As North Carolina continues to refine and debate its absentee voting method, the legacy of this reform underscores the importance of balancing accessibility with security to ensure that every eligible voter has the opportunity to make their voice heard.
A worker prepares absentee ballots for mailing at the Wake County Board of Elections in Raleigh, N.C., in September 2020. | Gerry Broome/AP Photo
By Joshua Peters
Absentee voting in North Carolina has a long and evolving history that reflects broader trends in the United States regarding voting rights and accessibility. The use of absentee ballots in North Carolina began during World War II, primarily to allow soldiers and other military personnel stationed overseas to participate in elections. This early form of absentee voting was strictly regulated, with eligibility limited to those who could not be present at their polling place on Election Day. Over time, the scope of absentee voting expanded in response to social changes, legal challenges, and growing public demand for greater voting accessibility. In the 1970s and 1980s, North Carolina, like many states, began to relax restrictions on absentee voting, gradually allowing more people to vote by mail, including civilians who were ill, disabled, or unable to travel to polling places on Election Day. In the early 2000s, North Carolina adopted no-excuse absentee voting, which allowed any registered voter to request an absentee ballot without needing a specific reason. This change was part of a broader national movement to make voting more accessible and to increase voter participation. The introduction of no-excuse absentee voting significantly increased the number of voters using mail-in ballots, making it an integral part of the state's election process as it is understood today.
The 1940s
The use of absentee ballots in North Carolina began during World War II, specifically to accommodate soldiers and other military personnel stationed overseas. This early form of absentee voting was crucial for maintaining the democratic process during a time when millions of Americans were unable to return home to vote. Approximately 16 million Americans served in the military during the war, including a significant number of North Carolinians. Recognizing the importance of including these individuals in the electoral process, the state developed a highly regulated absentee voting system tailored for military personnel.
North Carolina Governor J. Melville Broughton (1941-45) was a strong advocate for expanding voting rights during his tenure and was in office when the first significant absentee voting measures were implemented to accommodate soldiers and military personnel. His administration worked closely with the General Assembly to address the challenges of wartime voting and to ensure that North Carolina’s soldiers could participate in the democratic process. Senators and representatives from North Carolina, including those serving in the state legislature and the U.S. Congress, also played key roles in supporting absentee voting measures. The push for absentee voting was often backed by bipartisan efforts, particularly as the country united during the war years. Legislators from both political parties recognized the symbolic and practical importance of ensuring that those defending the nation could still exercise their right to vote.
Among the notable figures were U.S. Senator Clyde R. Hoey (1945-54), who supported voting measures that allowed military personnel to participate in elections, and U.S. Senator Josiah William Bailey (1931-46), who was actively involved in legislative discussions about military voting rights. Representative Harold D. Cooley, who represented North Carolina’s 4th District in the U.S. House of Representatives (1934-67), also advocated for absentee voting to ensure that military personnel were not disenfranchised. Representative Robert L. Doughton, known as “Farmer Bob” and one of North Carolina’s longest-serving Congressmen, representing the state’s 8th and 9th Districts (1911-53), strongly supported policies expanding democratic participation. N.C. Representative John Kerr, who served as Speaker of the North Carolina House during the early 1940s, played a crucial role in navigating the legislative process to pass absentee voting regulations that supported military voting rights. These leaders’ efforts were instrumental in establishing absentee voting as a means to uphold democratic values during a time of national and global conflict.
In North Carolina, the earliest significant measure was the North Carolina Absentee Voting Act of 1941, which allowed soldiers and sailors stationed away from their home counties to vote by mail. This legislation established strict eligibility criteria and procedural safeguards, including requirements for ballots to be witnessed to prevent fraud. In 1943, the North Carolina General Assembly expanded these provisions to include certain government officials stationed overseas and provided clearer guidelines on ballot handling, distribution, and secure return.
At the federal level, the Soldier Voting Act of 1942 was a landmark piece of legislation that allowed U.S. military personnel serving in World War II to vote in federal elections by absentee ballot. This act was a direct response to the need for military service members to participate in elections despite being stationed overseas.
Post-War Years
During World War II, the number of absentee ballots cast in North Carolina was relatively modest compared to modern figures, as only a small segment of the population—primarily military personnel—was eligible. Although detailed records from this period are limited, the absentee voting system played a vital role in maintaining voter participation among North Carolinians stationed abroad. In the years following the war, absentee voting remained tightly regulated and limited in scope. However, these early regulations laid the groundwork for future expansions, helping shape the balance between increased accessibility and stringent measures designed to protect the integrity of the election process.
The Federal Voting Assistance Act of 1955 extended these rights to include members of the Armed Forces, Merchant Marine, and federal employees stationed overseas, requiring states to provide absentee ballots for federal elections. The Uniformed and Overseas Citizens Absentee Voting Act (UOCAVA) of 1986 further broadened absentee voting to include all U.S. citizens residing overseas, including military personnel, and required states like North Carolina to provide absentee ballots for federal elections. The Military and Overseas Voter Empowerment Act (MOVE Act) of 2009 built on these efforts by mandating that states send out absentee ballots at least 45 days before federal elections and introducing electronic options for ballot request and submission. Together, these state and federal laws have shaped the evolution of absentee voting, reflecting an ongoing commitment to balancing accessibility and election integrity, ensuring that military personnel, government officials, and broader segments of the population can exercise their right to vote, regardless of their location.
