Special election" means any election held at a time other than when a
regular election is held.
[S] "Swear" includes "Affirm".
[T] "Total votes cast" means the total number of votes cast in each seat for
candidates whose names are printed on the ballot plus votes properly cast
for the same seat in the write-in position(s) of the ballot. Ballots which are
counted as blank votes in a particular race and ballots which are counted
as over votes in a particular race shall not be added into the total votes in
determining the percentage of votes cast.
"Vote center" means any location designated by the clerk for the purpose
of providing voter assistance that is not solely for casting votes for a
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specific precinct.
[U.] "Voter" means any person who presents himself for the purpose of
registering to vote or voting, either in person or by absentee application or
ballot.
SECTION 2. That KPB 4.10.050(C) is hereby amended as follows:
4.10.050. Election times.
C. Time of Run-off Election. When a run-off election is required by law, the
election shall be held on the [ d]fourth Tuesday following the regular
election or within [-2]3 weeks after certification of the results of the regular
election. The run-off election shall not be considered a special election
within the meaning of AS 29.71.800(21).
SECTION 3. That KPB 4.10.060 is hereby amended as follows:
4.10.060. Notice of elections.
A. The election supervisor shall publish a notice of each election at least
twice in one or more newspapers of general circulation in the borough.
The election supervisor shall also post such a notice in two conspicuous
places in each precinct. The first such publication, and the posting in each
precinct, shall be accomplished at least 20 days prior to a regular election
or at least 20 days before a special election.
B. Each notice of election shall include:
1. The type of election, whether regular, special or run-off,
2. The date of the election;
3. The notice of election shall state that the election is to be
conducted by mail and that there will be no precinct polling places
open for the election on election day.
4[3]. The hours the [ems] vote centers will be open and locations;
5[4]. The offices to which candidates are to be elected;
6[5]. The subjects of propositions to be voted upon;
7[6]. Voter qualifications and instructions for registration;
8[7]. Instructions for application for absentee voting;
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C. For run-off elections, the notice of the locations of the
.,�S] vote centers may be included or separate from the notice of the
election and publication shall be made at least once, no later than 5 days
prior to the run-off election. The notice of election shall be posted at 2
places within each precinct.
SECTION 4. That KPB 4.10.110 is hereby amended as follows:
4.10.110. Informational brochures for ballot propositions.
A. 21 days prior to each regular or special election the clerk shall prepare a
brochure containing information approved by the assembly of a strictly
factual nature pertaining to each proposition on the ballot to be included in
the ballot package. The clerk shall prepare instructions explaining to
voters how to mark ballots, and how to obtain new ballots to replace those
destroyed or spoiled, and how to return the ballots.
SECTION 5. That KPB 4.10.120 is hereby amended as follows:
4.10.120. Election supplies and equipment.
A. The clerk may contract for the provision of specialized election materials
and supplies without obtaining competitive bids. These specialized
materials and supplies shall include, but not be limited to, the official
borough voter pamphlet, election envelopes for absentee and questioned
voting, election signs, election software, computer equipment and voting
booths
SECTION 6. That KPB 4.10.130 is hereby amended as follows:
4.10.130. Election expenses.
A. The borough shall pay all necessary expenses relating to the conduct of
each borough election except as provided below for service area special
elections. Special elections held at the request of a service area and for the
primary benefit of the residents of that service area shall be paid for by the
service area requesting the special election. Necessary expenses shall
include those associated with conducting the election.
B. The borough or the service area as applicable shall pay each election board
member and canvass board member an hourly rate for time spent at his
election duties, including the receiving of instructions and posting of
notices. The election supervisor shall set the hourly compensation to be
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paid for time spent by election officials at a rate comparable to that paid
by the state for state elections. The clerk shall retain a record for auditing
and payment of election expenses, including the cost of giving notice,
renting vote centers, paying election officials, securing ballot receiving
sites, booths and other election necessities.
SECTION 7. That KPB 4.10.140 is hereby amended as follows:
4.10.140. Preservation of election ballots, papers and materials.
The clerk shall preserve all precinct election certificates, tallies, and registers,
receipts for ballots, all voted ballots and declarations of candidacy filed for one
month after the election is certified, unless the election is contested. If the
election is contested these records shall be preserved for one month after the
election contest is resolved and the election is certified. These materials may be
destroyed after their retention period has lapsed unless their destruction is stayed
by an order of the court. Certificates of the canvass board are to be preserved as
permanent records.
