The Chief Electoral Office issued a consultation paper in June 2003 with a view to improving access to voting for disabled people.  A number of organisations and individuals responded through written submissions, interviews and meetings.  We would like to take this opportunity to thank those involved for the information and ideas provided during this consultation.

Based on the input we received and on analysis of measures taken by overseas electoral agencies the Chief Electoral Office developed this action plan - Improving Access to Voting for Disabled People.  We hope that this reflects the key themes and issues raised in the consultation.

This version of the action plan was updated just prior to the 2005 general election.  If you would like to comment on the action plan we are keen to receive any feedback. Please email chief.electoral.office@justice.govt.nz.  A new action plan will be developed for the next general election in 2008.

Improving access to voting for disabled people

Updated for the 2005 general election

Chief Electoral Office, Wellington

1. Background

The Chief Electoral Office (CEO) is responsible for the conduct of general elections, by-elections and referenda. It also provides advice to Ministers and to Select Committees of Parliament on electoral issues. The Office is a division of the Ministry of Justice, although in the application of the electoral law the Chief Electoral Officer acts independently.

Each parliamentary term the Chief Electoral Office seeks to improve its service to the voting public and to the political parties and candidates who contest elections. The Chief Electoral Office strives to ensure that there is public and political confidence in the management of elections and that the Office acts with integrity and impartiality.

Following the last general election, held in July 2002, the Chief Electoral Officer noted that whilst the election had generally been run well some improvements were required. One of these improvements was to provide a better service for disabled people.

2. Aim

Through the New Zealand Disability Strategy the government plans to change New Zealand from a disabling to an inclusive society. The CEO's role in achieving this objective is to reduce barriers to voting faced by disabled people. It is the aim of the Chief Electoral Office that as many people as possible are able to vote independently and in secret.

3. Business Environment

Planning for general elections and by-elections in New Zealand provides many challenges as the date of the election is unknown until a few weeks beforehand. Many tasks cannot be completed until the date is certain, for example the employment of many thousands of temporary staff and the securing of polling places. It is difficult for electoral staff to ensure that all polling places have access and facilities suitable for disabled voters. However, the Chief Electoral Office aims for at least 50% of polling places, and a minimum of 12 in each electorate, to have access suitable for disabled voters. In the 2002 general election 77% of polling places nation-wide were assessed as meeting the disabled access criteria. This criteria was developed by the Chief Electoral Office with help from the Disabled Persons Assembly. 

Under section 170 of the Electoral Act any elector who is wholly or partially blind or who is unable to read or write or has severe difficulty in reading or writing is entitled to request assistance from a nominated person or from the issuing officer. The nominated person will accompany the voter into the voting area and mark the ballot paper in accordance with the instructions of the voter. The voter may also request that the ballot paper is inspected before it is deposited in the ballot box.

4. Process for improvement

In June 2003 the Chief Electoral Office issued a consultation paper - Improving Services to Disabled Voters - and invited submissions. Twenty-six submissions were received from disability service providers and community organisations, and from members of the public. Based on these submissions and on analysis of measures taken by overseas electoral agencies the Chief Electoral Office is proposing to adopt three key priorities for the 2005 general election:

i) improve communication

ii) make voting more accessible

iii) improve disability awareness through staff training

This Action Plan outlines how the Chief Electoral Office intends to make these three improvements. The plan will be made available on the elections website and will be updated regularly. The Chief Electoral Office will work with the Electoral Enrolment Centre (EEC) to ensure enrolment is also covered. The CEO will also work closely with the Office for Disability Issues and with disability service providers and community groups. Many have offered to help the CEO disseminate information and others are willing for their premises to be used as polling places for all voters. These options and other opportunities will be explored further throughout the coming months. Processes for consultation and feedback are currently being developed.

A summary of consultation findings is available in Appendix 1.

