Poll Worker Guide

Missouri’s
Poll Worker Guide
A Reference for Election Judges
 Overview
Help America Vote Act (HAVA)
The Help America Vote Act, often referred to as
HAVA, required states to meet a set of standards
to improve the security, accuracy and accessibility
of the nation’s voting systems. These standards will
help ensure that elections are above reproach and
The Help America are conducted in a manner that instills confidence in
Vote Act was enacted
in 2002 to improve
the process and results. Voters will notice the largest
the administration changes under HAVA at their local polling place, where
of elections in the they will find new voting equipment and procedures
United States, primarily designed to make the process as smooth and accurate as
through three means: possible.
1. Creating a new
federal agency Procedural changes
to serve as a Most locations that had previously used punch card
clearinghouse
technology are now using optical scanning technology. In
for election
administration these locations, voters fill out a ballot by making marks
information with a pen or pencil. It’s similar to the method used in
2. Providing funds standardized school testing for many years. Completed
to states to ballots are fed into a machine that records the ballot
improve election information and stores it electronically as well as on
administration and paper.
replace outdated
voting systems Here are some of the key changes as a result of HAVA:
3. Creating minimum
• There is at least one voting machine at each
standards for
states to follow
polling location that is accessible to the disabled.
in several key • It is possible for a voter to cast a provisional
areas of election
ballot if poll workers are unable to find their
administration
name on the voter registration list.
• The centralized statewide voter registration
database ensures the accuracy of voter
registration lists making it easier to confirm a
voter’s registration.
Overview
i
 • Increased anti-fraud and voter verification
procedures have been implemented for voter
registration.
• Citizens who are in the military or out of the
country will benefit from new procedures that
make it easier to exercise the right to vote.
• Should any individual choose to file a voting
complaint, state-based administrative complaint
procedures have been implemented.
• Young adults in high school and college are
being encouraged to become more involved in
the process by volunteering as poll workers.
Equipment-related changes
While most voters take for granted the opportunity
to cast a secret ballot, before the Help America Vote
Act, there was no legal requirement that mandated
the right of blind and vision-impaired voters to vote
independently. Today, HAVA requirements mandate
this accessibility.
In Missouri, every polling place is to have at least one
voting machine that is accessible to the disabled. These
machines will come in two basic types. One helps a
disabled voter use a paper ballot, which is counted by
an optical scanner. The other type, a direct recording
electronic device or DRE, is fully electronic. While
DRE machines use a touch screen and store voting
information electronically, there is a paper trail that
allows for backup and confirmation of the voting
activity should it be required.
Accessible machines vary by jurisdiction. However,
regardless of the machine type used at your polling
station, all accessible machines approved for use by the
Missouri Secretary of State’s office are compliant with
HAVA requirements. These requirements state that:

ii Missouri’s Poll Worker Guide: A Guide for Election Judges
 • The voter must be permitted to verify his or her
selection before the ballot is cast.
• The voter must be provided the opportunity to
change his or her ballot or correct errors before
the ballot is cast.
• The voter must be notified before the ballot
is cast if more than one candidate for a single
office has been selected, and the voter must be
provided an opportunity to correct the ballot.
• The system must have manual audit capacity,
including a permanent paper record.
• The system must be accessible to the disabled.
• The system must comply with Federal Election
Commission error rate standards in effect on the
date of the act’s enactment.
While DRE voting systems were primarily installed to
assist disabled voters, voters who are not disabled can
use them too. In fact, encouraging at least a few other
voters to use them could play an important role in
maintaining the secrecy of one’s ballot. For example, if
there’s only one disabled voter in your polling station
area, and he or she alone uses the DRE, the secrecy
of that voter’s ballot is ensured if you and other poll
workers encourage other voters to use the system.
Therefore, since it’s important that we respect the right
of all voters to cast a secret ballot, all poll workers are
encouraged to ask other voters to use the DRE system
throughout the day.

Overview
iii
iv Missouri’s Poll Worker Guide: A Guide for Election Judges
Polling Place Procedures,
Ballot Handling and Security
This module covers the steps necessary for you to take
on Election Day from before the polls open until after
they are closed. Special steps for ballot handling and
security are also included.

A. Setting up the polling place
First things first
• Be on time to report to the polls
• Take and sign the “Oath of Judges”
• Unpack and check the supply box
• Check the Certificate of Ballots
• Check the equipment checklist (See page 46.)
• Fill out the payroll time sheet

These materials were originally
developed by the University of
Missouri in coordination with the
Missouri Secretary of State Elections
Division. Updated Spring 2010.

Procedures, Ballot Handling and Security
1
Ballot count procedures
• A designee from the local election authority’s
office will usually be responsible for the
transportation of Election Day materials and
machines, making sure they arrive at the polls on
time for use on Election Day. A supervisory judge
may do so if directed by the election authority.
• Bipartisan judges will open and check the ballot
box on all equipment as directed by the election
authority.
• The ballot box will be locked and placed in a
convenient place within the polling location.
• Enter the total number of ballots included on the
Certificate of Ballots form provided, including
the number of provisional ballot envelopes.

2 Missouri’s Poll Worker Guide: A Guide for Election Judges
Set up polling place
The supervisory judge should give you directions for
setup of official tables and booths.
Poll setup
• The transfer sealed container holds all the
materials we are going to review on the checklist.
It is important that you keep them separated and
organized.
• The official table must contain the items listed in
your manual. (See pg. 4, Materials setup, Official
table.)
• Other materials and forms should be readily
accessible to all the poll workers. Materials
should be marked clearly so that poll workers
can find them.
• Special supply items are important for
supporting persons with vision impairment.
• You may mark the traffic pattern to the ballot
box by placement of tables or roped off areas.
Some judges use yellow tape.