SECTION 8. That KPB 4.20.010 is hereby amended as follows:
4.20.010. Voter qualifications.
A. A person is qualified to vote in borough-wide elections who:
1. is a citizen of the United States;
2. is at least 18 years old;
3. has been a resident of the borough and the precinct in which the
voter is qualified to vote as provided by the state election code and
this chapter;
4. is registered to vote as required by the state election code in state
elections at least 30 days before any election;
5. is registered to vote in state elections at a residence address within
the borough at least 30 days before the borough election at which
the person seeks to vote.
B. A person that meets the requirements of Section 4.20.010(A) and has been
a resident of the assembly district in which the individual seeks to vote for
at least 30 days immediately preceding the election is qualified to vote in
assembly elections.
C. A person that meets the requirements of Section 4.20.010(A) and has been
a resident of the service area in which the individual seeks to vote for at
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least 30 days immediately preceding the election is qualified to vote in a
service are election.
SECTION 9. That KPB 4.20.020 is hereby amended as follows:
4.20.020. Rules for determining residence of voter.
For the purpose of determining residence for voting, the place of residence is
governed by the following rules:
A. The residence of a person is that place in which habitation is fixed, and to
which, whenever absent the person has an intention to return. If a person
resides in one place but does business in another, the former is the person's
place of residence. Temporary camps do not constitute a dwelling place.
B. A change of residence is made only by the act of removal joined with the
intent to remain in another place. There can only be one residence.
C. A person does not gain or lose residence solely by reason ofpresence while
employed in the service of the United States or of this state, or while a
student of an institution or asylum at public expense, or while confined in
a public prison or while residing upon an Indian or military reservation, or
while residing at the Alaska Pioneers Home.
D. No member of the armed forces of the United States, or that individual's
spouse or a dependent, is a resident of this state solely by reason of being
stationed in the state.
E. A person does not loseresidence for purposes of this section if the
individual travels to another country, state, or place within this state for
temporary purposes only.
F. A person does not gain residence without a present intent to establish a
permanent dwelling there.
G. A person who votes in an election held in another state loses residence in
this state, unless upon return that person reestablishes residence in this
state under the provisions of this chapter and state law.
H. The term of residence is computed by including the day on which the
person's residence commences and by excluding the day of the election.
SECTION 10. That KPB 4.20.030 is hereby amended as follows:
4.20.030. Registration.
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[A.] Only a qualified voter under the Alaska State Constitution and laws of
Alaska,as prescribed by this chapter, who has registered as required by the
state election code and KPB 4.20.010 may vote in an election.
SECTION 11. That KPB 4.30.030 is hereby amended as follows:
4.30.030. Public official financial disclosure statements.
A. Candidates for elective borough office shall file a public official financial
disclosure statement with the clerk as required by the provisions of AS
39.50 at the time of filing a declaration of candidacy. The name of the
candidate shall be placed on the ballot by the clerk only after the candidate
has complied with this requirement. This subsection does not apply to
candidates for service area boards. Declared write-in candidates shall file a
public official financial disclosure statement with the clerk as required by
the provisions of AS 39.50 at the time of filing a declaration of candidacy.
B. Each candidate also shall file the name and address of the campaign
treasurer with the Alaska Public Offices Commission no later than 7 days
after the date of filing for office. The name of the candidate shall be
placed on the ballot by the clerk only after the candidate has complied
with this requirement.
SECTION 12. That KPB 4.40.020 is hereby amended as follows:
4.40.020. Preparation and distribution.
A. The clerk shall obtain the printing of all ballots for borough elections. The
clerk shall possess the printed ballots at least [43]21 days before each
regular election and at least 1a9] days before each special and run-off
election. At that time, the ballots may be inspected by any candidate
whose name is on the ballot, or by his authorized agent, and any
discovered mistake shall be corrected immediately.
B. The clerk may contract for the preparation and printing of the ballots
without obtaining competitive bids.
