ОГЛАВЛЕНИЕ
What is Signature Verification?
Signature verification is the process of determining whether or not a signature which appears on a nomination or candidate list is the authentic signature of a qualified voter. A signature verification process can also include ancillary issues if the signature is deemed authentic. These issues include whether the signer is a resident of the candidate's electoral district and whether the signer meets other qualifications required in the electoral law.
The verification of signatures is demanding especially for election commissions facing limited financial and/or human resources. There are, however, several types of signature verification techniques which may be utilized to fulfill the needs and requirements of the election commission. This guide will review various methods, suggest certain procedures, and make recommendations regarding the implementation of a signature verification process.
What is the Purpose of Signature Verification?
Signature verification is one of the ways an election commission can ensure that only qualified candidates and/or candidate lists appear on the ballot paper. Signature verification is a necessary element in a transparent electoral process since all candidates and candidate lists must conform to the provisions of the electoral laws. An election cannot be considered «free and fair» if unqualified candidates are allowed to remain on the ballot.
It is the obligation and responsibility of the election commission to actively develop appropriate regulations and implement an effective signature verification program that is within the bounds of the law.
Establishing a Signature Verification Program
A signature verification program, in order to be effective, must take into consideration:
- a review and interpretation of existing electoral laws
- the needs of the electoral commission
- the funds and resources available to the electoral commission
- the types of signature verification methods available
- the development of rules and procedures for the election commission
- implementation of the approved signature verification procedures
Review of Existing Electoral Laws
Before developing and implementing a signature verification procedure, the election commission must interpret and understand the legal requirements of the electoral laws.
The topics in this review should include:
- the responsibilities of the election commission
- the registration of voters
- the manner in which registration documents are maintained
- the nomination of candidates and/or candidate lists
- the method in which signatures may and may not be collected
- the number of valid signatures that may be submitted either by an electoral association, electoral bloc or a candidate
- the specific reasons a signature may be invalidated
- requirements for placing a referendum on the ballot.
The election commission must also be aware of required timelines that impact on the verification process and decisions of the commission.
The Federal Law on Basic Guarantees of the Electoral Rights of the Citizens of the Russian Federation (»Basic Guarantees Law») provides the foundation for voter registration, ballot access by candidates and candidate lists, and general requirements for election commissions. Articles applicable to the verification of signatures are reviewed below.
Article 3 - Principles of Conducting Elections and Referenda in the Russian Federation
Clause 3
- provides for participation of a citizen in elections and referenda to be free and voluntary.
Article 4 - Universal Suffrage and the Right to Participate in Referendum
Clause 1
- establishes the legal requirements for voting, i.e.,
- a citizen of the Russian Federation, and
- at least 18 years of age.
Clause 2
- allows electoral participation by a voter regardless of
- sex,
- race,
- nationality,
- language,
- origin,
- property,
- official status,
- place of residence,
- religion,
- beliefs,
- affiliation to public associations, and
- other factors.
Article 17 - Registration of Voters, Referendum Participants
Clause 1
- requires all citizens of the Russian Federation who are eligible to vote to register.
Clause 2
- establishes the registration of voter as a permanent registration, within the limits of a current residence.
Article 18 - Compiling Lists of Voters, Referendum Participants
Clause 1
- provides for the relevant election commission to compile lists of voters and referenda participants for the purpose of verify data and to conduct voting.
Clause 10
- establishes the manner in which voter lists may be compiled including
- data arranged in alphabetical order or other order such as populated areas, streets, blocks of apartments on the basis of voters' address
- family name, given name, patronymic name
- date, month and year of birth
- address of residence
- signature of the chairman and secretary of the appropriate election commission
Clause 12
- allows for the election commission to update the lists of voters.
Clause 13
- requires the election commission to display the voters lists for public acquaintance and updating not later than 20 days prior to election or referenda day.
Clause 14
- establishes the manner in which a citizen can correct an error on the list and defines the exclusion of a voter to include the date and reason for excluding the person from the list of voters.
Articles 19-25 - Formation of Electoral Districts, Precincts, Referendum Precincts, Formation of Election Commissions and Referendum Commissions
- provides for establishing electoral districts, referenda districts, and election commissions, including composition, qualifications and certain duties.
Article 26 - Openness of the Activity of Election Commissions, Referendum Commissions
- outlines the openness of the election commission activities.
Article 28 - Right to Nominate Candidates
Clause 1
- allows for candidates to be nominated by voters, electoral associations, and/or electoral blocs.