Procedures, Ballot Handling and Security
3
Materials setup
• Official table: Roster of voters, list of qualified
write-in candidates (if any), voter registration
applications, official ballot cards, sample ballots.
• Forms (may include the following): affidavits
for name and address change, oath of challenger
or watcher, contact information for election
authority office, spoiled ballot envelope, write-
in ballot envelope, provisional ballot envelopes,
secrecy sleeves (if used), voted ballot storage
container and seals, instructions for election
judges, judges oath and payroll forms, and any
other such forms provided to you by your local
authority.
• Supplies: Notepaper, pens/pencils, paper clips,
rubber bands, felt-tip marker, masking tape,
extension cord(s).
• Special supply items: Magnifying glass, ruler
or “signature box,” large-print materials, graphic
directional signs.
• United States flag.
• Machines.

Sign setup
• The law specifies where and how signs must
be posted. Some of the signs listed here are
mandatory, and others are not.
• For accuracy, make sure that signs accurately
display voting procedure at your precinct.
• Outside signs must be visible.
Sign display
Outside polling place – Examples
• “Polling Place”
• “Vote Here”
• “No Electioneering Beyond This Point”
(optional)

4 Missouri’s Poll Worker Guide: A Guide for Election Judges
 Inside polling place – Examples
• “Instruction to Voters”
• “Voter’s Bill of Rights”
• “Sample Ballot” (should factually match actual
ballot)
At official table – Examples
• Last name alphabet designations (for example,
A-L, M-Z)
• “Voter ID Ready” (optional)
• “Sample Ballot”
• “Persons Needing Special Assistance”
In voting booth – Examples
• “Instruction to Voters”
• “Wheelchair Accessible Voting Booth”
(optional)

B. Regulations at the polling place
Opening and closing the polls
There are clear regulations for handling situations in
the polling place:
Opening the polling place – 6 a.m.
Closing the polling place – 7 p.m.
• Polls must be open visibly and exactly at 6 a.m.
• Polls must be closed exactly at 7 p.m. If there
is a line of voters at that time, the last person
in line must be identified and designated as the
last person allowed to vote. (See pg. 13 for more
about closing the polls.)

Procedures, Ballot Handling and Security
5
Regulations governing behavior
• Sometimes problems may occur with voters or
nonvoters at the precinct. It is important to know
the laws governing behavior at the polling place
and how you can manage it.
• You need to know your responsibilities and the
rights of voters. These regulations are the law,
and you must uphold them.

Electioneering
Electioneering is banned in or near the polls on
Election Day. People who engage in electioneering
within 25 feet of the polling place must be asked to
move outside of the 25 foot perimeter. You may need to
ask your supervisory judge to assist you.
The following activities are banned in or near the
polling place:
(1) Electioneering, asking someone for his or
her vote; (2) distributing political or campaign
literature; (3) wearing campaign shirts, hats, pins,
etc.; (4) displaying campaign literature; and
(5) surveying, sampling or asking someone’s
opinion.

Who is allowed in the polling place?
The law is once again specific about who is allowed in
the polling place during election hours.
• People allowed in the polling place during open
hours: Voters, election judges, election authority
personnel, caretaker or assistant of voters (e.g.,
assisting an illiterate person, a person with
a disability, or an elderly person), person in
the care of a voter (e.g., child under age 18),
law enforcement with permission of the clerk,
Missouri Youth Election participants (a simulated
election for minors and with prior approval),

6 Missouri’s Poll Worker Guide: A Guide for Election Judges
 media representatives for news coverage, election
observers appointed by the election authority,
challengers with appropriate credentials from the
election authority. Candidates may enter to vote
only.

Poll workers must not discuss the election
The poll worker must not discuss specifics of the
election with other poll workers or with voters.
• Do not discuss the election, any candidate or any
ballot issues on Election Day.
• This includes voter turnout numbers and the
number of ballots for a particular party during a
primary.

C. Processing the voter
Keeping the polls orderly is important. This is possible
through line control. Here are the steps for you to
follow.
Voter line control instructions:
If you have a heavy volume of voters in the voting area
of the poll, you may use the following techniques for
line control:
• Ask voters to have their ID ready before they get
to the official table for check-in.
• Direct voters to the correct line by alphabet
(A-L and M-Z, for example).
• Announce designated area (if any) for name/
address changes.
• Watch for and assist voters who need assistance
to enter the voting area.
• The Disability module of this training guide
covers more details about dealing with voters
who may need assistance.
Procedures, Ballot Handling and Security
7
 Procedure for voter check-in at official table:
• Greet voter using good service techniques.
• Ask for voter identification (see section on Voter
Identification, pg. 9).
• Ask the voter to state name and address.
• Check the precinct register.
• Find the voter’s name in the precinct register.
• If the voter’s name is not in the register, call the
election authority.
• Instruct the voter to verify and initial his or her
address.
• Instruct the voter to sign on the appropriate line
his or her name as it appears in the register.
• No voter is to receive a ballot until he or she has
signed the precinct register.
• When the two judges from major parties are
satisfied with the voter’s identity, they shall both
initial beside the voter’s name in the proper
space on the precinct register.
• Two judges from major parties hand out the
ballots and initial the ballot before handing it to
the voter.
• When handing the ballot to the voter, be
aware that there can be more than one style
or color of ballot.
NOTE! • An election judge must sequentially number
(in the space provided on the precinct register)
showing the order in which the voter appeared.
The judge may affix a number to the voter’s
signature.
• When the voter is given the ballot (in a secrecy
sleeve if provided) he or she should be instructed
to proceed to the booth or machine to vote and
told where to return completed ballot.
• Let the voter know that you can help answer
questions about procedure before and after voting.