SECTION 13. That KPB 4.40.030 is hereby amended as follows:
4.40.030. Sample ballots
The clerk shall obtain the printing of sample ballots. Sample ballots shall be
clearly labeled "Sample Ballot." Sample ballots shall be made available at vote
centers.
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SECTION 14. That KPB 4.50 is hereby amended as follows:
CHAPTER 4.50. ELECTIONS BY MAIL
4.50.010. Election officials.
A. Before each election, the clerk, subject to approval by the assembly, shall
appoint election officials.
B[C]. If any appointed election official is not able or refuses to serve, the clerk
may appoint a replacement for that official.
C[E]. All election officials before entering upon their duties must subscribe to
the oath required of all public officers by the Constitution of the State of
Alaska in the manner prescribed by the clerk.
D[F]. Candidates shall not serve as election officials. Certain familial
relationships may not exist between a candidate andan election officialin
regular, run-off or special elections. Those familial relationships are:
1. Mother, mother-in-law, stepmother;
2. Father, father-in-law, stepfather;
3. Sister, sister-in-law, stepsister;
4. Brother, brother-in-law, stepbrother;
5. Spouse; or
6. Person sharing the same living quarters.
E[G]. If the clerk knows or learns that any of these relationships exist, the
election official shall be notified and replaced.
4.50.015. By-mail precincts.
A. All Precincts within the Kenai Peninsula Borough shall be designated as
"by-mail"precincts. The procedures shall be as follows:
1. that ballots shall be sent to each registered voter in the precinct on
or before the [15th]21st day prior to the regular election and 15th
day prior to a run-off election; and
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2. that voted ballots must be postmarked on or before midnight of
election day and received by the clerk no later than the Tuesday
following the election.
B. Voters wishing to vote in person may do so at any designated vote center.
4.50.025. Procedures for conducting elections by mail.
A. The clerk shall mail by non-forwardable mail an official ballot package
with a return identification envelope addressed to the Clerk's Office and a
secrecy sleeve. The ballot, return envelope, and secrecy envelope shall be
mailed no later than the 21st day before the date of a regular or special
election and no later than the 15th day before the date of a runoff election.
The ballot shall be sent to the address stated on the official registration list
unless
1. the voter has notified the clerk in writing of a different address to
which the ballot should be sent; or
2. the address on the official registration list has been identified as
being an undeliverable (UN) address or is in the condition of purge
notice (PN).
B. On receipt of any ballot described in this section, the voter shall mark the
ballot, sign the return identification envelope suplied with the ballot, and
comply with the instructions provided with the ballot. The voter may
return the marked ballot to the Clerk's Office by return mail or by
depositing the ballot at any of deposit designated by the clerk. The
ballot must be returned in the identified envelope. A ballot must be
received by the clerk or at a place of deposit designated by the clerk, not
later than the end of the period determined under regulations established
by the clerk.
SECTION 15. That KPB 4.70.020, .030, 040 .070 are hereby amended and KPB 4.70.100 is
hereby deleted as follows:
4.70. BALLOT COUNTING PROCEDURES
4.70.020. Commencement of ballot count.
Upon receipt of voted ballot packages the election official will
verify that the voter has provides at least one identifier, signed the
envelope and that the signature has been witnessed. If the ballot package is
complete and valid the package will be sorted by precinct and the ballot
and identifying envelope will be separated. The ballot will proceed to be
scanned and counted. The unofficial results will not be tallied until the end
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of the designated election period.
4.70.030. General procedure for ballot count.
[A.] The election supervisor may issue rules prescribing the manner in which
the precinct ballot count is accomplished so as to assure accuracy in the
count and to expedite the process. The election board shall account for all
ballots by completing a ballot statement containing (1) the number of
official ballots received; (2) the number of official ballots voted; (3) the
number of official ballots spoiled; (4) the number of official ballots
unused and destroyed. [THE BOARD SHALL COUNT THE NUMBER OF
QUESTIONED BALLOTS AND SHALL COMPARE THAT NUMBER TO THE NUMBER
OF QUESTIONED VOTERS IN THE REGISTER.] Discrepancies shall be noted
and the numbers included in the certificate prescribed by the [ELECTION
SUPERVISOR]clerk. When hand counting ballots, the election [BOARD]
official shall count the ballots in a manner that allows watchers to see the
ballots when opened and read. No person handling the ballot after it has
been taken from the ballot box and before it is placed in the envelope for
mailing may have a marking device in hand or remove a ballot from the
immediate vicinity [OF THE POLLS].