Clause 2
- requires candidate to submit a written statement regarding his/her consent to run for office and a notice of the beginning of signature collections.
Clause 3
- sets the period for nomination of candidates or lists of candidates to
- at least 45 days for elections of President, deputies of the State Duma and other federal bodies
- at least 30 days for elections of the bodies of the state power of Subjects of Russian Federation
- at least 20 days for elections of the bodies of local self government, Heads, and other municipal officials.
Clause 4
- allows all candidates equal rights and equal obligations.
Article 29 - Nomination of Candidates Directly by Voters
Clause 1
- provides for nomination candidates directly by voters and through the collection of signatures in favor of the candidates.
Article 30 - Nomination of Candidates by Electoral Associations, Electoral Blocs
Clause 1
- allows for electoral associations and electoral blocs to nominate candidates.
Clause 4
- requires the list of candidates nominated by electoral association and electoral blocs to be submitted to the election commission.
Article 31 - Collection of Signatures of Voters in Favor of Candidates (List of Candidates)
Clause 1
- allows for signatures of voters in favor of candidates to be collected in accordance with electoral laws.
- sets the maximum amount of signatures required for candidates (list of candidates) to not exceed two per cent of the total number of voters in the relevant electoral district.
Clause 2
- sets the maximum number of signatures for candidates in a multi-mandate electoral district to not exceed two per cent of the number of voters in the district, divided by the number of mandates.
Clause 3
- allows that a quota may be set for the collection of signatures at elections to federal bodies of state power.
- allows that excess signatures shall not be counted.
Clause 4
- provides for no quotas for the collection of signatures to bodies of state power or local self-government for separate parts of territories.
Clause 6
- specifies that signatures may be collected only from voters
- with an active registration
- who reside in the electoral district
- prohibits remuneration for the collection or solicitation of signatures
- prohibits collection of signatures when and where wages and salaries are paid.
- specifies that gross or repeated violations of above restrictions may serve as grounds for invalidation of signatures and/or withdrawal of a candidate.
Clause 7
- provides for the right to collect voter signatures to any adult competent citizen of the Russian Federation.
- allows for a candidate or electoral association to sign a contract with a signature collector for the collection of signatures.
Clause 8
- specifies that the signer must
- sign in his/her own hand
- included his/her first, last and patronymic names
- indicate his/her residence address
- record the series and number of passport or equivalent I.D.
- indicate the date when the signature was put on the list.
Article 32 - Registration of Candidates (List of Candidates)
Clause 2
- allows laws to set the ultimate number of signature limits not to exceed 15% of the signatures set by law.
Clause 3
- provides for a procedure to verify the authenticy of a voter's signature collected in support of a candidate and/or list of candidates.
- allows for all signatures or portion of the signatures randomly sampled to be verified.
- provides that if a proportion of signatures are found as inauthentic the candidate or list may not be certified.
- provides if there are not enough signatures, the election commission may refuse to register the candidate.
- allows for candidates representatives of electoral associations, electoral blocs and to be present at the signature verification process.
- indicates that signatures shall not be verified if they have been eliminated or crossed-out before the signatures were submitted.
Clause 4
- requires election commissions to register that candidates conform to provisions of the law within certain periods of time.
- within 10 days for candidates for elections to the federal bodies of state power.
- within 5 days for candidates for elections to the bodies of state powers and bodies of local self-government.
- requires a resolution by the election commission to register the candidate or refuse to register the candidate.
Clause 5
- specifies a candidate may be registered in only one electoral district.
Clause 7
- specifies reasons for denial of candidates and candidate lists.
- insufficient number of valid signatures.
- election propaganda conducted by the electoral association or electoral bloc prior to the registration of the candidate.
- electoral funding violations
- a proportion of insufficient signatures
- a number of signatures in excess of the maximum established by law.
- other violations of rules
- requires the relevant election commission to issue a copy of the commission decision with 24 hours of the decision.
Clause 8
- allows a candidate to withdraw at any time, but not later than three days before election day.
Clause 9
- allows an electoral association or electoral bloc to withdraw a candidate at any time, but not later than three days before election day.
Clause 10
- permits an electoral bloc to eliminate some candidates, but not more than 25 per cent of the total number of candidates.
Article 33 - Realization of the Initiative to Hold a Referendum
Clause 11
- allows for signatures of citizens in support of referendum to be collected in accordance with a procedure established by law.
