Existing law authorizes a person who is qualified to register to vote and who has a valid California drivers license or state identification card to submit an affidavit of voter registration electronically on the Secretary of States internet website. Existing law requires this affidavit to contain a statement that the county elections official must compare the affiants signature on the identification envelope for the return of a vote by mail ballot with the signatures appearing in the voters registration record, including the signature appearing on the applicants drivers license or state identification card. The Secretary of State must require a person who submits such an affidavit to submit, among other things, the number from their California drivers license or state identification card.

This bill would additionally authorize a person who is qualified to register to vote to submit an affidavit of voter registration on the Secretary of States internet website even if the person has not been issued a California drivers license or state identification card, as long as the person provides the last four digits of their social security number with their affidavit. The bill would require the Secretary of State to develop a method to collect an electronic image of the applicants signature, and would require this collection method to be accessible to people with disabilities. The bill would additionally authorize a county elections official to compare the affiants signature on the identification envelope for the return of a vote by mail ballot with this electronic image of the affiants signature. The bill would authorize the Secretary of State to authenticate the identity of an applicant who electronically submits an affidavit of voter registration without providing a California drivers license or state identification card by verifying the last 4 digits of the applicants social security number, the applicants full name, and the applicants date of birth. The bill would specify that its provisions become operative on January 1, 2029.

Existing law authorizes a person who is qualified to register to vote and who has a valid California drivers license or state identification card to submit an affidavit of voter registration electronically on the Secretary of States internet website. Existing law requires this affidavit to contain a statement that the county elections official must compare the affiants signature on the identification envelope for the return of a vote by mail ballot with the signatures appearing in the voters registration record, including the signature appearing on the applicants drivers license or state identification card. The Secretary of State must require a person who submits such an affidavit to submit, among other things, the number from their California drivers license or state identification card.

This bill would additionally authorize a person who is qualified to register to vote to submit an affidavit of voter registration on the Secretary of States internet website even if the person has not been issued a California drivers license or state identification card, as long as the person provides the last four digits of their social security number with their affidavit. The bill would require the Secretary of State to develop a method to collect an electronic image of the applicants signature, and would require this collection method to be accessible to people with disabilities. The bill would additionally authorize a county elections official to compare the affiants signature on the identification envelope for the return of a vote by mail ballot with this electronic image of the affiants signature. The bill would authorize the Secretary of State to authenticate the identity of an applicant who electronically submits an affidavit of voter registration without providing a California drivers license or state identification card by verifying the last 4 digits of the applicants social security number, the applicants full name, and the applicants date of birth. The bill would specify that its provisions become operative on September 1, 2027. January 1, 2029.

Existing law authorizes a person who is qualified to register to vote and who has a valid California drivers license or state identification card to submit an affidavit of voter registration electronically on the Secretary of States internet website. Existing law requires this affidavit to contain a statement that the county elections official must compare the affiants signature on the identification envelope for the return of a vote by mail ballot with the signatures appearing in the voters registration record, including the signature appearing on the applicants drivers license or state identification card. The Secretary of State must require a person who submits such an affidavit to submit, among other things, the number from their California drivers license or state identification card.

This bill would additionally authorize a person who is qualified to register to vote to submit an affidavit of voter registration on the Secretary of States internet website even if the person has not been issued a California drivers license or state identification card, as long as the person provides the last four digits of their social security number with their affidavit. The bill would require the Secretary of State to develop a process to allow such an applicant to electronically upload a high-quality digitized image of the applicants signature through the electronic voter registration system, and would require this signature upload process method to collect an electronic image of the applicants signature, and would require this collection method to be accessible to people with disabilities. The bill would additionally authorize a county elections official to compare the affiants signature on the identification envelope for the return of a vote by mail ballot with this digitized electronic image of the affiants signature. The bill would authorize the Secretary of State to authenticate the identity of an applicant who electronically submits an affidavit of voter registration without providing a California drivers license or state identification card by verifying the last 4 digits of the applicants social security number, the applicants full name, and the applicants date of birth. The bill would specify that its provisions become operative on the earlier of (1) January 1, 2027, or (2) five days after the date on which the Secretary of State certifies that information technology infrastructure necessary to implement its provisions is functional. September 1, 2027.