4.70.040. Rules for counting hand-marked ballots.
A. The election officials shall count hand-marked ballots according to the
following rules:
1. A voter may mark his ballot with a cross mark, "X" mark,
diagonal, horizontal or vertical mark, solid mark, star, circle,
asterisk, check or plus sign using the marking device provided at
the [POLLING PLACE] vote center or with any black-inked marker.
The marks will be counted only if they are clearly spaced in the
square opposite the name of the candidate the voter desires to
designate.
2. A failure to properly mark a ballot as to one or more candidates
does not itself invalidate the entire ballot.
3. If a voter marks fewer names than there are persons to be elected
to the office, a vote shall be counted for each candidate properly
marked.
4. If a voter marks more names than there are persons to be elected to
the office, the votes for candidates for that office shall not be
counted.
5. The mark specified in subsection I of this section shall be counted
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only if it is substantially inside the square provided, or touching the
square so as to indicate clearly that the voter intended the
particular square marked.
6. Improper marks on the ballot shall not be counted and shall not
invalidate marks for candidates properly marked.
7. An erasure or correction invalidates only that section of the ballot
in which it appears.
B. The rules set out in this section are mandatory and there shall be no
exceptions to them. A ballot may not be counted unless marked in
compliance with these rules.
4.70.070. Tally of votes.
[A.] Tally of votes cast by paper ballots. The clerk shall issue instructions and
shall provide forms and supplies for the tally of votes cast by paper ballot
so as to assure accuracy and to expedite the process. The election board
shall canvass and count the votes according to the rules for determining
marks on ballots prescribed in KPB 4.70.040. The election board shall
canvass the ballots in a manner that allows watchers to see the ballots
when opened and read. No person handling the ballot after it has been
taken from the ballot box and before it is placed in the envelope for
delivery to the election supervisor may remove a ballot from the
immediate vicinity of the polls or have a marking device in hand.
SECTION 16. That the KPB 4.80 title and sections 4.80.030, .060, .080, .095, are hereby
amended, and sections 4.80.120, .130, .140 and .150 are hereby enacted as
follows:
4.80. ABSENTEE AND VOTE CENTER VOTING
4.80.030. -Eligibility.
Any qualified voter may vote at a vote center for the precinct in which [HE] the
voter resides and is registered if the voter was unable to vote by mail whether
inside the borough or not.
4.80.060. [ABSENTEE]Vote center voting—In person.
A. A qualified voter may apply in person for an absentee ballot at the office
of the clerk during regular office hours, or the voter may apply to the
nearest city clerk's office or [ABSENTEE VOTING]election official [IN
HIS AREA ]during regular office hours.
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B. On receipt of an application in person for an absentee ballot and exhibition
of proof of identification as required in this title, the [CLERK]election
official shall issue the ballot to the applicant.
C. The voter shall proceed to mark the ballot in secret, to place the ballot in
the small envelope, to place the small envelope in the larger envelope in
the presence of the election official who shall sign as attesting official and
date [HIS ]of the signature. The election official shall then accept the
ballot.
D. The election official may not accept a marked ballot that has been
exhibited by an absentee voter with intent to influence other voters. If the
[ABSENTEE] voter improperly marks or otherwise damages a ballot, the
voter may request, and the election official shall provide [HIM]the voter
with another ballot up to a maximum of three. Exhibited, improperly
marked, or damaged ballots shall be destroyed. The numbers of all ballots
destroyed shall be noted on the ballot statement.
E. Each [ABSENTEE VOTING]election official shall keep a record of the
names and the signatures of voters who cast absentee ballots before
[HIM]the election official and the dates on which the ballots were cast.
F. Fifteen minutes before the closing of the vote center, and at the time of
closing the voter center, an election official shall announce both the
designated closing_ time and the actual time at which the announcement is
made. Failure to make the announcement at 15 minutes before closing
time shall not in any way invalidate the election or extend the time for
closing of the voter center. After closing, no person will be allowed to
enter the voter center for purposes of voting. Evely qualified voter present
and in line at the time prescribed for closing the voter center may
G. When the voter centers are closed and the last vote has been cast, the
election official shall account for all ballots by completing a ballot
statement containing, in a manner prescribed by the clerk, the number of
official ballots suplied.
