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eVoting – a new way to have our say Insight paper March 2017
Insight paper eVoting – a new way to have our say Contents Australia is ready for an eVoting option 04 Australia’s voting landscape 05 What do Australian voters want and expect? 08 The global experience of eVoting 11 A new platform for eVoting 12 Australia Post | Enterprise and government solutions 2
Insight paper
eVoting – a new way to have our say
New ways to have our say
There’s no doubt we now live The survey, conducted in August “Almost three-quarters
in a digital world, where our 2016, asked 1,000 Australians of voters believe it’s still
everyday interactions with banks, aged 18 and over about their important to have the choice
retailers, government and other experience voting in the July
service providers are increasingly 2016 Federal Election.
to vote in person. Physical
screen-to-screen rather than face (in-person and postal
-to-face. We expect to carry out This report looks at the results voting) and digital channels
secure transactions in seconds, of that survey, and examines the offer varying degrees of
in a single click or swipe. Plus, current voting landscape in Australia
convenience, security
we expect a seamless experience and overseas, as a starting point for
wider public discussion about the and accessibility.”
to suit our busy lives.
potential benefits and risks of eVoting.
But there’s one activity that hasn’t
gone mainstream for this online Many elements of eVoting have
trend – and that’s the way we vote. already been trialled in a range
of election environments both
According to a recent survey here and overseas. These insights
conducted by Australia Post, highlight the essential requirements
Australians believe it’s both a duty for a trusted and secure eVoting
and a privilege to vote, and they like platform that could also provide
to have their say on the future of greater convenience, cost savings,
Australia. More than three-quarters and faster election results.
(77%) say they would vote even if it
wasn’t compulsory. And 73% want It’s important to note that the survey
and expect to be able to vote online was conducted after Australia’s 2016
in the 2019 election. Census on 9 August.
However, as almost three-quarters Our survey results indicate that the
of voters also think it’s still important Census issue has not negatively
to have the choice to vote in person, impacted the attitude of Australian
we need to consider a holistic solution. voters towards eVoting. But lessons
Physical (in-person and postal voting) from that experience, as well as
and digital channels, offer varying general public concern about census
degrees of convenience, security data privacy in the weeks leading up
and accessibility – and as voting is to the census, must be considered as
compulsory in Australian government we develop an eVoting framework.
elections, we need to be inclusive
of all needs.
Australia Post | Enterprise and government solutions 3
Insight paper
eVoting – a new way to have our say
Australia is ready for an eVoting option
In the last federal election, an In any election, there are winners
increasing number of Australians and losers. The risk of a loss of trust
chose to vote early compared with in the results can lead to costly
2010 – 34% in 2016, compared to recounts or by-elections, as well
just 14% in 2010.1 as delays in forming government.
Our survey indicates 17% voted However, new technologies
in person at an early voting centre already exist to manage voting
and 14% via postal vote. This, protocols for a digital age – and
along with close outcomes in many ensure security, anonymity and
electorates, slowed the counting verifiability of eVoting. Australia Post
process and almost half of voters is already building digital solutions
were dissatisfied with the length that can provide this capability
of time it took to declare a result. for Australia’s government. We
also understand the importance
And of those who did vote in person of engaging all stakeholder groups
on election day, 47% had concerns – voters, candidates and electoral
about the time they had to spend commissions – throughout the
waiting in line, with 20% waiting journey, to ensure any alternative
more than 20 minutes. methods are both accepted
Australians are clearly ready to and accessible. Finally, we are
consider eVoting. They believe it already committed to supporting
will make it quicker to vote, quicker inclusive, secure election processes
to declare a result and will save through our postal vote services.
the government money. In fact,
47% of those surveyed were surprised
eVoting wasn’t already available.
It’s important to note, however, the
concept of voting online to determine
democratic outcomes is not quite the
same as making an online purchase
and payment – as a voter’s identity
needs to remain anonymous.
