AEC Annual Report 2007–08 - Output 1.1.1 Electoral roll management
Output 1.1.1 Electoral roll management
Overview
One of the AEC’s functions under the Commonwealth Electoral Act 1918 is to manage the electoral roll—the key record of people entitled to vote at federal, state and territory and local government elections.
Managing the roll involves:
- preparing, maintaining and revising the electoral roll used for federal elections
- maintaining the electoral rolls for state, territory and local government elections, through joint roll agreements
- making the electoral roll available for public inspection
- providing roll products and services to authorities, persons and organisations as specified under provisions of the Commonwealth Electoral Act 1918.
The AEC uses a computerised roll management system (RMANS) to assist with these processes.
Table 6 summarises the AEC’s results against the performance information set out for Output 1.1.1 in the 2007–08 Portfolio Budget Statements.
Performance
Overall performance
The quality of the roll for the 2007 federal election is evidence of the benefit of the AEC’s more targeted and integrated approach to building and managing the electoral roll. The AEC will continue to build on the successes of 2007–08 through:
- more informed identification and analysis of issues that may cause a decline in enrolment, and formulation of strategies to address those factors
- more sophisticated analysis of outcomes from the continuous roll update program to inform efficient and effective roll review activities
- development of new roll review techniques to encourage the re-enrolment of previously enrolled electors
- research into elector motivation and perceived barriers to enrolment to inform communication strategies
- development of appropriate evaluation activities for all enrolment strategies.
In 2007–08 the AEC implemented new legislative provisions for the staged close of rolls for the 2007 election. Under the new provisions there are different deadlines for first time enrolments or those re-enrolling after a period of non-enrolment and for those updating their enrolment. Actual dates for the 2007 election are shown in Table 16 in output 2.1.1.
Enrolment transactions
During 2007–08, divisional staff processed 2,541,187 enrolment transactions. This represents an overall decrease of 13.6 per cent compared to the level in 2006–07, largely reflecting the cycle of events surrounding the conduct of the 2007 federal election.
Table 7 summarises enrolment activity during 2007–08.
Note: National and state/territory totals for enrolment activity are subject to minor statistical adjustment and will show minor differences from gazetted enrolment details. The figures above include new enrolments and changes to enrolment for 17-year-olds.
Correction Note: Table 7 and the accompanying note were updated on 3 February 2009 to remedy a transposition error of the figures relating to WA and SA.
Number of electors enrolled
Table 8 summarises enrolments by state and territory and by year.
The total number of enrolled electors increased by 2.3 per cent in 2007–08. This was the result of a combination of factors, including the AEC’s enrolment stimulation activities, advertising campaign and public awareness raising; media coverage; and general public awareness of electoral matters leading up to the federal election, as well as natural increases due to population growth.
At the close of rolls for the 2007 federal election, 13,645,073 people were enrolled—an increase of 623,843 on the number enrolled for the 2004 election.
Participation rate
The AEC calculates voter participation rates using Australian Bureau of Statistics (ABS) population data derived from the census. The population data is adjusted, using other data that relates specifically to those who are not eligible to be enrolled to vote, to estimate the total number of people eligible to enrol. The total is then compared to the actual number of people enrolled on the AEC’s electoral roll database, to estimate the ‘participation rate’.
As there is no definitive source for the number of eligible voters at any one point in time, the value of any methodology for estimating the level of participation lies in trend data. Given the underlying reliability of ABS population calculations, the AEC considers that they provide the soundest foundation on which to base an estimate.
In consultation with the ABS, the AEC is continuing to refine its use of ABS population estimates for electoral purposes.
Overall trends
Table 9 summarises the nation-wide participation estimates, derived from the ABS 2006 census data, from 2004 to 2008.
Note: These figures are based on 2006 census data, while the figures used in the 2006–07 annual report were based on 2001 census data. Estimated participation rates prior to November 2007 have been revised downward because the ABS has advised that 2006 census data revealed an undercount in population extrapolations based on 2001 census data.
Analysis of the data indicates that 2007–08 was the second year in a row in which participation increased, after declining to a low at 30 June 2006. The AEC was aiming for a participation rate at the 2007 election similar to that achieved at the 2004 election. In fact, participation increased by 0.7 per cent from 30 June 2007 to reach 92.3 per cent at the 2007 election. This result was 0.8 per cent higher than that for the 2004 election.