5. Priorities for the 2005 general election

5.1 Communication

A number of the submissions received by the CEO identified targeted communication and the provision of information as essential to removing barriers to voting for many disabled people. Currently information is provided in a format that may not be accessible or comprehensible for some people. As a result, there is a lack of understanding of voting rights and of the enrolment and electoral processes. This may result in low participation at general elections among disabled people. Improving communication and a targeted dissemination of information will therefore be a high priority for the CEO as the 2005 election approaches.

5.2 Access to voting facilities

Inaccessible polling places

An obvious barrier to voting for disabled people is inaccessible polling places. For the 2002 general election the CEO worked with the Disabled Persons Assembly to develop specifications that could be used to assess polling places. The objective of the specifications was to ensure that polling places designated as accessible were in fact accessible. The CEO intends to review the existing specifications and make sure that polling places are carefully assessed against the specifications in future. In this way disabled voters can be confident that polling places advertised as accessible are indeed accessible.

Use of group facilities

For the 2005 General Election, the CEO hopes to work in partnership with a number of groups in the disability sector to explore the option of using their premises as advance voting facilities and polling places. Groups who may have premises with appropriate resources will be approached to see if they would be willing to have their facilities used as polling places. We emphasise that such polling places would be open to all voters.

We also intend to improve parking arrangements, provide supported voting spaces at advance voting facilities and improve furniture.

Advance voting

Advance voting is already available for disabled people so there is an option to vote in the weeks before election day when it is less busy. This option will be more widely publicised. All advance voting facilities will have access for disabled voters.

On-line voting

The CEO recognises that even with accessible polling places there may still be disabled people for whom voting proves difficult or even impossible. Many respondents suggested voting on-line or by telephone as alternatives to voting in person at a polling place. We have carried out a major review of this and we cannot provide this service for 2005 for both technical and legislative reasons. We are keen to trial on-line voting subject to Parliamentary approval once security issues have been overcome. 

Postal voting

Postal voting already exists for voters who are unable to get to a polling place on election day because of special circumstances. We will publicise this more.

5.3 Electoral staff

In preparation for the 2005 general election the importance of accessible polling places will be emphasised in staff training of Returning Officers. Disability awareness will also form part of the training programme for all electoral staff.

6. Plan for implementation

The following objectives clarify how the Chief Electoral Office intends to implement the three priorities and provide an estimated timeframe for completion. These objectives will be published on our website and will be regularly updated with reports on progress.

Priority 1 - Improve communication

The CEO will ensure that the needs of members of the community who live with a disability, their families, friends and those who provide services for people with a disability will be considered when developing our communications and information strategies. 

Objective 1.1 - Communication

The Chief Electoral Office and Electoral Enrolment Centre (EEC) communication plans will include strategies for providing information to disabled voters. The EEC currently gives presentations to groups to explain the enrolment process. This is a strategy that could be used to present information on the voting process.

Information on enrolment and voting will be prepared and distributed to service providers and community organisations to disseminate.

Timeframe: November 2004 & March 2005

Progress: The communications strategy is complete and being implemented.  We have provided articles for newsletters and publications to a number of groups this year and will continue to do so in the lead up to the election.  Articles will include the key message about the option of advance voting.  Our E78 brochure "Unable to get to a polling place on election day?" has been distributed to a number of disability groups to reinforce the advance voting message.  Polling places are listed here by electorate and identify the accessibility of each property.

Objective 1.2 - Information in alternative formats

Brochures targeted for different audiences will be developed and made available in plain English and large print. The possibility of producing brochures in formats such as braille, audio cassette, pictorial and phone recording will be investigated further.

Sample voting papers in large print will be available to assist voters with visual impairments. The option of braille templates will be explored.

Timeframe: November 2004

Progress: In association with the Royal New Zealand Foundation for the Blind we have now produced our "Voting in the 2005 general election - the easy way!" in braille, large print, audio cassette and html format.  Information will be available via the Foundations Telephone Information Service (TIS) before advance voting starts on 31 August 2005.