The rise and rise of the early voter, Peter Brent,
1
ABC News 28 June 2016
Australia Post | Enterprise and government solutions 4
Insight paper
eVoting – a new way to have our say
Australia’s voting landscape
Australia is one of the few countries In the 2016 federal election, more Whether it was due to timing or
with compulsory voting; for all than 1.4 million Australians failed choice, more convenient channels
federal elections, by-elections and to cast their vote – the highest for voting could have improved both
referendums, as well as state and number since 1922.3 This is despite the number of ballots cast and the
territory elections, and local elections. the Australian Electoral Commission speed of delivering results – in the
investing in a significant effort to 2016 federal election, it took eight
As a result, we have a high voter enrol more eligible voters through days to declare an outright winner.
turnout – since voting was made information from other government
compulsory in 1924, the average agencies, such as Centrelink. There The cost of holding elections has
has been about 95 per cent2 may be various factors behind this also risen steadily over the years,
– compared with many other number: for instance, the timing with the 2016 federal election
democracies. Australia’s biggest of this election clashed with school estimated to have cost taxpayers
concern with voting is not inclusion, holidays, and it’s possible those at least $227 million, or around
or increasing the number of votes non-voters deliberately chose $15 per voter.4 Additional costs
cast, but providing more accessible not to enrol. can arise in the case of human
polling options for voters. error – when 1,370 ballots were lost
in Western Australia following the
2013 federal election, the re-election
of six senators cost over $20 million.5
What is eVoting?
eVoting can refer to
the end to end process
of enrolment, voting,
recording and counting
to create a digital election
management platform.
In saying that, digital Vote
technology can also
be used at any stage
in the process.
2 Compulsory enrolment and voting, State Library NSW
3 Election 2016: Voter turnout lowest since compulsory voting began in 1925, SMH, August 8 2016
4 University of Melbourne Election Watch
5 ibid
Australia Post | Enterprise and government solutions 5Insight paper
eVoting – a new way to have our say
Election management platform
Enrol and verify identity Cast vote Count votes
Online Electronic Electronic
Enrol enrolment certified lists counting
and identity (real-time
verification voter mark off)
for first-time
voters
Update Electronically Automated
enrolment -assisted voting scanning of
details (audio prompts ballot papers
via phone or (intelligent
voting machine software
for visually recognition)
impaired voters)
Stand-alone Digital storage
custom-built of votes
Vote voting machines
(connected on
LAN rather than
broader internet)
Dedicated
computer or Electronic certified lists will reduce
network (cast the opportunity to vote multiple
an online vote in times, and reduce marking errors
a polling centre) by polling officials, with no obvious
risks. But while the use of remote
internet voting (on a voter’s own
device) will make it substantially
Mobile polling easier to vote and reduce human
teams (visit error in counting – with a faster
voters with result – it is also open to data
dedicated
manipulation and cyber attack.
mobile devices)
Own device
for voting (any
device with
internet access,
any location)
Source: Australia Post submission to the Victorian Parliament’s Electoral Matters Committee on Electronic
Voting (v1) – 30/6/2016 PLUS Australia Post eVoting fact base document (August 2016) p4
Australia Post | Enterprise and government solutions 6Insight paper
eVoting – a new way to have our say
Australia’s eVoting experience
Australia does already offer eVoting
in specific circumstances in NSW “In a world where people In the 2007 Federal Election,
and the ACT. remote electronic voting was
seek greater flexibility
trialled for Australian Defence
iVote was introduced in 2011 for the and the convenience of Force personnel. While the
NSW State General Election. It allows online operations, iVote
1,511
eligible voters who are blind, disabled contributes to increasing
and or more than 20km from a polling or at least maintaining
centre on election day, to vote via
the internet or phone. In 2015, almost
voting participation”
the report stated. voters who used the system
300,000 NSW voters registered to were happy with the process,
use this service.6 However, the iVote system the cost of the trial, at over
$1.7m
was also found to be vulnerable.