4.80.080. Absentee voting—By electronic transmission.
B. A ballot electronically transmitted shall contain a copy of the ballot to be
used at the election in a form suitable for transmission. A photocopy of the
computerized ballot card to be used by persons voting in person at the
[POLLING PLACES] vote center is acceptable.
E. A voter who returns the absentee ballot by electronic transmission must
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comply with the same deadlines as for voting in person on or before the
closing hour of the [polls] vote centers.
4.80.095. Special needs voting.
A qualified voter with a disability who, because of that disability, is unable to go to
[a polling place] a voter center to vote may vote a special needs ballot. Special
needs ballots shall be issued and accounted for in accordance with the rules
adopted by the state for use in state elections and in effect at the time of the local
election.
4.80.120. Prohibitions.
A. During the hours that the vote centers are open, no election official may
discuss any political party, candidate or issue while on dut .
B. During the hours the vote centers are open, no person who is in the voter
center or within 200 feet of any entrance to the voter center ma,, apt to
persuade a person to vote for or against a candidate, proposition or
question. Nor may any person conduct other political activities that may
pertain to any future election or potential ballot proposition. The election
official shall post warning notices in the form and manner prescribed by
the clerk.
C. No voter may exhibit a ballot to an election official or any other person so
as to enable any person to ascertain how the voter marked the ballot,
except as provided in this chapter.
D. While the vote centers are open no election official may open any ballot
received from a voter, mark a ballot by folding or otherwise so as to be
able to recognize it, or otherwise attempt to learn how a voter marked a
ballot, or allow the same to be done by another person.
E. No person may leave the voter center with the official ballot that the
person received to mark.
4.80.130.Assisting voter.
A qualified voter who cannot read, mark the ballot, or provide a signature
may request assistance from an election official or not more than two persons of
the voter's choice. If the election official is requested, the official shall assist the
voter. If any other person is requested, the person providing assistance shall state
upon oath before the election official that the voter's ballot will be kept
confidential.
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4.80.140. Spoiled ballots.
The election supervisor shall specify uniform procedures for replacement,
registration and disposition of spoiled ballots. These uniform procedures shall be
provided in writing to the election judges.
4.80.150. Placing ballot in ballot box.
When the voter has marked the ballot, the voter shall inform the election
official. The clerk may require that the voter return the ballot to the election
official temporarily so that any stub which may be part of the ballot may be
removed by the election official. Any such requirement shall protect the secrecy
of the ballot. In all cases the ballot shall be deposited in the ballot box by the voter
in the presence of the election official unless the voter requests the election
official to deposit the ballot.
SECTION 17. That a new section KPB 4.90.015 is hereby enacted as follows:
4.90.015. Preparation for counting ballots delivered by mail.
A. Ballots may not be counted before 8:00 p.m., local time, on the day of the
election.
B. Not sooner than the tenth day before the date of an election, in preparation
for counting ballots delivered by mail, the election supervisor may
1. begin opening return identification and secrecy envelopes of
ballots delivered by mail and received; and
2. take any other actions that are necessary to allow the counting of
ballots delivered by mail to begin at 8:00 p.m., local time, on
election day.
SECTION 18. That KPB 4.90.020 and .040 are hereby amended as follows and KPB 4.90.30 is
hereby deleted as follows:
A. No later than the Monday following each election, the election canvass board shall meet in
public session and canvass all election returns. In full view of those present, the election
canvass board shall judge the applicability of by mail and absentee [AND QUESTIONED]
ballots, shall open and tally those accepted, and shall compile the total votes cast in the
election. [THE CANVASS OF THE BALLOT VOTE COUNTED BY THE PRECINCT
ELECTION BOARDS SHALL BE ACCOMPLISHED BY REVIEWING THE TALLIES
OF THE RECORDED VOTE TO CHECK FOR MATHEMATICAL ERROR BY
COMPARING TOTALS WITH THE PRECINCT'S CERTIFICATE OF RESULTS. ALL
OBVIOUS ERRORS FOUND BY THE ELECTION CANVASS IN THE TRANSFER OF
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TOTALS FROM THE PRECINCT TALLY SHEETS TO THE PRECINCT CERTIFICATE
OF RESULTS SHALL BE CORRECTED BY THE CANVASS BOARD. A MISTAKE
WHICH HAS BEEN MADE IN PRECINCT RETURNS THAT IS NOT CLEARLY AN
ERROR IN THE TRANSFER OF THE RESULTS FROM THE TALLIES TO THE
CERTIFICATE OF RESULTS EMPOWERS THE CANVASSING BOARD TO
RECOMMEND A RECOUNT OF THE RESULTS OF THE PRECINCT OR PRECINCTS
FOR THAT PORTION OF THE RETURNS IN QUESTION.]