8 Missouri’s Poll Worker Guide: A Guide for Election Judges
Special circumstances in procedures for voter
check-in
• If a voter shows up at the polling place with
an absentee ballot, or the voter claims to have
completed one but does not have it at the poll,
then call the election authority.
• If a voter is unable to sign his or her name: one
judge shall print the person’s name and address
in the space provided for signature and the
voter shall make his or her mark, which shall be
witnessed by an election judge and signed by two
judges.
Voter identification: Acceptable forms
The law requires that all voters must present acceptable
forms of identification at the polling place.
Acceptable forms of identification are as follows:
• Voter identification card
• Driver’s license or identification card issued by
a state agency (i.e., state university employee
ID, state employee ID, WIC card, non-drivers
ID issued by Department of Revenue, birth
certificate)
• Identification issued by an institution of higher
education, including a university, college,
vocational and technical school, located within
the state of Missouri
• Passport, Social Security card, Medicaid or
Medicare card or identification issued by the
federal government
• A copy of a current utility bill, bank statement,
government check, paycheck or other
government document that contains the name
and address of the voter
If the voter has no acceptable ID at hand, he or she
might be able to go through the affidavit process
described in the next section.

Procedures, Ballot Handling and Security
9
Voter identification: Need for affidavit
When the voter does not have any form of
identification and the voter is on the precinct register
and if the two supervisory election judges (one from
each major party) know the voter, then the two
supervisory election judges (one from each major party)
may complete and sign the voter identification affidavit
and allow the person to vote.
Procedure – Step 1
• Two supervisory election judges complete the
voter identification affidavit and both judges and
the voter sign it.
• Verify that the address is correct in the precinct
register.
• Have the voter sign the poll book before
receiving a ballot.
• Place the completed voter identification affidavit
in the transfer sealed container.
Procedure – Step 2
• When the judges have satisfactorily established
the voter’s identity, they shall both place their
initials next to the voter’s name in the proper
space on the poll book.
• A judge shall sequentially number the space in
front of the voter’s name showing the order in
which he or she appeared.

Voter identification: Change of address
1. If a voter has moved and changed his or her
physical address, you may verify whether the new
address is still within the precinct by calling the
election authority.
2. It is critical that the voter eligibility is established
in the correct precinct for the vote to count.

10 Missouri’s Poll Worker Guide: A Guide for Election Judges
D. Voter procedure and spoiled ballots
The voter’s procedure for optical scan or paper
ballots
Let voters know that you can help answer their
questions about procedure before and after they have
voted. If voters have a procedural problem (e.g., spoiled
ballot), you may assist them outside the booth.
• The voter receives the ballot and proceeds
directly to the booth.
• The voter marks the ballot (see instructions for
assistance, if required, pg. 27).
• The voter places the ballot (and the secrecy
sleeve if applicable) in the ballot box.
Assistance in the voting booth
• If any voter, after entering the voting booth, asks
for further instructions about how to vote, two
election judges of different political parties shall
give necessary instructions to the voter.
• These judges shall not enter the voting booth
unless it is impossible to give instructions
otherwise.
• After giving voting instructions, the judges shall
leave the area and take all necessary measures
to ensure that the voter casts his or her vote in
secret.
Spoiled ballots procedure
If a voter mistakenly marks or otherwise makes his or
her ballot unusable, the voter may request a replacement
ballot.
• Retrieve the spoiled ballot and provide the voter
with a clean ballot initialed by judges from two
major parties.
• Do not assign a new number to the voter.
• Mark the retrieved ballot “Spoiled.”
• Place it in the envelope for spoiled ballots.

Procedures, Ballot Handling and Security
11
E. Closing the polls
Closing time is set by law, and you must follow it
exactly and make no exceptions.

Rules for closing
• At 7 p.m. determine who is the last voter in the
line. Some precincts draw a mark after the last
voter in line once the closing is declared and
they use tape or rope to define it.
• Permit everyone in line at 7 p.m. to vote, but do
not allow anyone to vote who arrives after 7 p.m.
Follow the checklist provided by the election
authority.
• Remove all signage from inside and outside
poll.
• Return supplies to the transfer sealed
container. Pack supplies according to the
election authority instructions.
• Sign all forms.
• Pack all polling place items, including cell
phones.
• All supplies should be sorted and returned in
the same way they came.
Counting and returning the ballots
Optical scan ballots
1. Unlock the ballot box.
2. Remove the voted ballots.
If write-in applies:
3. Check each ballot.
4. Place write-in and non-write-in ballots in separate
stacks.
5. Write your office/district on envelope provided,
AND
6. Place write-ins in envelope.

12 Missouri’s Poll Worker Guide: A Guide for Election Judges
 7. Count unvoted ballots and enter number on
Certificate of Ballots form.
8. Count spoiled ballots and enter number on
Certificate of Ballots form.
9. Count total number of voted ballots.
10. Compare count with total number of people who
signed the poll book.
11. Add all ballots (spoiled, voted, unvoted and
provisional). This number should equal the number
of ballots reported on the Certificate of Ballots form
before the poll opened.

DRE
Follow directions outlined by the Local Election
Authority (LEA) for machines specific to your
jurisdiction.

Each judge: Signing off on the ballots
Each judge (from the major parties) signs the Certificate
of Ballots.

Procedure to return ballots
1. Remove ballots from box and place in specially
identified containers.
2. Use only the containers designated for each type
of ballot.
3. Enter seal numbers on Certificate of Ballots and
Seal Log, and place in sealed container.
4. Affix and secure seals to containers.
5. Seals should be applied so that if container is
opened, the seal will be damaged beyond repair.
6. Two supervisory judges deliver the ballot
containers, together, to the election authority.

Procedures, Ballot Handling and Security
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14 Missouri’s Poll Worker Guide: A Guide for Election Judges
Provisional Voting
What is provisional voting?

What is the law on provisional voting?
The Missouri Secretary of State’s Office implemented
procedures to…
• Comply with the Help America Vote Act
(HAVA).
• Help improve voting procedures and services to
voters.
• Provide for provisional voting.

Overview
The Secretary of State’s Office has implemented the
provisional voting procedures to comply with the
Help America Vote Act, also called HAVA. HAVA is
legislation that helps to improve voting procedures and
services to voters.
The law provides steps to ensure that voters’ rights are
appropriately and consistently addressed when voters
come to a polling place with the intent to vote and their
names are not found on the precinct register.