Discussions with groups representing those with visual impairments suggest that voting papers in large print would not be particularly useful unless voters could actually vote on them. Changes to existing ballot papers, such as changing the size of the paper or increasing the font size, are not possible.

It has also been suggested that the braille template may not be as useful as we thought. We will review this again with interested parties but the cost of producing templates for each of the 69 templates as well as the short timeframe may mean this initiative simply is not feasible.

The sign language film produced in collaboration with the Deaf Association has been completed and distributed to several interest groups throughout the country.  The film explains both the enrolment and voting processes in sign language, captions and sound.  The DVD has been very well received by the Deaf community.  It is also being used around the country by groups working with people with learning and intellectual disabilities.  IHC, MHC and People First have copies of the DVD and are using it as a tool to explain the voting process in plain language and pictorial format.

Objective 1.3 - Website reviewed and updated

The elections website will be reviewed and updated. Information will be provided in a format which is suitable for different audiences and which meets the W3C / Bobby standards. Other organisations will be asked to put links to our site on theirs.

Timeframe: November 2004

Progress: Our new website went live in mid-April. The new site meets government guidelines on accessibility.

Objective 1.4 - Television advertising for people who are deaf or hearing impaired

The CEO will continue to use captions in all television advertisements. We will also investigate the possibility of providing information in sign language.

Timeframe: November 2004

Progress: All our advertisements currently have captions. The inclusion of a sign language interpreter in the advertisements will not be possible as the advertisements have already been made. 

We are currently making a film in sign language which explains enrolment and voting - see 1.2. 

Priority 2 - Make voting places more accessible

The Chief Electoral Office already has policies and standards in place to verify that polling places have suitable access for disabled people. These standards will be reviewed. The agreed standards will then be applied.

Objective 2.1 - Accessible polling places

Existing specifications will be reviewed and then applied - specifications will include accessibility, furniture and facilities. Polling places designated as 'accessible' may be audited. Appropriate symbols will be used to indicate that a polling place is accessible, eg the wheelchair symbol.

Timeframe: March 2005

Progress: We have worked with the Barrier Free New Zealand Trust to improve the accessibility section of our advance voting facility and polling place checklists. There are now comprehensive sections on checking external and internal access routes, entrances, parking, lighting and furniture. The Barrier Free New Zealand Trust has provided training for all Returning Officers on how to assess accessibility of advance voting facilities and polling places and on how to use the checklist. 

Objective 2.2 - Use of disability service providers' premises

The use of disability service providers' premises will be investigated. These premises are likely to be accessible, are familiar to disabled voters and will be useful to other members of the public such as elderly people and those with prams. Their use as a public polling place may also raise the profile of the organisation and of disabled people. 

Arrangements will be made to use the premises of community organisations and service providers as advance voting facilities and polling places, where the facilities are suitable and available to all voters. A supported voting space will be available.

Timeframe: March 2005

Progress: A number of disability service providers have agreed to let us use their premises as advance voting facilities and/or polling places. Returning Officers are currently in the process of contacting providers in their electorates and assessing suitability of premises. Service providers who have agreed to be involved include the Royal NZ Foundation for the Blind, Disability Resource Centres, Workbridge and some branches of CCS. These arrangements have been confirmed.

Objective 2.3 - Advance voting

The option for disabled voters to vote in the 2 weeks prior to election day will be widely communicated. Returning Officers will ensure all advance voting facilities have suitable access.

Timeframe: March 2005

Progress: The option of advance voting has been included in articles we have written for a number of disability groups' newsletters and publications - see 1.1.

Objective 2.4 - Transport

Suitable car parks for disabled voters will be identified and clearly marked. 

Timeframe: March 2005

Progress: The identification of suitable car parks is part of the revised accessibility checklist. This was included in recent training. Signs will be provided to polling places with parking available but no designated parking space so that an appropriate space can be reserved for disabled voters.