- sets the maximum number of signatures in support of a referendum to not exceed two per cent of the number of citizens who have a right to participate in the referendum Subject of the Russian Federation.
- sets the maximum number of signatures in support of a referendum to not exceed five per cent of the number of citizens who have a right to participate in a local referendum.
- sets the number of referendum participates to be determined on the basis of registration as of January 1 or July 1 of the appropriate year.
Clause 12
- requires signatures to be collected on signature lists containing a formulation of the issue put to the referendum.
Clause 13
- allows for signatures to be collected over the entire territory of the proposed referendum.
Clause 15
- requires referendum initiative groups to count the total number of collected voter signatures.
- requires representative of the initiative group to hand over the numbered and stitched signature lists and a copy of the protocol to the election commission.
Clause 16
- requires the election commission to verify compliance with the law regarding the collection of signatures, as indicated in Article 32, Clause 3.
- requires the election commission to refuse a referendum based on the signature verification results.
Purpose of Signature Verification Requirements
Signature verification requirements are necessary to ensure that the election commission has the technology and knowledge to follow established procedures. Signature verification methods have different requirements, many of which are contingent on the manner in which registration lists are compiled and maintained.
By determining the signature verification requirements, an appropriate procedure can be developed and administered by the election commission. Any verification process must also be flexible and should be reviewed following the close of the verification period, in order to revise areas of difficulty.
An election commission must consider the following when developing a signature verification process:
- the type of source document available for the verification process.
- the type of information available from the source document.
- the manner in which registration lists are compiled and maintained.
- an estimate of the number of signatures/records that must be verified.
- an estimate of the number of candidates or lists required to be verified.
- the time frame for conducting the signature verification procedures.
- the funds available for the signature verification process.
- the personnel available to conduct the signature verification procedures.
- the type of equipment available for use during the signature verification process.
- the location(s) where the signature verification process is conducted.
Purpose of Signature Verification Guidelines
Signature verification guidelines are necessary to assure all persons and organizations that the election commission is acting within the perimeters of the law. If guidelines or rules are not established, the possibility of unfair treatment of candidates exists and the election commission can be criticized for its conduct. By establishing guidelines, which are available to all candidates, electoral associations, electoral blocs, and political parties, the election commission can avoid the appearance of impropriety, which can contribute to a lack of confidence in the entire electoral system. And because the verification of signatures is demanding, especially for election commissions facing limited financial and/or human resources, the guidelines can help the commission to administer their office in a professional manner.
Signature verification guidelines should include:
- the exact procedures which will be followed by the election commission including
- the date(s) of the signature verification process for a candidate(s).
- the manner in which the signature verification process will be conducted.
- the role of election commission personnel in the signature verification process.
- the role of volunteers in the signature verification process.
- the manner in which objections to the signature verification process can be filed.
- whether observers are allowed during the signature verification process.
- whether the media has access to the signature verification process.
- the date of the announcement of the results of the signature verification process.
- the manner in which a candidate, electoral association, or electoral bloc can object to the decision of the electoral commission.
Signature Verification Methods
Signature verification methods are all based on a visual comparison of data at some point during the verification process. This comparison may include verifying more than one piece of information in an effort to determine the validity of the signature. Although computer technology has improved and shortened the verification process, an electronic signature verification program, in which computers alone decide the authenticity of a signature, does not exist at this time. This type of verification would require both signature documents being compared, such as the registration record and the candidate list, to be of the same type and quality and to contain the same data.
There are computer programs which can provide listings of names with the same data in certain fields, however, it is still necessary to visually make a determination regarding the validity of the signature. However, many times the voter does not complete each source document the same manner and this serves to also complicate the process. An ideal situation would include verifying the source information, including the capability to actually compare a voter's signature with a source document. But since a person's signature is never exactly the same each time it is written, a person, not a computer, must attempt to accurately match the signatures to one another and decide on its validity.
Therefore, for the purposes of this paper, visual signature verification pertains to a strictly manual procedure, with little or no computer technology available, primarily working from paper source documents of varying quality. Electronic signature verification is a combination of advanced computer technology and human visual comparison.
Types of Source Documents
When undertaking a signature verification process, a review of available source documents and the information contained on each type of document can be beneficial to the electoral commission. The manner in which these records are maintained and accessed by the electoral commission are also important components to a signature verification process.
Generally speaking, source documents which contain the same information fields will be the most useful. Also, the verification process will be deemed more accurate if more than one information field is the verified in the process. However, the more documents included in the signature verification process, the more time consumed by the process, since the commonality of information between the documents must be determined.