Provisional Voting
15
Who qualifies to vote a provisional ballot?
A voter may cast a provisional ballot…
• If the voter’s name is not found on the precinct
register
• and the election authority cannot immediately
verify the voter’s eligibility
• or you cannot reach the election authority to
determine if the voter is registered.

16 Missouri’s Poll Worker Guide: A Guide for Election Judges
 Steps to follow to determine who qualifies
for provisional voting
Step 1:
Examine the precinct register,
and
if the voter’s eligibility cannot be immediately
established,
go to Step 2.
Step 2:
Call the election authority’s office and give the
voter’s full name.
Ask if they can locate the voter’s registration.
If the election authority determines the voter is
registered in another precinct,
then direct the voter to the proper polling
place and offer to give directions,
or
To help voters to the if contact cannot be made immediately with the
best of our ability, it is election authority,
important that we make
an effort to get them
then continue to try to reach the election
to the right precinct so authority.
their votes will count. And inform voter that he or she may go
to the election authority office or central
polling place to determine their eligibility
to vote. Inform voter that you can’t be sure
that he or she is in the correct precinct
without verification from the election
authority. He or she can vote a provisional
ballot, but if voter is not in the correct
precinct, his or her vote will not count.

Provisional Voting
17
These instructions will
If voter chooses not to go to the election authority
help ensure that voters’
office or central polling place to determine his or
provisional ballots will her eligibility to vote,
be counted.
or
if the election authority cannot find the voter’s
registration,
then search the precinct map or other
additional registration information
available at the precinct to determine their
Inform voter that proper precinct,
you can’t be sure
that they are in the and provide information on provisional voting
correct precinct without to permit voters to cast a provisional
verification from the ballot. Explain that provisional voting is
election authority. the way they can vote today and that their
He or she can vote a registration will be checked by the election
provisional ballot, but
authority prior to their vote being counted.
if they are not in the
correct precinct, their
vote will not count.

18 Missouri’s Poll Worker Guide: A Guide for Election Judges
(See also Completing the provisional ballot and
envelope, pg. 21.)

What the voter needs to complete the
provisional ballot process:
• Instructions on how to cast a provisional ballot
• The completed and signed provisional ballot
envelope
• A provisional ballot (and a secrecy envelope/
sleeve where used)

Provisional Voting
19
Steps to complete the provisional ballot
process (continued from pg. 19)
Step 3
• Give the voter a provisional envelope and pen.
• Instruct the voter to tear off the toll-free phone
number tag from the envelope, and that he or
she may call two weeks after the election to find
out if his or her provisional ballot was certified,
and if not, why not.
• Give detailed instructions for filling out the
envelope. (See also Completing the provisional
ballot and envelope, pg. 21.)
• Ask the voter to complete and sign the envelope.
Step 4
• Check to see that the provisional ballot envelope
(provisional ballot affidavit) is completed and
signed by the voter.
• Complete the provisional ballot envelope section
that is to be filled out by election judges.
Step 5
• Have a Democratic Party and a Republican Party
election judge each sign the provisional envelope
being used.
Step 6
• Have a Democratic Party and a Republican Party
election judge each initial a provisional ballot.
Step 7
Provide the voter with:
• The completed and signed provisional ballot
envelope.
• An initialed ballot (and a secrecy envelope/sleeve
where used).

20 Missouri’s Poll Worker Guide: A Guide for Election Judges
 • Give instructions to voter on how to cast a
provisional ballot.
1. Mark the ballot according to instructions
appropriate to type of ballot.
2. Place the ballot in the secrecy envelope/
sleeve (where used), then place ballot in the
provisional ballot envelope.
3. Place the provisional ballot envelope in the
appropriate ballot box.
Step 8
• Direct the voter to the designated voting area to
carry out the instructions you just gave.

Completing the provisional ballot and
envelope
Election judge completes the ballot envelope
The election judge completes the bottom half of the
envelope. Use your checklist to keep track of steps to
complete.
• Indicate the reason(s) why the voter was given a
provisional ballot.
• Print the voter’s name.
• Ask for the voter’s phone number and print it on
the line provided.
• Complete date, polling place.
Get two signatures: Democratic and Republican Party
election judges.

Voter completes the ballot envelope
Instruct the voter to provide the following information:
• Date and place of registration.

Provisional Voting
21
 • The county or city where the voter lives.
• Reason why the voter qualifies for provisional
voting. This reason could be that the voter’s
name was not on the precinct register as a
registered voter.
The entire envelope should be completed with name,
date of birth, address and last four digits of the voter’s
Social Security number.
A voter’s signature certifies his or her U.S. citizenship,
age and eligibility.
Write in the current date.

Completing the provisional ballot
Instruct the voter to:
• Mark the ballot according to instructions
appropriate to type of ballot.
• Place the ballot in the secrecy envelope/sleeve
(where used), then place ballot in the provisional
ballot envelope.
• Place the provisional ballot envelope in the
appropriate ballot box.

Overview
Check the ballot envelope for completeness and
accuracy. The voter will place the ballot in a provisional
ballot envelope and place it in the ballot box.

22 Missouri’s Poll Worker Guide: A Guide for Election Judges
How to handle a spoiled ballot
Handle spoiled provisional ballots the same as spoiled
standard ballots.
• Accept the spoiled ballot and mark it “spoiled.”
• Place marked, spoiled ballot in the appropriate
envelope or container.
• Have a Democratic Party and a Republican Party
election judge initial a new provisional ballot.
• Give new, initialed ballot to voter.

How to handle the provisional ballots when
you open and close the polls:
Open
• Use the same counting procedure as for other
ballots.
• Count ballots.
• Enter number on Certificate of Ballots form.
Close
Count and record provisional ballots in the same way
as other ballots.
1. Count and record provisional ballots.
2. Count and record spoiled provisional ballots.
3. Count and record unused provisional ballots.
4. Verify that the number of used provisional
ballots plus unused equals original total.

