Introduction

    One of the fundamental principles of democracy is the right to vote in secret in free and fair elections. Article 16 of the Constitution of Ireland states that all citizens who have reached the age of 18 years and who are not disqualified by law can vote in elections for Dáil Éireann. Although the Constitution also states that voting is done by secret ballot with each voter having only one vote, people who are blind or vision impaired are being denied this right and for thousands of people in Ireland, voting remains inaccessible.

    Of the 14,000 people registered as blind with NCBI, almost 13,000 were eligible to vote in the 2009 local and European elections. With the number of new registrations growing by 12% year-on-year, this figure will have increased to more than 18,200 people by 2012, when the next general election is scheduled. In addition to enfranchising people who are on the national blind register, a more accessible voting system will also be helpful to older people and others who may have difficulty reading voting material in its current format.

    According to the Central Statistics Office, people who are eligible to vote fail to do so for a number of reasons, including disability, lack of information, lack of transport, no polling card and lack of interest.

    In 2002, the highest voter turnout was recorded in people aged between 65 and 74, with an 89% turnout, while 79% of people over the age of 80 who were registered to vote did so. Almost 60% of people who access NCBI's services are over 65-years-of-age and as this group is the most likely to cast their vote, it is vital that they have equal access to the entire electoral process. NCBI believes that greater accessibility will improve voter turnout across all age groups.

    NCBI hopes that people with disabilities will be able to exercise their right to vote independently by the next national election and also that information relating to candidates and balloting is available in accessible forms, such as Braille, audio and large print. Despite asking political parties to provide their election manifestos in alternative formats for the 2006 general election and the 2009 local and European elections, none were made available, making it very difficult for people with vision impairments to participate fully in the democratic process.

    Over €50 million has been spent on electronic voting since 2002, including the purchase and storage of the now-useless 7,500 e-voting machines. These electronic voting machines were purchased without any consultation on the suitability of the technology for people with sight loss, resulting in machines that were not fitted with speech or large print software.

    NCBI envisages a society where all citizens have full access to voting on an equal and independent basis. The aim of proposing changes to the ballot paper is to improve the status and participation in civic and political life of people with disabilities, in particular people living with vision impairments. The current "trusted friend" system, whereby a person who is blind or vision impaired is assisted in casting their vote by a sighted companion or a returning officer, is no longer appropriate nor is it acceptable, given the available alternatives.

    It is essential that people with disabilities be consulted throughout the process of creating accessible voting options. This will ensure that the most suitable and effective changes are implemented. Furthermore it also provides confirmation that the opinions, knowledge and experience of people with disabilities count and are taken seriously.

    Below, we have identified a number of possible solutions and briefly outline their relative merits.

    Options

    Alternative ballot paper

    The production of ballot papers in Braille and large print formats is one option, which would enable people with vision impairments to vote independently. However, this method may not be entirely secret, as there may be very few constituents with vision impairments voting in a particular polling station, making it easy to identify the choice made by voters.

    Internet voting

    While Internet voting could be quite effective and easy to use, it would require the provision of computers in polling stations or voters would have to be allowed to vote in public libraries. The system is similar to Internet banking, where the voter is prompted to input a PIN number and then follow steps to cast their vote. However, there are a number of potential drawbacks relating to access to computers at polling stations; computer literacy among people with vision impairments; the need for additional training; and security concerns associated with online voting systems.

    Telephone voting

    This system is similar to Internet voting and telephone banking, whereby voters receive a PIN number which is used to log onto a secure system that prompts and guides the person through the process of casting their vote. However, this method would require a) the use of touch-tone telephones, b) the need to remember and refer back to information which has been verbally listed, or c) voice recognition technology. Option a) can pose problems for people with vision impairments while options b) and c) can be problematic for older people or people with more than one disability.

    Ballot templates

    Around the world tactile ballot templates are the most common used method to enable people with vision impairments to vote independently and in secret. The templates are used in the UK, Canada, Australia, New Zealand, the USA, Albania, Sierra Leone and Ghana, for example.

    In the UK all polling stations must provide a tactile voting device and at least one large print display version of the ballot paper. Should people require further help, polling station staff can read out the list of candidates and their details.

    The template has an adhesive backing, which attaches to the ballot paper but can be removed without damaging the paper. Flaps cover each of the boxes on the ballot paper in which the vote is marked. The candidate number that corresponds to the box covered by a particular flap is embossed in black on the flap's surface. The number shows up well against the white background of the ballot paper and is also raised so it can be identified by touch.

    To cast a vote, an individual lifts the relevant flap to reveal the box on the ballot paper and makes a mark. The device can then be removed from the ballot paper, which is folded and placed in the ballot box.

    Another version of the ballot template is a folder, which is the same size as the ballot paper and into which the ballot paper is slotted by the returning officer. The top right hand corner of all ballots are cut off to enable the voter to ensure that the ballot has been inserted correctly. As every ballot has been cut this way, the secrecy of votes cast by people using the template is ensured.

    A square is cut in the folder which corresponds exactly to the boxes on the ballot paper. Beside each square is one raised dot for the first candidate, two for the second and so on.

    This method poses the least number of obstacles for both voters and election officials. There are questions as to the accuracy of the alignment of slots but NCBI believes that, with training and the availability of trained officials at polling stations, this option is accessible to blind and vision impaired people.

    Postal ballot

    NCBI is calling for the current postal ballot, which is available to people with significant disabilities, to be opened up to more people with vision impairments, who may find it difficult to get to a polling station, which are often inaccessible. A tactile ballot template, as outlined above, should be sent to people with disabilities who wish to vote from home to ensure that they can do so independently. The expansion of the postal ballot is not a substitution for any options outlined above, but will be a welcome alternative to an updated voting system.

    Recommendation

    NCBI recommends that the ballot template be developed and introduced as quickly as possible.

    This should be supported by the following initiatives:

    • The production of polling information, candidate profiles and party manifestos in accessible formats.
    • Changes to the electoral register to enable voters to request information in their preferred format.
    • The provision of at least one ballot paper in Braille and large print in every polling station, enabling blind and vision impaired constituents to read the list of candidates independently.
    • Voters with disabilities maintain the right to have a companion assist them in the polling station if preferred.
    • Training for election officials in use of ballot templates and in providing assistance to people with disabilities in polling stations.
    • Training for people with vision impairments in use of tactile templates.

    Conclusion

    The changes proposed by NCBI would ensure that the entire electoral process is accessible to people with vision impairments and that people with vision impairments can vote independently and in secret.

    In 2005, people with vision impairments in Albania were able to exercise their constitutional right to vote in person for the first time. The introduction of a tactile ballot template, along with extensive training, resulted in higher voter turnout, with 72% of the eligible electorate of people with vision impairments voting, a much higher proportion than the rest of the electorate.

    NCBI believes that the introduction of the tactile ballot paper, alongside a number of minor changes, would bring similar benefits to the Republic of Ireland. NCBI is therefore calling on the Department of Environment, Heritage and Local Government to ensure an equal and democratic voting system is introduced as quickly as possible.