Source documents to be considered by the election commission may include, but are not necessarily limited to:
- voter registration lists
- passport or other governmental identification documents
- vehicle or drivers license records
- birth certificate records
- death certificates or records
The specific information fields to compare may include, but are not limited to:
- first, last and patronymic name
- passport number or government identification number
- month, day and year of birth
- residence address
- hand-written signature
The electoral commission, in its verification guidelines, must determine which of the above information fields must agree in order to acknowledge that the signatures are the same. Is it sufficient to have agreement with the names, including correct spelling of all names, and date of birth? Or must there be agreement between the names, date of birth, and identification number. When source documents are maintained in the same manner, it is possible to have computer programs written to provide listings of potential similar matches, most commonly, by matching voter's name and date of birth. This list of potential matches then provides a starting point in the verification process.
Visual Signature Verification
The signature verification method that is most widely used and easiest to implement is the visual signature verification. This process relies on a person(s) who compares data from a source document to the data contained on the candidate's paper or list of candidates. The source document generally utilized for this visual comparison is the existing registration record of the voter, although other source documents which contain the necessary voter information may also be used.
Because of its simplicity, a visual signature verification is also the easiest to refute, since it depends upon the election commission staff's interpretation of similarities of information from different documents and deciphering hand-written information, including voter signature. Often the election commission staff does not have the experience or expertise required to accurately compare data and/or voter signatures with documents of varying quality.
There are trained professionals who can serve as «experts» in the field of signature verification, but these persons are generally called upon only in serious instances of forgery and multiple inauthentic signatures. These technical experts also can provide training to the election commission's staff and can supervise the verification process, by reviewing signatures where there is a dispute as to its authenticity.
Visual signature verification requires a source document containing the voter's original signature, a method for accessing that document, a person(s) trained to recognize signature consistencies, and documentation relating to the results of the verification process. The more detailed the method of visual signature verification, the more time the process consumes.
A visual signature verification process should include:
- a verification that the voter meets all signature qualifications if the signature proves to be authentic.
- an understanding that the signature need not be authenticated if certain required information is missing from the signature, i.e.
- all required names
- residence address
- identification number
- date signature was placed on list
- a cursory review of the voter's pertinent data , comparing it to the voter's original information on the source document.
- a more detail examination of unique characteristics of the signature such as the first letter in certain words, uncommon letters, the end strokes of certain letters, repeated letters, and the formation of numbers, where the voter's signature is actually verified.
- an examination of the signature sheet or page to determine whether a pattern exists between several signatures on the page or list.
- an examination of the «impression» the signer made when placing his or her signature on the document.
- the age of the signer at the time of the original signature and the age of the signer at the time of signing the candidate list or sheet.
- complete documentation indicating the results of the verification process.
Advantages of Visual Signature Verification
A visual signature verification process is quite common and the easiest to implement. This process can work with the existing documents and personnel of the electoral commission. It does not necessarily require additional funding or personnel. Election commissions can access source documents, train appropriate staff and volunteers, and verify signatures as required by law. This also includes verifying qualifications of the voters.
Disadvantages of Visual Signature Verification
A visual signature verification can be a slow and unfair process. It requires the election commission to determine whether the voter is a qualified signer, to find the source document(s) for the voter, and to compare the data to decide whether or not the signature is authentic. Depending upon the number of signatures to be verified, the procedure can continue for a length of time, beyond the time limits prescribed by the electoral laws.
Electronic Signature Verification
An electronic signature verification process relies on computer technology to assist in the verification procedure. Although computer technology can eliminate much of the labor intensive procedures, computer technology is costly, and quite frequently obsolete within a few years. The introduction of computers in the management of election information has proven to be effective and efficient, however.
In the signature verification process, computers can be designed to:
- determine whether a signer's residence is within the required electoral district.
- determine whether a signer's required information is accurately recorded, i.e.
- first, last, and patronymic names.
- residence address.
- identification numbers.
- month, day and year of birth.
- allow the election commission quick and easy access to a voter's source document.
- increase the number of signatures verified in a given period of time.
- allow for a visual signature comparison of the data and/or signatures from a computer monitor, instead of a paper document.
- track and count the number of authentic signatures processed.
Many computer applications require data entry operators to input the information from a paper source document into the data base. Depending upon the number of entry fields and information required in the information management system, this process is time-consuming, but it allows for a permanent data file of voter information. Most data bases of registration files contain:
- all required names of the voter.