Provisional Voting
23
Provisional
ballot
envelope:

24 Missouri’s Poll Worker Guide: A Guide for Election Judges
Summary and frequently asked questions
1. What is the law on provisional voting?
The law allows a voter to cast a provisional ballot under
certain conditions.
It provides steps to ensure that voters’ rights are
appropriately and consistently addressed when voters
come to a polling place with the intent to vote and their
names are not found on the precinct register and their
eligibility to vote cannot be determined.

2. Who qualifies to vote a provisional ballot?
A voter whose name is not found on the precinct
register, and who can present appropriate
1. The election authority cannot find the voter’s
registration.
OR
2. You cannot reach the election authority to
determine if the voter is registered.

3. What does the voter need to complete the
provisional ballot?
• The completed and signed provisional ballot
envelope
• A provisional ballot (and a secrecy envelope/
sleeve where used)
• Instructions on how to cast a provisional ballot

Provisional Voting
25
4. What information is needed from the voter on
the provisional ballot envelope (voter’s affidavit)?
• Voter’s time and place of registration
• Name, address, date of birth, last four digits of
Social Security number
• Reason for qualifying as a provisional voter
• Signature

5. What should you do if the election authority
determines the voter is registered in another
precinct?
Direct the voter to the proper polling place.

6. What should you do if the election authority
cannot find the voter’s registration?
Search the precinct map or other additional
registration information available at the precinct to
determine the voter’s proper precinct. Inform the
voter of the proper precinct. If voter’s precinct cannot
be determined, you must provide the voter with a
provisional ballot.

7. When should a voter call to determine whether
the provisional ballot was certified?
Two weeks after the election is certified.

8. Who signs the provisional ballot envelope?
The voter, a Democratic Party election judge, and a
Republican Party election judge.

26 Missouri’s Poll Worker Guide: A Guide for Election Judges
Serving Voters With
Disabilities and Special Needs
This module presents information that you need to
know about the who, what, how and why of serving the
needs of the voter who is disabled or elderly. The rights
of voters with disabilities are protected by law. Poll
workers need to know
• How to identify persons with disabilities.
• How to assist persons with disabilities, using
patience and sensitivity to enable all voters to
vote.

Disabilities and the law
The rights of the elderly and persons with disabilities
are protected by laws such as the Voting Rights Act, the
Elderly and Handicapped Voting Rights Act of 1986,
Missouri election laws, and the Help America Vote Act.
There are many kinds of disabilities, physical and
mental. Some disabilities require special attention by
the poll worker. Think of the person first, and the
disability second. A citizen’s right to vote is protected
by law; providing that opportunity, unhindered, is the
responsibility of the poll worker.

Many different types of disabilities
• Blindness or impaired vision
• Deaf or hearing impaired
• Developmental disabilities

Services to Voters With Disabilities/Special Needs
27
This section concentrates on meeting the needs of
voters with visual or hearing impairment or who use a
wheelchair.

Who are persons with disabilities?
Persons with disabilities prefer, as we all do, to be
thought of as individuals with many characteristics,
rather than to be defined by their disability or
disabilities.
About 20 percent of the population has some kind of
disability.
Persons with disabilities are brothers, sisters, parents,
young, old, rich and poor of all ethnic and racial
backgrounds. In other words, they are everywhere and
are “normal.”

Blindness or impaired vision
• Blindness, impaired vision, and low vision are
terms used to identify persons who lack part or
all of the ability to see.
• They may use a cane, service animal (usually
dog), thick glasses, or sunglasses.
• Here is how you can best assist them in the
polling place.
Assisting persons with disabilities
Blindness or impaired vision
1. Offer your arm or shoulder (Do not grab a
visually impaired person’s arm or shoulder) so
that the person maintains independence and can
let go at any time.
2. Provide specific directions. For example,
“Proceed about 20 feet straight ahead (make sure
the voter is faced in the right direction) and the
voting machine is to your right.”

28 Missouri’s Poll Worker Guide: A Guide for Election Judges
 3. Assist with filling out forms, etc. Use a
“signature” box or a ruler, whichever is provided.
This helps keep the signature in the correct place.
4. Have a magnifying glass for persons with
impaired vision as well as large-print materials
and other alternative-format items.
5. Before opening the polls, remove any unnecessary
clutter in the polling area, the parking area and
the “exterior accessible route.”
6. If a voter with impaired vision is accompanied by
a companion, speak directly to the voter, not the
companion.
7. Do not pet, feed or distract a service animal.

Deaf or hearing impaired
To identify a voter who is deaf or hearing impaired,
look for and be aware of persons who use sign language
or lip reading, wear a hearing aid, or are accompanied
by an interpreter or a service animal.

Assisting persons with disabilities
Deaf or hearing impaired
To assist a person with disabilities, you should:
1. Stand where the voter can see you easily with
light in front of you, not behind you (don’t stand
in front of window)
2. If an interpreter is present, speak to the voter
who is deaf or hearing impaired, not the
interpreter.
3. Keep hands away from lips (the voter might lip
read).
4. To get the voter’s attention, tap the voter’s
shoulder. Don’t yell.
5. Be prepared to communicate by written notes.
6. Speak clearly and directly to the voter (again,
don’t yell).

Services to Voters With Disabilities/Special Needs
29
Developmental disability assistance in
voting booth
Persons with a developmental disability have the right
to have a companion assist them in the voting booth.

Assisting a person using a wheelchair
1. Before the poll opens, post signs offering
assistance to voters using wheelchairs or scooters.
2. Signage: “If you need assistance, please ask one
of our staff members.” Use signs incorporating
the universal symbol of accessibility for
designated accessible voting booth.
3. Make sure “sign-in” table has plenty of knee
clearance for wheelchair and scooter users.
4. If possible, talk eye to eye and sit down when
speaking with a wheelchair user.
5. Do not touch the wheelchair or scooter as this is
considered an extension of the voter’s body.