B. Upon completion of the canvass, the canvassing board shall prepare a final certificate of the
results of votes cast by absentee[, QUESTIONED AND CHALLENGED] ballot[s] and of
votes cast by [REGULAR] by mail ballot, and shall prepare a written report of the results to be
submitted to the assembly.
[C. IF ELECTION MATERIALS HAVE NOT BEEN RECEIVED FROM A PRECINCT
PRIOR TO COMPLETION OF THE CANVASS, BUT ELECTION RESULTS HAVE
BEEN TRANSMITTED BY TELEPHONE, TELEGRAM, RADIO OR ELECTRONIC
TRANSMISSION, THE CANVASSING BOARD SHALL COUNT THE ELECTION
RESULTS RECEIVED. IF THE BOROUGH CLERK HAS REASON TO BELIEVE
THAT A MISSING PRECINCT CERTIFICATE, IF RECEIVED, WOULD AFFECT THE
RESULT OF THE ELECTION, THE CLERK SHALL AWAIT THE RECEIPT OF THE
CERTIFICATE UNTIL 2:00 P.M. ON THE TUESDAY FOLLOWING THE ELECTION.
IF THE CERTIFICATE IS NOT RECEIVED BY THE CLERK BY 2:00 P.M., TUESDAY,
THEN THE CERTIFICATE SHALL NOT BE COUNTED NOR INCLUDED IN THE
FINAL CERTIFICATION OF THE CANVASSING BOARD.]
[4.90.030. Procedures for handling questioned ballots.
THE CANVASSING BOARD BY MAJORITY VOTE MAY REFUSE TO
ACCEPT THE QUESTION AND COUNT THE BALLOT OF A PERSON
PROPERLY QUESTIONED. IF THE BALLOT IS REFUSED, THE CLERK
SHALL RETURN A COPY OF THE STATEMENT QUESTIONING THE
BALLOT TO THE VOTER, AND SHALL ENCLOSE ALL REJECTED
BALLOTS IN A SEPARATE ENVELOPE WITH STATEMENTS OF THE
BASIS FOR THE QUESTION. THE ENVELOPE SHALL BE LABELED WITH
"REJECTED BALLOTS" AND SHALL BE PRESERVED WITH OTHER
VOTED BALLOTS. IF THE BALLOT IS NOT REFUSED, THE LARGE
ENVELOPE SHALL BE OPENED, THE SMALLER INNER ENVELOPE
SHALL BE PLACED IN A CONTAINER AND MIXED WITH OTHER
ABSENTEE BALLOT ENVELOPES OR, IN THE CASE OF COUNTING
QUESTIONED BALLOTS, WITH OTHER QUESTIONED BALLOT
ENVELOPES. THE MIXED SMALLER ENVELOPES SHALL BE DRAWN
FROM THE CONTAINER AND OPENED, AND THE BALLOTS SHALL BE
COUNTED ACCORDING TO THE RULES FOR DETERMINING PROPERLY
MARKED BALLOTS.]
4.90.040.Voters not on official registration list.
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A person whose registration has been cancelled under AS 15.07.130(b)
[AND WHO VOTES A QUESTIONED BALLOT] shall not have [THE] their
ballot counted.
SECTION 17. That KPB 4.120 is hereby amended by amending the title, enacting KPB
4.120.005, and deleting KPB 4.120.010, .020, .030, .040 and .060 as follows:
CHAPTER 4.120. SPECIAL ELECTIONS [BY MAIL]
4.120.005. Procedure.
The clerk shall conduct special elections in accordance with the procedures set out
in this title for a regular election.