- voter's residence address.
- date the voter registered or was added to the registration file.
- voter's birth date.
- voter's required identification numbers.
- electoral district(s) in which voter resides.
More advanced computer technology allows for a «scanning» of the source document. This «scanning» is similar to a photo-copying procedure, whereby the information on the source is basically compressed in dots or pixels and stored on a magnetic or optical disk. When the information is retrieved, it is presented both on the screen and in a printed form. Some technologies also have signatures digitized which is a function of scanning a signature or document to encode the image of a signature in a computer.
Computer systems, programs, and equipment are available and are rapidly changing the manner in which election data is compiled and maintained. An electronic signature verification process should include the capability to:
- determine whether the signer's name appears in the registration file.
- determine the signer's electoral district.
- readily access the signer's source document signature.
- indicate whether the signer's name has already been verified and therefore appears on other candidate lists.
- track and count the number of authentic signatures.
These computer applications can eliminate some manual processes, however, the voter's signature will still be verified by the visual method. However, depending upon the technology, this verification may be from a digitized signature which has been expanded to allow for a clearer examination on a computer monitor.
The electronic signature verification process should also include certain requirements which are listed under the visual signature verification process including:
- a verification that the voter meets all signature qualifications if the signature proves to be authentic.
- an understanding that the signature need not be authenticated if certain required information is missing from the signature, i.e.
- all required names
- residence address
- identification number
- date signature was placed on list
- a cursory review of the voter's complete signature, comparing it to the voter's original signature on the source document.
- a more detail examination of unique characteristics of the signature such as the first letter in certain words, uncommon letters, the end strokes of certain letters, repeated letters, and the formation of numbers, where actual signatures are reviewed.
- an examination of the signature sheet or page to determine whether a pattern exists between several signatures on the page or list.
- an examination of the «impression» the signer made when placing his or her signature on the document.
- the age of the signer at the time of the original signature and the age of the signer at the time of signing the candidate list or sheet.
Advantages of Electronic Signature Verification
An electronic signature verification process relies on computer technology to enhance the performance of the election commission staff. It avoids human errors that can occur in finding a name on a registration list, determining the voter's electoral district, and manually tabulating the results of the verification process. It also allows for more signatures to be verified in a shorter period of time.
Disadvantage of Electronic Signature Verification
One of the most significant disadvantages of electronic signature verification is the cost involved in acquiring the computer technology and maintaining it. A serious commitment must be made on the part of the election commission and a serious review of the requirements of the system should be developed before purchasing a system. If computer technology is already available, enhancements to the current system can be made, depending upon the needs and financial situation of the election commission.
Random Sampling Methods
Random sampling methods are often utilized to verify a large number of signatures in referendum or initiative questions and for offices elected state-wide or nationally, where signatures are collected over several electoral districts. A random sample can assist the election commission in projecting the number of valid and invalid signatures filed, however the process which is followed should be permitted under the current electoral law.
Most electoral laws allow an election authority the option of conducting a random sample within guidelines. The law also establishes a manner in which to project the results of the random sample to the whole district or office. Where there is concern that the random sample is not fair because a computer generates the numbers, the electoral commission could devise its own random sampling technique, such as randomly drawing numbers at an open lottery. The numbers would correspond to signature lines on the candidate lists. This type of random selection would be made in process open to the political parties, the candidates, and the media.
In order to avoid the possibility of a random sampling ignoring entire geographic districts or areas, the electoral commission could adopt a method to apply on a page by page basis or district by district. The same random numbers could be applied sheet by sheet or district by district.
There must be two safeguards built into any random program, however, to ensure confidence in the action. First, the method to be followed must be kept in confidence by only a limited number of employees until it is announced by the electoral commission, after petitions have been filed. Second, once the procedure is announced, the actions of the electoral association must be open to the public to be scrutinized. Both of these safeguards can effectively prevent cheating or abuses.
A Random Sample
A random sample relies on consecutive numbering for the document being verified and a random generator for selecting which numbers to verify. The sample may also require a certain percentage of signatures to be verified, with the signatures chosen at random.
The easiest way to explain a random sample approach is by example, such as a candidate for state office, with signatures collected throughout the country. A random sample verification program should incorporate these procedures.
- Signatures for the candidate should be filed by electoral district, with a count of the number of signatures filed from each district included with the documents. The percentage of signatures coming from each district should also be calculated.
- Each electoral district shall consecutively number the signature sheets filed for that office, in no particular order.