People-first language
When you are assisting a person with disabilities, use
people-first language.
Appropriate, people-first references:
• Voters with disabilities or disability
• Has a physical disability
• Uses a wheelchair
• Accessible parking, disabled parking
• Avoid referring to persons as “handicapped.”

Curbside voting
If a person with a physical disability is unable to enter
the polling place, he or she is to be assisted, according
to the following procedures.

30 Missouri’s Poll Worker Guide: A Guide for Election Judges
Normal voter identification procedures apply.
Refer to manual checklist below:
Procedure:
A. In jurisdictions with paper ballots or electronic
voting systems, if the voter is unable to enter
the polling place –
• Two election judges, one of each major
political party, take a ballot, equipment and
materials necessary for voting to the voter.
• The voter marks the ballot.
• The election judges place the ballot in an
envelope, seal it and place it in the ballot box.
B. Additional options
• The election authority may designate a
polling place accessible to any physically
disabled voter other than the polling place to
which the voter would normally be assigned.
• The election authority may also assign
members of the physically disabled voter’s
household and the voter’s caregiver to the
same voting location as the physically disabled
voter.
• In no event is a voter to be assigned to a
voting location other than the established
location for the voter’s precinct if the voter
objects to the new location.
C. Assistance in the voting booth
• Voters declare under oath to the election
judges that they cannot read or write, or have
a physical disability and cannot vote their
ballots.
• Voter may be assisted by the election judges
or by any other person of his or her choice.

Services to Voters With Disabilities/Special Needs
31
 • If asked, the two election judges of major
parties shall go with the voter to the voting
booth and cast the vote as the voter directs.
• If asked, an assistant, other than the election
judges, may go into the voting booth with the
voter and cast the ballot as the voter directs.
No one other than election judges or immediate family
may assist more than one voter.

Summary
About 20 percent of the general population has a
disability of some kind.
Be sensitive to the needs of voters with disabilities and
work to serve all voters.
Do everything necessary to make the voting experience
a positive one.

• Be prepared
• Be aware
• Be sensitive
• Be positive

32 Missouri’s Poll Worker Guide: A Guide for Election Judges
Voter Service:
Treating All Voters Equally and
Respectfully
It is vitally important that all individuals who enter a
polling place be treated with respect and equality. The
poll worker plays an important role in shaping this
respectful environment in serving the needs of voters as
they exercise their right to vote.

Civil rights
Civil rights laws exist to protect all citizens from
discrimination. Poll workers need to show respect for all
voters and to be aware that discrimination and prejudice
are not legal and can have severe consequences for the
poll worker.
You as a poll worker will face voters with many
different needs at the polls. Your role is to see to it that
all voters are treated fairly and equally.

Voting Rights Act
Poll workers as representatives of their community
should be proud and show respect for all voters and to
serve them equally, regardless of gender, race, culture,
creed, dress, nationality, or educational and social
background.
• The Voting Rights Act of 1965 ensures that no
person is denied the right to vote because of
color or race.

Voter Service
33
 • Well-run elections require that all eligible voters
have access to voting and have the right to know
that their vote will be counted.
• Understanding the needs of individual
voters helps to overcome the prejudice and
discrimination that could occur.
• Prejudice stems from negative assumptions about
a person based on biased attitudes and feelings.
• We are all Americans. Our diversity is a source
of beauty and strength.

Providing respectful, positive service for all
voters
• How you look
• How you sound
• How you listen
• How you solve problems

What you look like when you communicate
Voters see and respond to your
• Smile
• Energy
• Eye contact

We show respect through the way we treat someone.
Respect is most often expressed in our body language
—our tone of voice, facial expression or gestures.
Remember that your body language can convey more
than your words do as you interact with voters. If a
voter is experiencing a problem, he or she can see by the
way you look or sound that you have respect and want
to help.
Smile: A smile is nearly always a welcome greeting. In
the polling place, your smile helps the voter feel at ease
and shows your readiness to serve.

34 Missouri’s Poll Worker Guide: A Guide for Election Judges
Use Energy and interest. Speak clearly and loudly
enough that the voter can understand you.
Eye contact: Look directly at the voter eye to eye.
This indicates that you are paying attention and taking
time to listen. It is an encouraging gesture and provides
positive feedback to the voter.

What you say
Use positive words:
Absolutely, of course, I can, certainly, my
pleasure, how may I help you
Avoid negative words:
Can’t, won’t, shoulda, coulda, oughta, never,
but…

• Use words that are positive and convey a helpful
message.
• Avoid negative words like can’t, won’t, shoulda,
coulda, woulda, never or but. They negate your
credibility because they indicate an unwillingness
to assist or they provide generalizations that are
inaccurate.
• Speak positively with a willingness to help. Use
words like “of course I can, surely, absolutely, it
is my pleasure, or how may I help you?”

How to serve the voter
• Be open to service
• Be ready
• Be positive
• Be alert

Open: Letting voters know you are willing and happy
to help them creates positive feelings about the voting
experience.

Voter Service
35
A statement that communicates your desire to help is
“Good morning. May I please have your first and last
name to check the register? Thank you.” Or “Did that
take care of everything you needed?”
Be aware of your tone of voice and facial expressions.
Being “ready” to serve the voter is a hallmark of
exceptional service. Here are some ways you can be
prepared to serve the voter:
• Treat each voter as a new beginning, putting
behind what may have happened previously with
another voter.
• Maintain a positive attitude toward the voter and
the important role that you play.
• Be alert and aware of the special needs the voter
may have. Show understanding for the diversity
and disability needs of voters.
Positive: Maintain a positive attitude toward the voter
and the important role that you play.
Alert: Be alert and aware of the special needs the voter
may have. Show understanding for the diversity and
disability needs of voters.

Understanding needs
• Listen to the voter
• Listen for special needs
• Listen to what they are asking and HOW they
are asking it

To understand the voters’ needs means listening with
your eyes and your ears.
Listen to what they are asking and how they are asking
it.
Show sensitivity to the unique needs voters may have.