Objective 2.5 - Sign language

People who are able to act as sign language interpreters will be available at as many polling places as possible and at least in the centres with large Deaf communities - Auckland, Wellington, Christchurch and Palmerston North.

Timeframe: March 2005

Progress: The lists of polling places have now been provided to the Deaf Association who are deciding where interpreters should be placed and making the necessary bookings.

Priority 3 - Staff

All electoral staff will have disability awareness training. This will include the importance of adhering to standards and policies.

Objective 3.1 - Recruitment

Advertisements for electoral staff will state that the Chief Electoral Office welcomes applications from disabled people.

Timeframe: November 2004

Progress: Advertisements for electoral staff will state that the Chief Electoral Office welcomes applications from disabled people. This has been included in our recruitment policy. 

Objective 3.2 - Disability awareness training

All employees will undergo disability awareness training.

Timeframe: March 2005

Progress: Disability Awareness Training was included in the operational training provided for Returning Officers. National Office staff also attended these sessions. Training was provided by trainers with disabilities. 

In a separate session, training was provided on assessing accessibility of buildings to ensure advance voting facilities and polling places are correctly identified as accessible.

Disability Awareness Training will also be included in the training given to election day staff.

The 2005 Operations Manual for field staff includes specific sections on how to meet the special needs of some voters. This information will also be included in the Personal Instructions Manuals given to all election day staff.

Objective 3.3 - Disability standards and policies reinforced

The CEO's standards and policies will be explained clearly in staff training. The importance of adhering to these will be reinforced.

Timeframe: March 2005

Progress: The Chief Electoral Office's standards and policies were explained clearly in recent training for Returning Officers. Our disability strategy was included in both the staff induction in July and the operational training in October. We will continue to reinforce the importance of adhering to these standards and policies. 

7. Beyond 2005

There were a number of suggestions in the submissions that the Chief Electoral Office is unable to realise in time for the 2005 general election due to legislative or budgetary restraints. An initiative that is being explored for implementation in time for the 2008 general election is online voting.

Appendix 1: Summary of Submissions

The Chief Electoral Office received 26 submissions in response to its consultation paper - Improving Services to Disabled Voters. Some respondents spoke to their submission. Responses were invited and received from disability service providers and from members of the public. 

The majority of the respondents congratulated the Chief Electoral Office on its consultative approach and expressed a wish for this consultation to continue as new processes are developed in the lead up to the 2005 general election.

The submissions have been summarised as follows:

Communication

Current Problem

A key barrier to voting for many disabled people is a lack of information in a format that is accessible and/or comprehensible. A lack of understanding of voting rights and the enrolment and electoral processes may have resulted in low participation among the disabled voting community in previous elections.

Proposed Solutions

Public information programme: Many of the submissions received stressed the importance of informing the disabled community of their rights, of how to enrol and how to vote. Meetings, presentations and briefings were proposed and even the possibility of a practice run.

Brochure: Opinion was divided as to the necessity of a brochure targeted specifically for disabled people and those that support them but the majority of respondents feel that this would be useful. Care would need to be taken to ensure that by assisting one sector of the community another wasn't disadvantaged. Suggestions relating to targeted brochures included the use of plain English, large print, pictorial and braille.

Television: Although the CEO included teletext captioning in the 2002 general Election advertisements, strong criticism was received from respondents representing the Deaf community that captions were not used in all television relating to the election, including televised debates [[1]] . The introduction of an interpreter using sign language in future advertisements was recommended.

Publicity: The availability of information which may be useful to disabled voters should be widely publicised. A number of the service providers have offered to disseminate information through their existing channels, eg newsletters and mail outs.

Website: The internet is used by many in the disabled community and is a useful medium for communication provided information is available in suitable formats eg Word documents not PDF, minimum use of images. Information on the election could also be made available on frequently used sites such as www.weka.net.nz with links to the Elections website. Any web-based information should conform to the Bobby or W3C standards.