- Using a random generator computer program, numbers should be selected to be verified. These numbers are not be made public until the signature verification process has been started.
- The signature sheets selected to be verified through the random generator should be separated from the remaining sheets for purposes of processing.
- The election commission can determine whether to verify all signatures on the selected sheets or to run another random selection to choose the specific signature lines to verify.
- All regular signature verification procedures are used to verify the appropriate signers.
- Upon the completion of the random signature verification, the election commission shall calculate the ratio of invalid or valid signatures on each sheet.
- The election commission shall then apply the ratio of invalid to valid signatures for each sheet to the total number of sheets filed in the electoral district.
- If a determination is made during the signature verification pertaining to multiple or duplicate signatures, the election commission shall compute the degree of multiple signatures contained on each sheet and shall adjust the totals for this figure.
- Based on the random verification, the election commission shall aggregate the total number of projected valid and invalid signatures from the electoral district.
The total projected from each electoral district should be aggregated to project the total valid and invalid signatures state wide.
Proposed Signature Verification Rules and Procedures
Guidelines for the signature verification program should explain what will be done, how it will be done, who will do it, and when it will be done. If it is not possible to incorporate the guidelines into the electoral law, the election commission should publicly approve the guidelines in advance of the starting time of the verification process.
Human Resources and Budgetary Considerations
There are many electoral commissions which face limited budgets and limited personnel. For this reason, the electoral commission must look to alternate methods of accomplishing required duties. One potential source of extra workers may be volunteers from NGOs who can work directly with the electoral commission. Criteria for this volunteer group should include:
- non-partisan activity on the part of the NGO.
- no campaign or political activity on the party of the volunteers who are willing to work for the electoral commission.
- volunteers who are willing to work for the electoral commission and who agree to abide by all rules and procedures set by the electoral commission.
Budgetary considerations must be addressed by the electoral commission, so that all required tasks are accomplished. In any signature verification process, the most costly item may be personnel wages, since the process is usually tedious and time consuming. Of course, if computer technology is desired, an additional strain on the budget may occur.
Initial Review of Document
The first step in the process however, should be an initial review of the document, so as to avoid extra work if the document is determined to not be filed properly. When beginning a signature verification program, the election commission should establish those procedures which result in the most efficient processing of the work. These basic checks can prevent timely signature verification procedures, that may not be necessary for every candidate and/or list.
1. Determine the number of valid signatures needed by a candidate and/or candidate list in order to be registered by the election commission. The electoral law provides a percentage requirement which the election commission should calculate and publish by electoral district.
2. Check the candidate's qualifications.
- Does the candidate appear as a registered voter in the appropriate electoral district?
- Does the candidate meet the requirements to be elected, as indicated in the electoral laws?
- Did the candidate submit all statements and documents as required by the electoral laws?
3. Review the format of the candidate list/signature sheet/petition.
- Do all pages comply with required electoral provisions?
- Are the sheets properly bound together?
- Are the pages properly numbered?
- Are all sheets uniform?
- Does the required language appear on each sheet?
- Are all sheets for a referendum bound together by electoral district.
- Is a count of signatures provided with the documents?
4. Check the signature sheets/candidate lists/nomination petitions.
- Verify the count of signatures submitted.
- Determine the number of signatures that have been submitted over the minimum needed to qualify the candidate or candidate list.
5. Check each signature sheet or page for similar patterns, which may indicate fraudulent signature collection.
- Are all signatures made in the same color ink?
- Does there seem to be a pattern of repeated similar signatures? Round-tabling is practice where several people sit around a table and copy names from a registration list, so that every few signatures are signed by the same person.
- Is the slant or direction of writing the same for all signatures?
- Do the names appear in either alphabetical or geographical order?
6. Examine the signature of the person who circulated or collected the signatures.
- Is the person a qualified voter in the appropriate electoral district?
- Does the sheet meet the requirements of the law including language and date?
Begin a signature by signature verification only if candidate or candidate list is still within the required limits of the law. If one of the above situations invalidates a number of signatures, and the candidate no longer meets the signature requirements, do not proceed with the signature by signature verification.
Signature Verification Rules
The rules proposed below are provided as a sample for consideration by election commissions.
1. Within 24 hours of the last day to place candidate names or lists on the ballot or to place a referendum on the ballot, the election commission shall meet and pass upon these Signature Verification Rules and Procedures.
- All candidates, electoral associations, electoral blocs, and political parties may be present at this meeting.