There were security gaps
97%
in the platform that could
enable someone to read or
change votes, which led to the was extremely high and access
introduction of a verification was limited to those serving
of iVote users were satisfied or
service in 2015.8 in four regions. A system that
fairly satisfied with the process
could provide convenient access
in the 2015 State General In the ACT, voters have been to all voters, no matter where
Election.7 It can provide able to use electronic voting they were located, could be
a faster poll result and a more terminals in six polling booths more cost effective.
secret ballot than an assisted since 2001. These are linked to
phone system. And according to a server via a secure LAN. While
the subsequent NSW Electoral voters have a high degree of
Commission Report, voters who confidence in the system, the
registered for iVote were also ACT is a small jurisdiction so
more likely to vote than those this hardware infrastructure
who registered for postal vote. is relatively easy to manage.
From these limited trials, it’s clear:
Trust is important Sanctity of results is crucial A sustainable voting platform
needs to be scalable
If there are loopholes that could With the results in marginal As the number of users grows,
allow votes to be changed after seats increasingly close, we cannot the system becomes increasingly
the vote is cast, there will be concern compromise electoral integrity: cost-effective, but it also needs
around the accuracy of the result. the security, sanctity and secrecy to be able to securely handle a
of a ballot. This means any platform large number of data transactions
needs to maintain a secret and within a short timeframe.
anonymous ballot.
6 & 7 2015 NSWEC Report on the Conduct of the 2015 State General Election
8 iVote flaw ‘allowed vote to be changed’; electoral commission fixes vulnerability, Bill Ockenden, ABC News 24/3/2015
Australia Post | Enterprise and government solutions 7Insight paper
eVoting – a new way to have our say
What do Australian voters want and expect?
Our survey found that while 73% Counting votes Demographic differences
of voters expect to have access
to eVoting, 77% would use it in the 75% of Australia’s voters say they
next Federal Election, and they would trust the accuracy of election
don’t mind whether that involves results, regardless of whether they
a touchscreen in a booth, or using are counted manually or through
their own device. automated technology. Automatic
counting is more trusted by younger
They believe voting at home would families, younger professionals
give them more flexibility over when and youths. Older professionals,
and where they vote, but also agree younger families,
that a touchscreen in a booth would However, there are concerns younger professionals
make voting quicker and obtain about cyber attacks and privacy and youths are more
a result sooner. – with voting on your own device at likely to choose
home causing greater concern. 23% eVoting – with
eVoters from the younger families of eVoters are concerned about the
62%
and younger professionals segments risk of cyber attacks on their own
are more likely to say voting should device, 17% are worried about the
be online only. privacy of their personal details and
16% are concerned with the risk of
Of those who would use eVoting of older professionals
fraud. Tracing votes back to voters
(eVoters), 72% say people should still surprised it isn’t
is also a consideration.
have the option to vote in person. already available.
Those who prefer traditional voting
methods have similar fears. 28%
of traditional voters say the risk
of cyber attacks is a barrier to
choosing to eVote, while 23% say Retirees, older
it’s the privacy of their personal families and
details and 19% worry about their household duties
vote being traced back to them. (stay at home
Importantly, 11% say they’re not parents) are
comfortable using computers or more likely to be
the internet, and just 1% say it’s traditional voters.
because they don’t have access.
Accessibility
According to a recent Digital Inclusion
project, 93% of Australians now have
access to the internet at home.
Our survey found that more than
half of Australians are online
frequently throughout the day.
41% are comfortable doing everyday
banking online, while 37% are open
to using new online services. The
majority do not feel pressured by
the shift to online services.
Australia Post | Enterprise and government solutions 8Insight paper
eVoting – a new way to have our say
The case for eVoting
As the survey results highlight,
Australian voters believe the option Reasons for eVoting
65%
for eVoting would provide a number
of benefits to them, and to the
election process.
Quicker to vote
Faster results
59%
Delays to an election result
causes uncertainty, not just in
government but also in financial
markets. 59% of Australian voters Quicker to declare a result
believe eVoting would make it
quicker to form government.