The small decline in participation between the election date and 30 June 2008 reflects the slow-down in major enrolment stimulation activities between the election and the final quarter of 2007–08, and the apparent decline in motivation for people to maintain correct enrolment in a post-election period. A targeted and integrated continuous roll update (CRU) program in 2008–09 will seek to maintain the current participation rate, which has historically been difficult to achieve in a non-election period.
In the lead-up to the federal election, a greater number of electors were noted to be accessing enrolment forms from the AEC website. Advertising also ensured that electors knew that they could obtain enrolment forms from the offices of Centrelink, Medicare and other Australian Government agencies.
Target groups
Table 10 reports on additional performance indicators for two target groups of Australians eligible to vote: young people and new citizens.
Based on ABS 2006 census data, the estimated proportion of eligible people aged from 18 to 25 years enrolled at 30 June 2008 was 82 per cent. This was an increase of 1.0 per cent from 81 per cent at 30 June 2007. This reflects the focus the AEC has placed on increasing electoral awareness and enrolment among this group, as described in the report on performance for Outcome 3.
At the close of rolls for the 2007 election, youth participation was 84.5 per cent. This was a 2.3 per cent increase from the participation level at the 2004 election. As can be seen from Table 10, since the election the youth participation level has declined to 82 per cent. This reflects the fact that enrolled voters matured and left the target group and were replaced by people reaching enrolment age without an imminent federal election to motivate them to enrol promptly. This will be addressed in 2008–09 by targeting of newly eligible electors as part of enrolment stimulation and public awareness programs, including a national Enrol to Vote Week targeting 17-year-olds and 18-year-olds in schools, and the recommencement of the AEC’s ‘birthday card’ program targeting people turning 17 or 18.
The use of SMS as a mechanism for requesting enrolment forms was trialled over a six-week period in 2007. The trial was supported by advertising the SMS number in newspapers and magazines across the country. Young Australians were expected to be the highest users of the service. In total:
- 2,561 SMS requests for enrolment forms were received, 57 per cent of which came from people in capital cities
- 1,494 enrolment forms were received up to 23 October 2007, 36 per cent of which were from people aged from 17 to 24 years and 50 per cent of which were from people aged from 25 to 39 years.
An evaluation of the trial indicates that such a program could be worthwhile implementing if resources were available to support it with an electronic advertising campaign (particularly television advertising).
The rate of enrolment by new citizens within three months of attaining citizenship decreased from 93 per cent in 2006–07 to 90 per cent in 2007–08.
The pattern of enrolment of new citizens in 2007–08 mirrored general enrolment activity, with 30,348 enrolled in the first quarter of 2007–08 alone. This is the highest level of new citizen enrolments in a quarter, and was undoubtedly stimulated by the imminent federal election. The challenge for the AEC in 2008–09 is to prevent this level from declining in comparison to the number of people taking out citizenship.
AEC staff in all states and territories continued to attend citizenship ceremonies to provide electoral information and facilitate the enrolment of the new citizens. In cases where the AEC was unable to attend the ceremony or the enrolment forms from new citizens were not collected at the ceremony, the AEC contacted the organisation conducting the citizenship ceremony (usually the relevant local council) to obtain details of the new citizens so that they could be contacted and encouraged to enrol.
Table 11 describes enrolment activities at citizenship ceremonies from 2005–06 to 2007–08.
a Data was not recorded separately by jurisdiction in 2005–06.
b The total differs from the total shown in last year’s annual report, which reflected an error in addition.
Roll update and enrolment stimulation activities
Approximately 43 per cent of all enrolment transactions occurred in the first quarter of 2007–08, with a further 30 per cent occurring in the second quarter. This concentration of activity in the lead-up to the 2007 federal election reflects the AEC’s concerted efforts, following the changes to the close of rolls deadlines, to ensure that as many eligible electors as possible were enrolled to vote for the election.
In 2007–08, the AEC continued its ongoing program of activities, including mail-outs and fieldwork, under the CRU. Through the CRU, the AEC compares data from external sources with information on the AEC’s electoral roll database, to check electors’ details and identify cases where eligible people are incorrectly enrolled or not enrolled. Informed by CRU reports, the AEC asks eligible people to update their enrolment details and conducts follow-up action when necessary.