Other: Other forms of communication suggested in the submissions included videos in sign language, audio cassettes, a phone recording, and a dedicated 0800 number.

Polling places

Current problem

Many respondents suggested that the long-term goal of the CEO should be for 100% of polling places to be accessible to all disabled people. In the short-term those that are accessible should be widely and clearly advertised. The process and criteria used to assess polling places as accessible should be strictly adhered to; a criticism of the 2002 general election was that some polling places advertised as accessible to disabled voters were not. 

Proposed solutions

Accessibility: Some respondents suggested the CEO's criteria for determining a polling place to be accessible should be reviewed as a variety of problems were experienced at 'accessible' venues. A number of submissions suggested that polling places promoted as accessible should conform to the NZ Standard 4121.2001 or be approved by Barrier Free NZ Auditors.

Transport: It was seen as critical that polling places be close to public transport and have suitable parking. It was suggested that the CEO provide transport to polling places or at least work with service providers to arrange transport.

Venues: There was a difference of opinion as to whether service providers should be approached for use of their facilities. Some disagreed believing this would be contradictory to the goal of an inclusive society; some agreed as it would make things easier for people to vote in an accessible and familiar place; and some agreed as long as the facilities were made available to all thereby not increasing segregation. Whatever facilities are used they should be negotiable to disabled people with a rest area and toilets.

Desk: A desk (with screens) should be available at a suitable height for voters in wheelchairs (including motorised) and for little people. Care should be taken that screens are sturdy and will not be knocked over by a bump.

Separate space: All submissions agreed that there should be a separate area, perhaps labelled 'Supported Voting Space,' for those who need privacy for whatever reason, for example to dictate their choice of candidate / party.

Communication: As already mentioned, a key step is to make sure that disabled voters are advised of which polling places are accessible. An important change almost universally requested was for the symbol of the wheelchair to be used to indicate polling places with appropriate access, both in written information and outside the polling place. These polling places should be well publicised.

Advance voting and other alternatives

Current problem

Some submissions recognised that even with accessible polling places, there will be disabled people who may not be able to vote. People who are housebound or whose movements are restricted under the mental health act will not be able to get to a polling station but are still eligible to vote. There are other disabled people who may find the process of attending a polling place so stressful or inconvenient they will not vote.

Proposed solutions

Residential facilities: One suggestion was that the current process of taking votes at hospitals and rest homes be expanded to include disabled people living in residential facilities. Residents would still have the option to vote at a polling place if they wished but would also have the choice of voting at their place of residence.

Home voting: Some service providers stated that for many of their customers it would be helpful to be able to vote from their home; they were insistent that any home visits should be made by an independent electoral staff member rather than a party representative. 

Advance voting: There were a lot of requests for advance voting for disabled voters - this option would allow people to vote when the polling place is less busy and at a time when they feel comfortable with their decision making the process less stressful.

Other suggestions included the options of postal voting, on-line voting and telephone voting.

Electoral staff

Current problem

For most disabled people the biggest barrier to leading a normal life is attitudes. The impression some respondents had was that polling staff were not always aware of the needs or rights of disabled voters. Six complaints about electoral staff were received following the last general election, all relating to legitimate requests for a nominated person to assist being refused.

Proposed solutions

Training: All electoral staff, including those answering calls to the 0800 number should have training in disability awareness, in how to help and in discrimination. They must also have a clear understanding of the voting rights of disabled people. It was suggested that disability groups should provide training and that there should be at least one 'disability expert' in each polling place.

Staff: The CEO should actively promote employment of electoral staff from the disabled community.

Interpreters: For areas with a significant Deaf community (Wellington, Auckland, Christchurch and Palmerston North) a sign language interpreter should be available at polling places; this service should be advertised.

[1] Such debates are not part of the responsibilities of the Chief Electoral Office.