56%
Faster to vote
With almost two-thirds saying
eVoting will make voting quicker, this
is the most popular benefit for voters. Easier to vote
It also gives them more flexibility
and choice to vote when and where
53%
it suits them. With the rise of early, in
-person and postal votes, it appears
people find it increasingly challenging
to visit a polling booth on a specific Greater accuracy Increased flexibility on when
day between set hours. This is not Elements of eVoting, such as real and where to vote
just about reducing the amount of -time electronic lists or digital
time spent queuing on election day.
51%
identity verification, could also
remove the risk of some Australians
voting more than once. In the 2013
Federal Election, nearly 2,000
Australians admitted to doing so Saves the government money
– with one voter casting 15 ballots.11
Source: Australia Post commissioned
survey, n=830
Cost savings
Just over half expect eVoting
would save the government money.
Economic modelling suggests a
hybrid voting system (digital and
physical) could save the government More accessible
up to $32million.9 Other countries eVoting may be more convenient
have found efficiency gains, lower for voters who find it challenging
labour costs and fewer materials to vote in person at a polling booth,
have led to savings of up to 34%.10 whether that’s due to mobility
impairments or because they live
in regional or remote communities.
However, this will depend on their
access to internet. It should also
be noted that Australians living
in regional and rural areas were
more likely to prefer traditional
voting methods.
9 The Boston Consulting Group (BCG) modeling based on ABS and AEC data: physical voting costs average $7.68/vote vs $2–3 for digital votes, assuming 50–67%
votes are cast electronically
10 Swiss Post e-Voting service
11 Senate estimates hearing, February 2014
Australia Post | Enterprise and government solutions 9Insight paper
eVoting – a new way to have our say
Weighing up the risks
As with any online platform, eVoting Australia’s 2016 Census provides
could be vulnerable to attack, and Barriers to eVoting some additional context for these
a relatively small subversion in key for traditional voters concerns. The Office of the cyber
28%
electorates could swing an election security Special Adviser’s Review
result. So it’s important to manage into the events, described the 2016
the risks, especially if the system eCensus as a ‘setback’, and a ‘serious
becomes increasingly open to people blow’ to the public’s confidence in
using their own devices and as the Risk of cyber attacks the ability of government to deliver
scale of use expands. secure digital services.12
23%
The survey found Australian voters The Review also suggested all
trust eVoting results, whether it is government agencies could
through a touch screen in a polling learn from the ABS’ experience.
booth (95% would trust the results) Privacy of personal details Specifically:
or using their own device at home
(88% would trust the results). • The importance of a
19%
co-ordinated crisis response
However, they are concerned and communication plan
about the following risks:
• Cyber security risks need to
Cyber attacks – security breaches Votes traced back to the voter be managed at every stage
could enable an attacker to read – from procurement to project
or change votes. Given the survey governance
was carried out just after the 2016
Census it’s no surprise this concern
was top-of-mind in the survey results
– with 23% of eVoters concerned
14%
Prefer voting how they’ve
• Adequate DoS (denial of service)
protections and controls must be
in place
about this risk if they vote on their always voted • The public needs to be reassured
own device at home. about their personal data privacy
11%
Fraud – any loopholes that would and security as part of any
enable votes to be altered or change program.
manipulated would affect the trust Worryingly, post-Census surveys
in the accuracy of an election result. indicated 32 per cent of Australians
Not comfortable using
computers / internet believe the data collected from the
2016 Census is now unreliable.13
They will need to be confident the
1%
final results of an election are robust
and credible – despite any setbacks.
Don’t have access to
computers / internet
Source: Australia Post commissioned
survey, n=170 (traditional voters, more
likely to be household duties, older
families and retirees)
Q Which of the following reasons explains
why you would not use electronic voting?
12 Review of the Events Surrounding the 2016 eCensus, 13 October 2016 – Office of the cyber security Special Adviser, Department of the Prime Minister and Cabinet
13 ibid
Australia Post | Enterprise and government solutions 10Insight paper
eVoting – a new way to have our say
The global experience of eVoting
Around the world, eVoting has had
mixed results.