36 Missouri’s Poll Worker Guide: A Guide for Election Judges
 • Tiredness due to the late hour, weather, long
lines, age or poor health.
• Disabilities.
• Language or cultural barrier.
• Confusion or anger caused by unanticipated
problems.
Use words or phrases like:
• “I understand how you feel”
• “Would you mind waiting while I take care of
this?”
• “I know that is an inconvenience…”
• “I am sorry, sir (ma’am)”

Providing assistance and handling problems
The five A’s
• Acknowledge
• Agree
• Apologize
• Ask
• Act

Occasionally voters will appear upset during the voting
process. Something may have happened to them before
or after arriving at the polling place.
Sometimes voters are upset by what you may say in
response to their questions.
Voters can be upset by long lines, parking problems or
being told that their name is not on the register.
It is important to show that you care about their
concerns and to respond with respect for their unique
needs.
Five A’s can help you provide voters with exceptional
service.

Voter Service
37
 • Acknowledge the voter’s presence by saying
“hello” or “good morning.” If busy, turn and
say, “I will be with you right away, thank you for
your patience.”
• Agree with their problems — shows respect:
“Yes, you are right, that parking lot is so busy.”
• Apologize for their problems — shows concern
for uniqueness: “I am sorry, sir (ma’am) for your
wait.”
• Ask questions to clarify what they want or need.
• Act immediately upon request or offer assistance
when it is needed.

Dealing with the angry voter
By its very nature, voting in a democracy brings
together a diverse collection of people. And while most
voters are happy and well-meaning, you’ll find a few to
be grumpy and dissatisfied. It seems there are always a
couple in each crowd who are obnoxious or rude.
If a voter is loud, shouting or otherwise creating a
challenge, you may choose to take steps to calmly
remove the voter from the polling place.
• You may ask another election judge to help
you, especially if you are getting upset. Another
election judge may be able to take over in a
calmer way.
• Sometimes, time or number of voters may not
allow that choice. In that case, calmly repeat the
voter’s choices and give the voter an opportunity
to vote a provisional ballot.
• You may also walk with the voter to the door
and suggest that he or she contact the election
authority with additional questions.
Remember, no voter has the right to create a scene and
be disorderly in a polling precinct.

38 Missouri’s Poll Worker Guide: A Guide for Election Judges
There is a real sense of accomplishment when you turn
around a potentially unpleasant situation. Should you
encounter a voter on the verge of creating a scene, keep
in mind that:
• You can control yourself,
• You can control the situation,
• But you can’t control other people.
The first step for any of us when gaining control of a
difficult situation is to take control of ourselves. Pause
and take a deep breath — it works. Use the breath
to assemble your internal resources and get ready to
handle the situation.
You should never take a difficult situation personally.
Should a voter become upset or start venting, remember
— it’s not you that he or she is really upset with. They
may be upset with the situation, something about
themselves, the voting rules or just life in general,
but it’s probably not you. Realizing this will help you
maintain self-control.
If you find yourself being pulled in by the situation
and start to take the matter personally, it’s time to get
assistance from another poll worker.
Staying focused on the real issue at hand is of great value
in bringing a difficult situation to resolution quickly and
maintaining a smooth running polling station.
Finally, you may have to deal with the fact that a voter
may want to lodge a complaint either formally or
informally. How you manage the first few moments
of your encounter with someone like this is critical to
minimizing the situation. Here are clear goals to reach
when dealing with such individuals.
1. Determine what the exact problem is.
2. Resolve the problem if possible.
3. Try to prevent the problem and situation from
getting worse.

Voter Service
39
 4. Take steps to prevent the problem from recurring.
It’s important that you convey to voters that you want to
make it possible for them to vote. When the voters feel
that you are interested in their being able to vote and
are making an effort on their behalf, they will be much
less likely to be negative toward you. It’s important that
an upset person feels that progress is being made toward
solving the problem. This will help keep the situation
from escalating.
Here are a few more tips to consider:
• Work together with the other poll workers.
• Never touch a voter.
• Keep all interactions in plain sight.
• Know your polling place plan for security.

Summary
• It is the law: All voters must be treated equally.
• See the real person and his or her needs.
• Communicate positively and respectfully.
• Poll workers play a valuable role.
The law states that all registered voters have the right to
vote.
Discrimination against voters is a violation of voters’
rights.
Respect for all voters is positive behavior that protects
voters’ rights and provides positive voter service.
Recognize the real person and his or her individual
needs.
Communicate in a positive and respectful way.
You play a valuable role in ensuring voters’ rights.

40 Missouri’s Poll Worker Guide: A Guide for Election Judges
Appendix

Checklist: Setting up the polling place

First things first!
q Be on time to report to the polls.
q Take and sign the “Oath of Judges.”
q Unpack and check the supply box.
q Check the Certificate of Ballots.
q Check the equipment checklist.
q Fill out the payroll time sheet.

Ballot count procedures
A designee from the LEA’s office will be responsible for
the transport packet contents arriving at the polls on time
for use on Election Day. A supervisory judge may do so if
directed by the election authority.
q Make sure that the ballot box has been opened and
checked by the bipartisan judges as directed by the
election authority.
q Enter the total number of ballots included on the
Certificate of Ballots form provided, including the
number of provisional ballot envelopes.
q Make sure you have every ballot style or color
designated for your precinct.
q If you use paper ballots, follow your local
precounting procedures.

