Voluntary Voting System Guidelines

Overview

The United States Congress passed the Help America Vote Act of 2002 (HAVA) to modernize the administration of federal elections, marking the first time in our nation’s history that the federal government has funded an election reform effort. HAVA provides federal funding to help the states meet the law’s uniform and non-discretionary administrative requirements, which include the following new programs and procedures: 1) provisional voting, 2) voting information, 3) statewide voter registration lists and identification requirements for first-time registrants, 4) administrative complaint procedures, and 5) updated and upgraded voting equipment.

HAVA also established the U.S. Election Assistance Commission (EAC) to administer the federal funding and to provide guidance to the states in their efforts to comply with the HAVA administrative requirements. Section 202 directs the EAC to adopt voluntary voting system guidelines, and to provide for the testing, certification, decertification, and recertification of voting system hardware and software. The purpose of the guidelines is to provide a set of specifications and requirements against which voting systems can be tested to determine if they provide all the basic functionality, accessibility, and security capabilities required of voting systems.

This document, the Voluntary Voting System Guidelines (referred to herein as the Guidelines and/or VVSG), is the third iteration of national level voting system standards that has been developed. The Federal Election Commission published the Performance and Test Standards for Punchcard, Marksense and Direct Recording Electronic Voting Systems in 1990. This was followed by the Voting Systems Standards in 2002.

As required by HAVA, the EAC formed the Technical Guidelines Development Committee (TGDC) to develop an initial set of recommendations for the Guidelines. This committee of 15 experts began their work in July 2004 and submitted their recommendations to the EAC in the 9-month timeline prescribed by HAVA. The TGDC was provided with technical support by the National Institute for Standards and Technology (NIST), which was given nearly $3 million dollars by the EAC to complete this work.

The EAC reviewed and revised the TGDC recommendations and, as required by HAVA, published the proposed Guidelines for a 90 day public comment period. The document was also provided to both the Board of Advisors and the Standards Board for their review and comment. During the comment period the EAC conducted 3 public hearings on the Guidelines in New York City, Pasadena and Denver. Over 6000 comments were received from the public and the Boards. Each of these comments was reviewed and considered by the EAC in consultation with NIST in the development of this final version.

Purpose and Scope of the Guidelines

The purpose of the Voluntary Voting System Guidelines is to provide a set of specifications and requirements against which voting systems can be tested to determine if they provide all the basic functionality, accessibility and security capabilities required to ensure the integrity of voting systems. The VVSG specifies the functional requirements, performance characteristics, documentation requirements, and test evaluation criteria for the national certification of voting systems. The VVSG is composed of two volumes: Volume I, Voting System Performance Guidelines and Volume II, National Certification Testing Guidelines.