- The election commission shall allow time for public comment prior to taking action on the rules.
2. A clear and complete record shall be kept of all election commission actions and comments by those present at the meeting.
3. The election commission shall determine a time, place, and location for the commencement of the signature verification process.
4. The election commission shall adopt a policy regarding the number of observers permitted during the signature verification process.
5. The election commission shall determine whether to permit media access to the signature verification process.
6. The election commission shall appoint an executive member to be responsible for the conduct of the signature verification process and shall approve Signature Verification Procedures for Clerks (see below).
7. The signature verification process shall include an examination of all relevant records, to determine whether:
- the signer's name appears on the voter registration list.
- the signer's residence is within the appropriate electoral district.
- the signature contains the correct information regarding the signer's identification numbers.
- the signature is valid and is that of the person who is listed on the registration file.
8. The clerks and volunteers of the election commission shall consist of signature verification teams to conduct a record examination. The election commission, at its discretion, may assign as many teams as necessary to conduct the signature verification process.
9. Each two-person team of clerks may be observed by designated representatives, as authorized by these rules. However, the failure of an observer to timely appear at the verification process shall not affect the start or the validity of the process.
10. The verification team of election commission clerks shall be provided with a form on which to note the results of the examination. At the conclusion of the verification process, an observer may sign the form, but failure of an observer to sign such form shall not invalidate the results of the verification process. A photo copy of the completed forms may be made available to observers upon request.
11. During the conduct of the signature verification process, if an observer wishes to object to the findings made by the election commission clerk, the observer must immediately inform the clerk of his/her objection to the finding and the clerk shall note the same on the form. If an observer does not object to a finding at the time of the entry made by the clerk on the form, the observer may not present any evidence or argument of any kind with respect to that finding or the issue to which it relates and any objection to the clerks' finding is waived.
12. The election commission shall decide whether any subsequent records or a secondary source document may be checked during the signature verification process.
13. Prior to determining the candidate or candidate list conforms to the requirements of the electoral law, the election commission shall consider:
- any objections to the findings made by the election commission clerks during the signature verification process.
- whether the nomination papers or candidate lists contain the required number of signatures.
- whether the candidate meets the requirements of the law in regards to the manner and appearance of the document to place his/her name on the ballot.
- whether all required additional forms or statements were received from the candidate, electoral association, or electoral bloc.
14. At the discretion of the election commission, arguments may be heard prior to the election commission decision. Arguments may be submitted to the election commission during an allotted period of time or in writing.
15. The election commission shall state its finding in wiring and shall state whether the candidate had been registered or refused registration. A copy of the election commission decision shall be provided to all interested representatives.
16. The working hours for the verification process shall be determined and set by the election commission. These working hours may be amended as needed and must be posted on the outer door at the location where the signature verification process is occurring.
17. Any representative disagreeing with the decision of the election commission must file an objection with the election commission within 24 hours of the decision. The objection must state a specific reason(s) for the objection and shall request a review by the election commission.
Signature Verification Procedures for Clerks of Election Commissions
1. Each team of clerks shall receive a file folder containing
- the candidate's paper, candidate list, or referendum sheets
- signature verification worksheets
- Signature Verification Rules approved by the election commission
- Signature Verification Procedures for clerks approved by the election commission
2. One clerk shall act as the official secretary of the team and shall complete all forms, however both clerks shall sign the forms.
3. One worksheet shall be used for each signature page to be examined during the signature verification. The worksheet shall be numbered or otherwise identified so that it is clearly understood which original signature page the worksheet reflects.
4. Count the number of signatures on the signature page and record that number where indicated. Signatures that were eliminated by crossing out prior to submitting the papers are not counted.
5. Proceed to verify each signature as required. If a random sampling method is being utilized, verify only those signature indicated on the sheet.
6. Place a cross mark (x) in the column depending upon the findings of the signature verification. The categories are:
- signature or residence illegible
- signer not listed on registration file at residence indicated
- residence not in electoral district
- signature not authentic
- consult the signature guidelines for additional information
- other - if category not listed on worksheet
- valid and qualified signature
7. A cross mark (x) must appear in at least one column for each signature verified.
8. If an observer requests a second opinion on the authenticity of the signature, call the supervisor to provide the opinion.
9. If an observer objects a finding by the clerks and supervisor, draw a circle around the finding with a red pencil.
10. When all signatures have been verified on the sheet, total the number of cross marks in each column. Record the findings at the bottom of the worksheet where indicated.