Existing law authorizes a person who is qualified to register to vote and who has a valid California drivers license or state identification card to submit an affidavit of voter registration electronically on the Secretary of States internet website. Existing law requires this affidavit to contain a statement that the county elections official must compare the affiants signature on the identification envelope for the return of a vote by mail ballot with the signatures appearing in the voters registration record, including the signature appearing on the applicants drivers license or state identification card. The Secretary of State must require a person who submits such an affidavit to submit, among other things, the number from their California drivers license or state identification card.

This bill would additionally authorize a person who is qualified to register to vote to submit an affidavit of voter registration on the Secretary of States internet website even if the person has not been issued a California drivers license or state identification card, as long as the person provides the last four digits of their social security number with their affidavit. The bill would require the Secretary of State to develop a process to allow such an applicant to electronically upload a high-quality digitized image of the applicants signature through the electronic voter registration interface, system, and would require this signature upload process to be accessible to people with disabilities. The bill would additionally authorize a county elections official to compare the affiants signature on the identification envelope for the return of a vote by mail ballot with this digitized image of the affiants signature. The bill would authorize the Secretary of State to authenticate the identity of an applicant who electronically submits an affidavit of voter registration without providing a California drivers license or state identification card by verifying the last 4 digits of the applicants social security number, the applicants full name, and the applicants date of birth. The bill would authorize the Secretary of State to adopt regulations as necessary to implement its provisions. The bill would specify that its provisions become operative on the earlier of (1) January 1, 2027, or (2) five days after the date on which the Secretary of State certifies that information technology infrastructure necessary to implement its provisions is functional.

Existing law authorizes a person who is qualified to register to vote and who has a valid California drivers license or state identification card to submit an affidavit of voter registration electronically on the Secretary of States internet website. Existing law requires this affidavit to contain a statement that the county elections official must compare the affiants signature on the identification envelope for the return of a vote by mail ballot with the signatures appearing in the voters registration record, including the signature appearing on the applicants drivers license or state identification card. The Secretary of State must require a person who submits such an affidavit to submit, among other things, the number from their California drivers license or state identification card.

This bill would additionally authorize a person who is qualified to register to vote to submit an affidavit of voter registration on the Secretary of States internet website even if the person has not been issued a California drivers license or state identification card, as long as the person provides the last four digits of their social security number with their affidavit. The bill would require the Secretary of State to develop a process to allow such an applicant to electronically upload a high-quality digitized image of the applicants signature through the electronic voter registration interface. interface, and would require this signature upload process to be accessible to people with disabilities. The bill would additionally authorize a county elections official to compare the affiants signature on the identification envelope for the return of a vote by mail ballot with this digitized image of the affiants signature. The bill would authorize the Secretary of State to authenticate the identity of an applicant who electronically submits an affidavit of voter registration without providing a California drivers license or state identification card by verifying the last 4 digits of the applicants social security number, the applicants full name, and the applicants date of birth. The bill would authorize the Secretary of State to adopt regulations as necessary to implement its provisions. The bill would specify that its provisions become operative on the earlier of (1) January 1, 2027, or (2) five days after the date on which the Secretary of State certifies that information technology infrastructure necessary to implement its provisions is functional.

Existing law authorizes a person who is qualified to register to vote and who has a valid California drivers license or state identification card to submit an affidavit of voter registration electronically on the Secretary of States internet website. Existing law requires this affidavit to contain a statement that the county elections official must compare the affiants signature on the identification envelope for the return of a vote by mail ballot with the signatures appearing in the voters registration record, including the signature appearing on the applicants drivers license or state identification card. The Secretary of State must require a person who submits such an affidavit to submit, among other things, the number from their California drivers license or state identification card.