During the 1970s and 1980s, North Carolina witnessed a significant transformation in its absentee voting laws, reflecting a broader national trend towards increasing voter accessibility. Historically, absentee voting in North Carolina was tightly regulated, with eligibility largely restricted to military personnel and government officials stationed overseas. However, societal changes and growing demands for broader access to the electoral process prompted state legislators to relax these restrictions, gradually opening absentee voting to civilians who faced barriers to in-person voting.
The push to expand absentee voting in North Carolina during this period was influenced by a combination of factors, including advocacy from civil rights groups, changes in public attitudes towards voting rights, and the recognition of the needs of a diversifying electorate. The civil rights movements of the 1960s and early 1970s heightened awareness of the importance of making voting accessible to all eligible citizens, including those who were ill, disabled, or otherwise unable to visit polling places on Election Day. Much of this advocacy was enshrined in the Voting Rights Act of 1965, which aimed to eliminate discriminatory practices that had historically disenfranchised many voters and set a precedent for broader voting reforms.
In response, North Carolina’s state legislature began to introduce a series of reforms aimed at broadening absentee voting eligibility during the 1970s, driven by key political figures and advocacy groups. Governor Jim Holshouser (1973-77) played a pivotal role during this period of significant legislative changes, including efforts to modernize election laws. The North Carolina General Assembly, with bipartisan support from both the House and Senate, advanced reforms recognizing the barriers that illness and disability posed to voter participation. Key legislators, such as Senator Bill Goldston, who served in the State Senate from 1971 to 1984, and Representative Liston B. Ramsey, who was in office from 1961 to 1981 and later became Speaker of the House (1981-89), were actively involved in advocating for broader absentee voting provisions to ensure that all eligible citizens could vote, regardless of physical limitations. Advocacy groups, including the League of Women Voters of North Carolina and various disability rights organizations, also lobbied for reforms to make voting more accessible, emphasizing the needs of elderly voters, individuals with chronic conditions, and those with disabilities.
The 2000s
In the early 2000s, North Carolina made a significant change to its election laws by adopting no-excuse absentee voting. This reform allowed any registered voter in the state to request an absentee ballot without needing to provide a specific reason or justification, a departure from previous regulations that limited absentee voting to those who met certain eligibility criteria, such as illness, disability, or absence from the county on Election Day.
The adoption of no-excuse absentee voting in North Carolina in the early 2000s was driven by the efforts of key political figures and advocacy groups committed to expanding voting accessibility. Governor Mike Easley (2001-09) supported the modernization of voting laws during his administration, including expanding absentee voting options. Key legislative leaders such as Senator Tony Rand (1981-88, 1995-2009) and Representative Paul Luebke (1991-2016) played significant roles in advancing reforms within the General Assembly, with Rand’s leadership in the Senate helping to secure bipartisan support. Representative Deborah Ross (2003-13) and Senator Dan Blue (1981-2002 in the House, and 2009-present in the Senate) were also instrumental advocates, pushing for changes to make voting more accessible by reducing barriers to absentee voting.
Several advocacy groups also played critical roles in promoting no-excuse absentee voting. The League of Women Voters of North Carolina was a leading advocate, pushing for reforms to expand voter access. Common Cause North Carolina, known for its work on transparent and accessible elections, supported the reforms as part of broader efforts to improve voter engagement. Disability Rights North Carolina highlighted the importance of absentee voting for individuals with disabilities, while AARP North Carolina backed the changes to benefit older voters who faced challenges traveling to polling stations. Democracy North Carolina also actively promoted these reforms, advocating for broader absentee voting access as a means to protect and expand voting rights. Together, these figures and organizations were instrumental in shaping North Carolina’s approach to absentee voting, ensuring that the system became more inclusive and accessible for all voters.
Contemporary Debate to Balance Access with Security
The adoption of no-excuse absentee voting had a profound impact on voter participation in North Carolina. The reform was credited with significantly increasing the number of absentee ballots requested and cast in subsequent elections. For instance, in the 2004 presidential election, North Carolina saw a notable rise in absentee voting compared to previous cycles, as more voters took advantage of the new no-excuse policy. This trend continued in local and state elections, with absentee voting becoming an increasingly popular option.
Despite these improvements, the expansion of absentee voting has faced ongoing scrutiny and challenges. Concerns about voter fraud and the security of mail-in ballots have occasionally led to calls for further tightening of absentee voting procedures, including proposals for additional voter identification requirements and stricter monitoring of ballot drop-off locations. For example, absentee ballot fraud during the 2016 and 2018 elections in rural North Carolina led to an investigation that resulted in a redo of a congressional election. The case centered on Leslie McCrae Dowless Jr., a political operative accused of running an illegal “ballot harvesting” operation in Bladen County, where workers collected, altered, and completed absentee ballots. Dowless, who was also facing multiple charges, died in 2022 before his trial. Following the 2020 election, North Carolina legislators proposed new measures aimed at increasing the security of absentee ballots, including Senate Bill 326, known as the Election Integrity Act. This bill sought to require voters to include a photocopy of their identification with absentee ballot requests and to shorten the deadline for mail-in ballots to be received, addressing concerns about potential fraud and delays. However, the bill faced significant debate and opposition from voting rights groups who argued it could disenfranchise voters, especially those who rely heavily on absentee voting.
The adoption of no-excuse absentee voting in North Carolina was a landmark reform that significantly broadened access to the ballot box, making it easier for all citizens to participate in the electoral process. By removing unnecessary restrictions on absentee voting, the state not only modernized its election laws but also embraced a more inclusive approach to democracy. As North Carolina continues to refine and debate its absentee voting method, the legacy of this reform underscores the importance of balancing accessibility with security to ensure that every eligible voter has the opportunity to make their voice heard.