The AEC also continued its targeted enrolment stimulation (TES) activities in the early months of the 2007–08 financial year. The TES activities, which commenced in 2006–07, contributed to the higher level of enrolment transactions in the last quarter of 2006–07 and, consequently, to the significantly lower level of transactions during the close of rolls for the 2007 election. See ‘Case study: Targeted enrolment stimulation program’s impact on the close of roll’ for more details on TES.
Although overall enrolment activity was less in 2007–08, the higher participation rate was maintained. The AEC’s enrolment stimulation activity was more effectively directed towards increasing the size and accuracy of the roll and protecting the franchise of people who had moved. In the first two quarters of 2007–08, TES activities alone delivered 70,571 new enrolments and re-enrolments and 84,896 enrolment changes. While enrolment activity was less in 2007–08 than in 2006–07, it was greater than in 2005–06: this fits the pattern that is usually experienced in a three-year federal electoral cycle.
As is usual during a year in which a federal election is held, major enrolment stimulation activities were slowed in the second quarter of the year. AEC activities during this period focused on election-specific tasks such as finalising polling place locations and recruiting and training polling staff, taking the time that would normally be spent on roll management activities in a non-election period.
In early 2008 the AEC conducted enrolment follow-up mail-outs, using change-of-address information supplied by electors on their declaration vote envelopes, and some enrolment mailing to electors who had moved. This work was undertaken to ensure that a relatively high participation rate is maintained and to avoid the decline in enrolment that can occur following a federal election, such as that which occurred following the 2004 election. This activity was initially somewhat limited, due to a focus on post-election activities such as investigating apparent cases of multiple voting or non-voting; however, routine major mail-outs to electors who had moved or were no longer on the roll, or who had never been enrolled, recommenced in May 2008.
During the post-election period, the AEC also conducted significant analysis of the ongoing CRU program, to ensure it continues to provide ongoing enrolment stimulation and integrity. This included examining the external data sources used in data matching and the delivery mechanism for enrolment follow-up. The outcome of this analysis will inform the delivery of an ongoing targeted and effective CRU program, with a clear focus on roll growth and accuracy, in 2008–09.
The Sample Audit Fieldwork that the AEC uses to measure the effectiveness of the CRU program was not conducted in 2007–08.
Proof of identity scheme
The proof of identity (POI) scheme for enrolment was introduced on 16 April 2007.
A basic requirement of any voter registration system is that it should not operate in a discriminatory manner: eligible people in all segments of society should be able to enrol with comparable ease. To make enrolment accessible, the POI scheme provides for three forms of identification: a driver’s licence; an approved document; or confirmation by two enrolled people who know the applicant.
In 2007–08, approximately 90 per cent of electors provided their driver’s licence number; approximately 8 per cent of electors showed an authorised person an approved document; and the remainder (around 2 per cent) had their identity confirmed by two enrolled people who knew them.
GENESIS project
During 2007–08, work on the GENESIS (general enrolment, elections support and information system) program continued, making significant progress towards replacing RMANS, the AEC’s roll management system. This included:
- completing the documentation of the AEC’s existing roll function business processes
- clarifying the architectural and implementation phases of future roll functions
- carrying out feasibility studies of proposed technical solutions
- creating an enrolment and registration processing prototype
- planning the controlled expansion of the AEC’s IT architecture for GENESIS
- specifying detailed requirements related to
- enrolment application and registration
- security and audit
- objections
- correspondence management
- implementing best practice approaches to project management and software development.
In 2008–09, the GENESIS program will focus on developing requirements for reviews and appeals, management of external data sources, and targeted roll reviews; developing software and testing components for the roll management function; and undertaking an initial analysis of the scope of the election management function. In addition, GENESIS will:
- deliver a web-based enrolment application processing system
- complete the development of the detailed roll function requirement.
Roll products and services
Table 12 summarises the AEC’s performance against internal indicators and targets.
In accordance with the provisions of the Commonwealth Electoral Act 1918 and, where relevant, the joint roll arrangements between the AEC and its state and territory counterparts, the AEC provided a range of electoral roll products to state and territory electoral authorities during 2007–08.