11. Both clerks must sign the worksheet and ask observers to print their name and address and to sign the worksheet.
12. Proceed to the next signature page to verify, using a new worksheet.
13. When all signatures and worksheets are completed, place the documents in the folder and return to the supervisor.
Sample Worksheet
Sample worksheet for the signature verification process can be developed for each program.
Signature Verification Worksheet
Candidate __________________
District _____________________
Sheet No. __________________
Number of signatures on page _______________
Number of signatures to verify _______________
Line No.
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Valid and Qualified Signature
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Signature or Residence Illegible
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Signer not Listed on Registration File at Residence
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Residence Not in Electoral District
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Signature Not Authentic
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Other - Specify
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Totals
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Date _________________________
Signatures
Clerks
_______________________________
_______________________________
Observers
_______________________________
_______________________________
Suggested Revisions to Electoral Laws
(Note: In reviewing the «Basic Guarantees Law», I could find no references to the suggestions listed below. However, there were some specific clauses in the «Procedure for Collection of Signatures of Voters in Support of Candidates for Deputies of the State Duma of the Federal Assembly of the Russian Federation Nominated in Single Mandate Electoral Districts and Candidate Nominated by Electoral Associations, Electoral Blocs in the Federal Electoral District», dated 18 August 1995. However, I am unsure if this document is still applicable.)
The work of an election commission in the area of signature verification can be greatly simplified if the electoral laws are revised to clearly specify requirements for ballot access.
Candidate Lists or Signature Sheets
- All candidates lists or signature sheets must be of a uniform size (A-4 paper) and shall contain the original signatures of qualified voters. Photocopies of signature sheets or candidate lists shall not be accepted. Any signature sheet not conforming to these requirements shall not be verified or accepted.
- All signature sheets must be consecutively numbered and must be bound together at one end, but not so as to form a continuous roll of paper. Sheets which are not filed properly shall not be accepted.
- Signature sheets for a candidate for state wide office or for a referendum shall be collected by electoral district and shall contain the original signatures of qualified voters in the same electoral district. The sheets shall be bound by electoral district, and shall be consecutively numbered within each electoral district. Signatures for persons who do not reside within the electoral district shall not be verified or counted.
- The collector of signatures or circulator shall attest to the fact that he/she personally collected the signatures on the sheets bearing his/her signature. The circulator shall be a qualified voter of the electoral district. If the circulator is determined to be an unqualified voter, all signatures which he/she collected shall be invalidated.
- Duplicate signatures of the same voter shall be counted only once. If the duplicate signature appears on the candidate list/sheet for two candidates for the same office, neither signature shall be counted for either candidate.
Random Sampling
- Based on the sample utilized, calculate the ratio of invalid or valid signatures in each electoral district.
- Apply the ratio of invalid to valid signatures in an electoral district sample to the total number of signatures submitted from that electoral district.
- Compute the degree of multiple signature contamination in each election district sample.
- Adjust for multiple signature contamination and the invalid signature, project the total number of valid signatures from each electoral district and project the total number of valid signature on the petition/list statewide.
- If such statewide projection establishes a total number of valid signatures not greater than 95.0 per cent of the minimum number of signatures required to qualify for ballot certification, the petition/list shall be presumed invalid.
- If such statewide projection establishes a total number of valid signatures greater than 95.0 per cent of the minimum number of valid signatures required, the petition/list shall be considered valid.
Attachments
Selected List of Information Management and Electronic Signature Verification Companies
Sample Legislative Provisions
Attachment
Selected List of Information Management and Electronic Signature Verification Companies
There are numerous companies now involved with information management and electronic signature verification. Most of these companies are also moving into digitizing signatures and scanning documents, which is the next generation of computerized records.
Listed below are a few companies that deal with information management:
- Election Systems and Supplies (formerly American Information Systems and Business Records Systems)
- Fidlar and Chambers
- Eagle Imaging Information Systems
- Diverse Integrated Systems
- Global Election Systems
- PMI Imaging Systems
- Microvote Corp.
- Prism Systems
- Sequoia Pacific Systems
- Unisys Corp.
- Votec Corp.
The International Foundation for Election Systems (IFES) does not advocate the use any one information management company. More information on companies involved in information management and electronic signature verification can be obtained from the IFES/Moscow Elections Resource Center or from the F. Clifton White Resource Center in Washington, D.C.
Attachment
Sample Legislative Provisions
ОГЛАВЛЕНИЕ
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