The United States suffers from In New Zealand, a proposed internet
ageing machines with a range of voting trial for the 2016 election
capabilities – from direct recording was called off due to security and
electronic systems to punch-card readiness concerns, but it remains
Estonia was the first country voting machines. cautiously open towards eVoting.
to implement nationwide internet
voting in 2005.14 During the pre Concerns with the reliability After a low voter turnout
-poll period, voters logged onto the and security has led to a in local-body elections in
system, verified their identity and movement away from eVoting. Auckland (as low as 16.3%
cast their vote. Their identity was
70% of voters in the 2014 mid in some areas), an Electoral
removed from the ballot before
it reached the National Electoral -term elections cast a paper Office representative said
Commission for counting, and voters ballot rather than electronic, the key to improving turnout
could vote as many times as they despite a $3 billion investment (especially for younger
liked during this period with each in electronic voting machines voters) is to offer online
vote cancelling the last. after the 2000 election – when voting in conjunction
Just over 30% voted online Florida’s ‘hanging chads’ with postal voting.17
in the Parliamentary elections ultimately decided the result.16
in 2015 – and in the 2011
elections. It’s estimated
this saved the equivalent
of 504,000 Euros in wages
Switzerland has trialled internet
(11,000 working days). voting at confederation, canton
However, an independent report and commune level since 2004.
in 2014 pointed out security
holes in the system (which the eVoting is mainly offered
government denied).15 to citizens overseas, so the
number of voters who can
access the system is limited.
There has been a controlled
introduction, with the choice of three
eVoting systems for cantons to use.
Estonia
United States
Switzerland
New Zealand
14 e-Estonia.com: i-Voting
15 Second interim report on the inquiry into the conduct of the 2013 federal election: an assessment of electronic voting options
16 States ditch electronic voting machines, The Hill, November 2 2014
17 Low turnout renews calls for online voting at local elections, NZ Herald October 2, 2016
Australia Post | Enterprise and government solutions 11Insight paper
eVoting – a new way to have our say
A new platform for eVoting
As the survey reveals, one in four A ballot could be cryptographically
Australian voters expect eVoting to be represented through blockchain
available by the 2019 federal election. to ensure the voter is anonymous,
We believe the capabilities of new and their data is protected from
technology will make this possible, public access.
and it is important to begin a staged
approach to its implementation. Blockchain is still an emerging area
2: Casting a vote – touch screens of technology, but Australia Post is
in booths and own devices already investing in the technology
The development of required to underpin this platform
this capability has clear To achieve voter acceptance, – ensuring authentication protocols
benefits for all levels of an effective eVoting system will cannot be broken and intrusion
government elections. need to address citizen access and detection protocols are in place.
But it could also be used experience as well as data integrity Australia Post’s cyber security
and security. Providing a choice Operations Centre monitors all
to conduct referendums
of channels – in-person at a polling our applications and infrastructure
or plebiscites more cost booth, and online from their own – and has, as yet, not had a
-effectively and could apply or fixed device – will ensure the significant data breach.
to workplace or industrial greatest flexibility for voters.
elections, student groups
Our survey asked voters to choose
or sporting clubs. their preference for eVoting; between
a touchscreen in a polling booth
The rapid evolution of technology and using their own device at
such as biometric identity verification, home. Both were equally preferred.
makes it possible to overcome
many of the challenges with For those who chose a touchscreen,
eVoting, and could provide a secure the main reasons were improving
and convenient platform that is the speed of declaring a result and
4: Choice – physical and
accessible to all voters. making it quicker to vote. Those who
digital options
chose their own device, said having
greater flexibility on when and where To meet the needs of voters, physical
they could vote was important. voting channels will still be required.
Our physical network of more than
4,000 Post Offices, including 2,500
in rural and regional areas, could
provide that option.