The products were provided in formats to suit the client and the purpose. They included certified list data for the Queensland local government area elections and electoral roll products as required for local government elections, by-elections and redistributions in the states and territories. Enrolment data was also extracted for the 2007 federal election, the by-election in the Division of Gippsland and three Torres Strait Regional Authority elections. See the report on performance for Outcome 2 for more information on these electoral events.
Under the Commonwealth Electoral Act 1918, the Electoral Commission may give a copy or extract of the electoral roll to a prescribed person or organisation for the purposes of satisfying identity verification obligations under the Financial Transaction Reports Act 1988 and the Anti-Money Laundering and Counter-Terrorism Financing Act 2006. Such persons or organisations began receiving electoral roll data during 2007–08.
There was also a slight increase in demand from medical researchers: 43 extracts of elector information were provided to medical researchers in 2007–08, compared to 40 in 2006–07.
Electoral roll products were also provided to:
- members of parliament and political parties, through the elector information access system (ELIAS)
- Australian Government agencies and authorities as specified in Schedule 1 of the Electoral and Referendum Regulations 1940
- various local government authorities, including in New South Wales, Queensland, Tasmania and the Northern Territory
- members of the public and government agencies, including the Australian Bureau of Statistics, where the data provided was of a statistical or address nature only.
See Appendix E for more details of the information provided in 2007–08.
Work commenced on updating the Roll Products Catalogue to provide joint roll partners with an updated list of products available from the AEC. This is expected to be completed by late 2008.
The AEC continued to provide public access to the electoral rolls for all states and territories in electronic format, through the AEC office in each federal division. The electronic roll is updated daily.
The AEC also continued to make electoral roll information accessible online through the AEC website. Web access helps to ensure the integrity of the roll, as individuals can check their own enrolment details and use a downloadable enrolment form to update those details if necessary.
Case study: Targeted enrolment stimulation program’s impact on the close of roll
As outlined in last year’s annual report, the AEC implemented a targeted enrolment stimulation (TES) program to identify electors who were not enrolled or were incorrectly enrolled, and encourage them to update their enrolment in anticipation of the 2007 federal election. TES field officers visited the addresses of electors who were not correctly enrolled, and followed up the visits with mail and telephone contacts.
The TES program operated for approximately seven months from March 2007, in all states and territories. It was the first time the AEC had deployed targeted door-knocks on such a large scale. The AEC mailed 250,000 targeted letters and employed 3,308 field workers, who knocked on the doors of over one million homes.
Between March 2007 and the announcement of the election on 14 October 2007, TES fieldwork resulted in:
- 76,525 first-time electors being enrolled
- 99,610 previously enrolled electors being returned to the roll
- 225,132 currently enrolled electors updating their name and/or address details.
Follow-up mailing in August and September 2007 resulted in a further:
- 5,556 first-time electors being enrolled
- 33,367 previously enrolled electors being returned to the roll
- 45,061 currently enrolled electors updating their name and/or address details.
The TES program was not implemented in isolation but was supported by a national advertising strategy and complemented by standard components of the CRU program. The overall result was that these activities together generated 62 per cent of the roll growth between March 2007 and the close of rolls for the election. During this period, net growth in the number of people on the roll was 342,000—an increase of 2.6 per cent in seven months.
Between June and September 2007, the AEC conducted targeted enrolment promotion activities in selected divisions, including promotions held at shopping centres, schools and colleges and during major events such as show days, as well as door-knocks or mail-outs in high-turnover areas and generic mail-outs to post office box holders. These local initiatives generated 52,835 enrolment forms.
The strong results of the TES program contributed to both an increase in the electoral participation rate and a significant reduction in enrolment transactions processed during and after the close of rolls for the federal election. The number of transactions processed in the close of roll period was significantly reduced in 2007—by 34 per cent compared with the 2004 close of rolls period. There were 40 per cent fewer transactions between the close of rolls and election day in 2007 than in the corresponding period in 2004.
The increased elector participation rate and the significant reduction in the number of transactions processed after the close of rolls can be attributed to the comprehensive pre-election work of AEC staff, supported by the national advertising campaign.
The TES program demonstrates that a well-funded, coordinated and planned range of activities, including media and public awareness activities, as well as direct enrolment activities, for example targeted mail-outs and fieldwork, can result in a significant growth in enrolment in the lead-up to the close of rolls. The AEC will carefully consider the results of TES in future preparations and planning for federal elections.
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