[4.120.010.VOTING BY MAIL—BALLOTS—BALLOT REVIEW—
BALLOT ENVELOPES.
A. THE CLERK MAY CONDUCT A SPECIAL ELECTION BY MAIL.
B. WHEN THE CLERK CONDUCTS A SPECIAL ELECTION BY MAIL,
THE CLERK SHALL SEND A BALLOT TO EACH PERSON WHOSE
NAME APPEARS ON THE OFFICIAL VOTER REGISTRATION LIST
PREPARED UNDER AS § 15.07.125 FOR THAT ELECTION. THE
BALLOT SHALL BE SENT TO THE ADDRESS STATED ON THE
OFFICIAL REGISTRATION LIST UNLESS THE VOTER HAS
NOTIFIED THE CLERK IN WRITING OF A DIFFERENT ADDRESS
TO WHICH THE BALLOT SHOULD BE SENT. THE CLERK SHALL
SEND BALLOTS BY FIRST CLASS, NONFORWARDABLE MAIL
ON OR BEFORE THE 22ND DAY BEFORE THE ELECTION.
C. THE CLERK SHALL REVIEW BALLOTS VOTED UNDER THIS
SECTION UNDER PROCEDURES ESTABLISHED FOR THE
REVIEW OF ABSENTEE BALLOTS.
D. THERE SHALL BE A SMALL BLANK ENVELOPE AND A RETURN
ENVELOPE SUPPLIED TO EACH BY-MAIL VOTER. THE RETURN
ENVELOPE SHALL HAVE PRINTED UPON IT AN AFFIDAVIT BY
WHICH THE VOTER SHALL DECLARE HIS QUALIFICATIONS TO
VOTE, FOLLOWED BY PROVISION FOR ATTESTATION BY A
PERSON QUALIFIED TO ADMINISTER OATHS OR ONE
ATTESTING WITNESS WHO IS AT LEAST 18 YEARS OF AGE.
SPECIFIC INSTRUCTIONS FOR VOTING A BY-MAIL BALLOT
AND A LIST OF THE APPOINTED ABSENTEE VOTING
OFFICIALS, THEIR HOURS AND LOCATIONS, WILL BE MAILED
TO EACH VOTER WITH THE BALLOT.
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4.120.020. CASTING BALLOTS.
A. UPON RECEIPT OF A MAIL-IN BALLOT, THE VOTER SHALL
CAST HIS BALLOT IN THE MANNER SPECIFIED IN KPB §
4.80.070. IF THE BALLOT IS CAST IN THE CLERK'S OFFICE, THE
CLERK SHALL RETAIN IT FOR DELIVERY TO THE CANVAS
BOARD. IF THE BALLOT IS CAST IN ANOTHER LOCATION, THE
VOTER SHALL RETURN IT BY MAIL TO THE CLERK
IMMEDIATELY FOR DELIVERY TO THE CANVAS BOARD.
B. A VOTER WHO DOES NOT RECEIVE A MAIL-IN BALLOT MAY
CAST HIS BALLOT IN PERSON AS SPECIFIED IN KPB § 4.80.060.
C. A VOTER MAY RETURN THE MAIL-IN BALLOT TO AN
ABSENTEE VOTING OFFICIAL AS PROVIDED IN KPB § 4.120.040.
4.120.030. NOTICE OF ELECTION—ELECTION DATE—PUBLIC
NOTICE.
A. THE NOTICE OF ELECTION CALLING FOR THE ELECTION MUST
STATE THAT THE ELECTION IS TO BE CONDUCTED BY MAIL
AND THAT THERE WILL NO POLLING PLACE OPEN FOR
REGULAR IN-PERSON VOTING ON ELECTION DAY. IN A BY-
MAIL ELECTION, ELECTION DAY IS THE DEADLINE BY WHICH
A VOTER'S BALLOT MUST BE RECEIVED BY THE BOROUGH
CLERK.