For many years, Australia Post
has assisted national, state and
1: Identity platform – digital territory electoral commissions
identity management with postal voting. Our Reply Paid
service is used by voters to return
A robust identity verification solution 3: Security – robust and completed postal votes without
plays a vital role in a secure eVoting demonstrably secure system any cost to the voter.
platform. This will ensure voters
are eligible to vote, they vote in An eVoting platform will also need During an election period, we
the correct electorate and only cast to protect data from unauthorised also have special arrangements
one vote. Australia Post is already access and confidentiality breaches, to ensure postal votes are counted,
working on plans for an open digital including cyber security risks and sorted and delivered in the most
identity ecosystem that could be fraud. Blockchain could be the efficient manner.
used for this purpose, providing a core technology underpinning this
single digital identity credential that solution, as it would allow people
can be verified through biometric to vote from anywhere and provide
technology (such as a face scan). a real-time audit of results.
Australia Post | Enterprise and government solutions 12Insight paper
eVoting – a new way to have our say
A roadmap to eVoting
One possible way to provide a We recommend a staged implementation.
robust eVoting channel, is with voters
registering via a mobile device. Their
information (and their vote) can be Stage 1
made anonymous, and they can
change their vote until polling closes. Localised trials of eVote app at small scale,
They can also receive confirmation to test voter behaviour and experience,
of their vote via secure text and can as well as compliance and audit protocols
view live voting result feeds on the
same device.
This seamless experience could
provide a new level of engagement
and involvement, and will be crucial
as voting apathy grows amongst
millennials and generation Y voters. Stage 2
Work with government to evolve regulatory
and legal constraints to accommodate voting
at a parliamentary scale
Stage 3
Offer an eVoting solution to pre-polling voters
(such as absentee, overseas, defence force and
interstate voters, voters in remote areas, disabled
or vision impaired voters) at a state election
Stage 4
Offer an eVoting solution to all eligible voters on
an opt-in basis, with options to vote online via app,
via touchscreen at a polling booth, assisted voting
by phone and paper ballots with electronic scanning
and counting
Stage 5
eVoting becomes the preferred voting method
with high penetration
Australia Post | Enterprise and government solutions 13Insight paper
eVoting – a new way to have our say
In conclusion
Twenty years ago, there was fear We cannot expect eVoting to
about the security, usability and completely replace traditional
accessibility of online banking. voting. To provide true choice and
Today, we make payments accessibility in a democracy with
online every day. And with the compulsory voting, we need to
rapid acceleration of cardless consider a holistic solution that
withdrawals, mobile payments combines digital, postal and in-person
and crypto-currencies, the potential options in a way that optimises the
for real-time transactions is well benefits of each channel – without
and truly here. compromising security or trust
in the election result.
Although there are additional
challenges for conducting a robust, We believe Australians are ready
trusted and anonymous election for eVoting, and that it should be
process, these same technologies part of an election platform that
can be applied to eVoting. provides true choice to every voter.
The benefits to both voters and We welcome further discussion on
government are clear – with this important issue.
the potential to achieve; faster
results, reduced costs, improved
convenience and greater
accessibility. Voters have told
us they want it, and expect it
by the next Federal Election.
Australia Post | Enterprise and government solutions 14Insight paper
eVoting – a new way to have our say
How Australia Post can power a citizen-first approach
Australia Post already supports a We have already invested in digital
fair and accessible election process; identity, payment and information
by providing enrolment forms in Post management services – because
Offices around Australia, delivering we know that delivering secure,
enrolment campaign mail to more future-proof solutions will require a
than 11.5 million households in the robust framework and infrastructure.
lead-up to elections and by enabling
voters to cast a postal vote at no We also understand the capabilities
cost via our Reply Paid service. needed for bringing a community
along a journey of change.
We also have special arrangements
during an election period to ensure
postal votes are counted, sorted and
delivered in the most efficient manner.
Working extensively with all levels
of government, Australia Post is
committed to providing greater
choice of how people can access
services as part of a multi-channel
engagement strategy. And we also
support the AEC and other electoral
bodies as custodians of Australia’s
federal and state electoral process.
To find out more about our enterprise and government solutions, please visit auspostenterprise.com.auYou can also read