Appendix: Checklists
41
Materials checklist
Required materials for the official table
q Roster of voters
q List of qualified write-in candidates (if any)
q Voter registration applications
q Official ballot cards
q Sample ballots

Required forms
q Provisional ballot envelopes
q Voted ballot storage container and seals
q Judges oath and payroll forms

Suggested forms
q Affidavits for name and address change
q Oath of challenger or watcher
q Contact information for election authority office
q Spoiled ballot envelope
q Write-in ballot envelope
q Secrecy sleeves (if used)
q Instructions for election judges
q Any other items provided to you by your local
authority

Suggested supplies
q Notepaper
q Pens/pencils
q Paper clips
q Rubber bands
q Felt-tip marker
q Masking tape
q Extension cord(s)

Suggested special supply items
q Magnifying glass
q Ruler or “signature box”
q Large-print materials
q Graphic directional signs

q United States flag

q Machines

42 Missouri’s Poll Worker Guide: A Guide for Election Judges
Checklist: Signs inside and outside of the
polling place

Set up sign display OUTSIDE. Examples include:
q “Polling Place”
q “Vote Here”
q “No Electioneering Beyond This Point” (optional)
q “Instruction to Voters”

Set up sign display INSIDE. Examples include:
q “Instruction to Voters”
q “Voter’s Bill of Rights”
q “Sample Ballot” (should factually match the actual
ballot)
q “Ballot Measures”

Appendix: Checklists
43
Checklist: Procedure for voter check-in at
official table

q Greet voter using good service techniques.
q Ask for voter identification (see section on Voter
Identification).
q May give voter number.
q Ask the voter to state name and address.
q Check the precinct register.
q Find the voter’s name in the precinct register.
If the voter’s name is NOT in the precinct register,
call the election authority.
q Instruct the voter to verify and initial his or her
address.
q Instruct the voter to sign on the appropriate line his
or her name as it appears in the register.
q NO voter is to receive a ballot until he or she has
signed the precinct register.
q When the two judges from major parties are satisfied
with the voter’s identity, they shall both initial beside
the voter’s name in the proper space on the precinct
register.
q Two judges from major parties hand out the ballots
and initial the ballot before handing it to the voter.
Be aware that there can be more than one style or
color ballot when handing the ballot to the voter!
q An election judge must sequentially number (in the
space provided on the precinct register) showing the
order in which the voter appeared. The judge may
affix a number to the voter’s signature.
q When the voter is given the ballot (in a secrecy
sleeve, if provided) he or she should be instructed to
proceed to the booth to vote.
q Let the voter know that you can help answer
questions about procedure before and after voting.

44 Missouri’s Poll Worker Guide: A Guide for Election Judges
Checklist: Voter identification

Acceptable forms of identification
q Voter identification card
q Driver’s license or identification card issued by a
state agency (i.e., state university employee ID, state
employee ID, WIC card, non-driver’s ID issued by
Department of Revenue, birth certificate)
q Identification issued by an institution of higher
education, including a university, college, vocational
and technical school, located within the state of
Missouri.
q Passport, Social Security card, Medicaid or Medicare
card, or identification issued by the federal
government.
q A copy of a current utility bill, bank statement,
government check, paycheck or other government
document that contains the name and address of the
voter.

Appendix: Checklists
45
Checklist: Voter identification and need for
affidavit

When the voter does not have any form of identification
AND the voter is on the precinct register AND if the two
supervisory election judges (one from each major party)
know the voter, then the two supervisors (one from each
major party) may complete and sign the voter identification
affidavit and allow the person to vote.

Procedure, Step 1:
q Two supervisory election judges complete the voter
identification affidavit and both election judges and
the voter sign it.
q Verify that the address is correct in the precinct
register.
q Have the voter sign the poll book before receiving a
ballot.
q Place the completed voter identification affidavit in
the transfer sealed container.

Procedure, Step 2:
q When the judges have satisfactorily established the
voter’s identity, they shall both place their initials
next to the voter’s name in the proper space on the
poll book.
q A judge shall sequentially number the space in front
of the voter’s name showing the order in which he or
she appeared.

46 Missouri’s Poll Worker Guide: A Guide for Election Judges
Checklist: Voter procedure and spoiled
ballots

The voter’s procedure
q The voter receives the ballot and proceeds directly to
the booth.
q The voter marks the ballot (see instructions for
assistance, if required).
q The voter places the ballot (and the secrecy sleeve, if
applicable) in the ballot box.

Spoiled ballots procedure
If a voter mistakenly marks or otherwise makes his or her
ballot unusable, the voter may request a replacement ballot.
q Retrieve the spoiled ballot and provide the voter with
a clean ballot initialed by judges from two major
parties.
q Do not assign a new number to the voter.
q Mark the retrieved ballot “Spoiled.”
q Place it in the envelope for spoiled ballots.

Appendix: Checklists
47
Checklist: Counting and returning the
ballots

q Unlock the ballot box.
q Remove the voted ballots.
If write-in applies:
q Check each ballot.
q Place write-in and non-write-in ballots in separate
stacks.
q Write “office/district” on envelope provided, AND
q Place write-ins in envelope.
q Count unvoted ballots and enter number on
Certificate of Ballots form.
q Count total number of voted ballots.
q Compare count with total number of people who
signed the poll book.
q Add all ballots (spoiled, voted and unvoted).
This number should equal the number of ballots
reported on the Certificate of Ballots form before
the poll opened.
q Shut down DREs (if applicable) as directed by LEA,
including vote totals from end tape.

48 Missouri’s Poll Worker Guide: A Guide for Election Judges
Checklist: Completing the provisional
ballot envelope

Election judges will need to complete the bottom
half of the envelope.
Make sure to do the following:
q Indicate the reason(s) why the voter was given a
provisional ballot.
q Print the voter’s name.
q Ask for the voter’s phone number and print it on the
line provided.
q Complete date, polling place.
q Get two signatures: Democratic and Republican
Party election judges.
q Make sure voter takes the stub with 800 number and
tracking number.

Appendix: Checklists
49
Checklist: Curbside voting
If a person with a physical disability is unable to
enter the polling place, he or she is to be assisted,
according to the following procedures.

q Two election judges, one from each major political
party, take a ballot, equipment and materials
necessary for voting to the voter.
q The voter marks the ballot.
q The election judges place the ballot in an envelope,
seal it and place it in the ballot box.

50 Missouri’s Poll Worker Guide: A Guide for Election Judges