B. FOR EACH ELECTION CONDUCTED BY MAIL, THE PUBLIC
NOTICE POSTED IN EACH PRECINCT AND THE NOTICE
PUBLISHED IN NEWSPAPERS OF GENERAL CIRCULATION IN
THE AREA OF THE ELECTION JURISDICTION WILL INCLUDE
THE INFORMATION SPECIFIED IN KPB § 4.120.040.
4.120.040. ABSENTEE VOTING OFFICIALS—DUTIES.
A. THE BOROUGH CLERK MAY, WITH THE APPROVAL OF THE
CITY CLERKS IN THE BOROUGH, APPOINT CITY CLERKS OR
OTHERS IN THE AREA TO ACT AS ABSENTEE VOTING
OFFICIALS. IF NO CITY CLERK IS AVAILABLE OR IF THE CITY
CLERK IS UNABLE OR UNWILLING TO ACT AS AN ABSENTEE
VOTING OFFICIAL, THE BOROUGH CLERK MAY APPOINT ANY
QUALIFIED VOTER TO SERVE AS AN ABSENTEE VOTING
OFFICIAL. THE CLERK SHALL SUPPLY ADEQUATE VOTING
SUPPLIES AND BALLOTS TO THE ABSENTEE VOTING
OFFICIALS. THE CLERK SHALL PROVIDE MODERATE
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COMPENSATION TO THE ABSENTEE VOTING OFFICIALS TO
COVER ADDED EXPENSES OF THE ADMINISTRATION OF THIS
SERVICE, WHICH SHALL BE AGREED TO BY THE ABSENTEE
VOTING OFFICIALS.
B. THE DUTIES OF THE ABSENTEE VOTING OFFICIALS SHALL BE
AS FOLLOWS:
1. PROVIDE ABSENTEE VOTING IN PERSON ON ANY DATE
INCLUDING THE DAY OF THE ELECTION FOLLOWING
THE PROCEDURES IN KPB 4.80.060 AND SPECIAL NEEDS
VOTING ON ANY DATE INCLUDING THE DAY OF THE
ELECTION FOLLOWING THE PROCEDURES IN KPB
4.80.095;
2. SIGN A VOTER'S BY-MAIL OATH AND AFFIDAVIT
ENVELOPE AS AN AUTHORIZED ATTESTING OFFICIAL,
EXCEPT THAT THE ABSENTEE VOTING OFFICIAL MAY
NOT ATTEST HIS OR HER OWN BALLOT;
3. ACCEPT RECEIPT OF A BY-MAIL VOTER'S HAND-
DELIVERED BALLOT, WHICH HAS BEEN SWORN TO,
ATTESTED AND SEALED IN THE BY-MAIL RETURN
ENVELOPE; AND
4. PROVIDE GENERAL VOTER ASSISTANCE, INCLUDING BY
NOT LIMITED TO, ASSISTANCE TO A QUALIFIED VOTER
WHO CANNOT READ, MARK THE BALLOT, OR SIGN HIS
NAME, AND PROVIDING REPLACEMENT BALLOTS TO
VOTERS WHO HAVE IMPROPERLY MARKED OR
DAMAGED THEIR BALLOTS.
5. DATE-STAMP ALL BALLOTS RECEIVED.
6. PROVIDE FOR THE SECURITY AND SAFEKEEPING OF ALL
BALLOTS RECEIVED AND PRESENT THOSE BALLOTS TO
THE CLERK FOR CANVASSING. THE BOROUGH CLERK
WILL SPECIFY THE MEANS OF RETURNING THE VOTED
BALLOTS AND ALL OTHER ELECTION SUPPLIES TO THE
BOROUGH.
4.120.060. STORING BALLOTS.
THE CLERK SHALL PROVIDE FOR THE SECURE STORAGE OF THE
MAIL-IN BALLOTS RECEIVED FROM THE VOTERS AND BY-MAIL
OFFICIALS, UNTIL THE DATE SET BY THE CLERK FOR THE COUNTING
OF THE BALLOTS.]
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SECTION 18. That this ordinance shall become effective immediately upon enactment.
ENACTED BY THE ASSEMBLY OF THE KENAI PENINSULA BOROUGH THIS
DAY OF *, 2020.
Kelly Cooper, Assembly President
ATTEST:
Johni Blankenship, MMC, Borough Clerk
Yes:
No:
Absent:
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