This bill would additionally authorize a person who is qualified to register to vote to submit an affidavit of voter registration on the Secretary of States internet website even if the person has not been issued a California drivers license or state identification card, as long as the person provides the last four digits of their social security number with their affidavit. The bill would require the Secretary of State to develop a process to allow such an applicant to electronically upload a high-quality digitized image of the applicants signature through the electronic voter registration interface. The bill would additionally authorize a county elections official to compare the affiants signature on the identification envelope for the return of a vote by mail ballot with this digitized image of the affiants signature. The bill would authorize the Secretary of State to authenticate the identity of an applicant who electronically submits an affidavit of voter registration without providing a California drivers license or state identification card by verifying the last 4 digits of the applicants social security number, the applicants full name, and the applicants date of birth. The bill would authorize the Secretary of State to adopt regulations as necessary to implement its provisions. The bill would specify that its provisions become operative on the earlier of (1) January 1, 2027, or (2) five days after the date on which the Secretary of State certifies that information technology infrastructure necessary to implement its provisions is functional.

GOVERNOR′S VETO

GV Bill Id:AB 1116

Author:(Berman)

As Enrolled Ver:August 27, 2026

2/3 vote

SUMMARY

Permits a person who does not have a state identification card or driver′s license (DL) but is qualified to register to vote, beginning January 1, 2029, to register using California′s Online Voter Registration (COVR) system on the Secretary of State′s (SOS) internet website, and requires the SOS to develop a method to collect an electronic image of an applicant′s signature.

Senate Amendments

1. Require the SOS to develop a method to collect an electronic signature image from a person who registers to vote through COVR without their DL or state identification card, instead of requiring the SOS to develop a process to allow an applicant to electronically upload a digitized image of their signature through COVR.
2. Permit the SOS to prescribe technical, security, accessibility, quality, retention, and transmission standards necessary to implement the collection method described in 1).
3. Clarify that a person who registers to vote through COVR without their DL or state identification card shall have their information verified using the same federal and state verification process used for an affidavit of voter registration submitted on paper that contains the last four digits of the applicant′s social security number. Provides that verification does not require the SOS to establish a new interface with the Social Security Administration.
4. Require the bill′s provisions to become operative January 1, 2029.

Governor′s Veto Message

″This bill requires the Secretary of State to develop a method to allow voting-eligible individuals who do not have a California′s driver′s license or California identification card to register to vote electronically by January 1, 2029.

″While I support the author′s goal of removing unnecessary barriers for eligible voters to register to vote, this bill would result in one-time and ongoing costs in the millions of dollars not included in the 2026 Budget Act.

″In partnership with the Legislature this year, my administration has enacted a balanced budget that recognizes the challenging fiscal landscape our state faces while maintaining our commitment to working families and our most vulnerable communities. With significant fiscal pressures and the federal government′s hostile economic policies, it is vital that we remain disciplined when considering bills with significant fiscal implications that are not included in the budget, such as this measure.″

COMMENTS

As part of a voter′s registration, elections officials need to obtain a copy of the voter′s signature for various elections-related purposes. In order to allow for online voter registration, the Department of Motor Vehicles (DMV) and the SOS developed a process and infrastructure to transfer an electronic copy of a person′s signature from the DMV to the SOS and to a county′s election management system. For individuals who do not have a California DL or a state identification card, however, the infrastructure does not currently exist to obtain a signature electronically for that voter from a source other than the DMV. Accordingly, individuals who do not have either of those documents may use COVR to fill out a voter registration application, but then must print, sign, and return the form to their local elections official′s office by mail or in person. This bill requires the SOS to develop a process that allows a person to register to vote through COVR without their DL or state identification card by providing an electronic signature image as part of the COVR registration process.

The Senate amendments require the SOS to develop a method to collect an electronic signature image from a person who registers through COVR without their DL or state identification card instead of requiring the SOS to develop a process to allow an applicant to electronically upload a digitized image of their signature through COVR. Additionally, the amendments permit the SOS to prescribe technical, security, accessibility, quality, retention, and transmission standards necessary to implement the collection method and clarify the verification process and provide that verification does not require the SOS to establish a new interface with the Social Security Administration. Finally, the Senate amendments require the bill′s provisions to become operative January 1, 2029. This bill, as amended in the Senate, is consistent with prior Assembly actions.

According to the Author

″The National Voter Registration Act and California′s New Motor Voter program have been instrumental in closing voter registration gaps by making it easier for eligible voters to register or update their registration when completing a driver′s license and state identification card transaction. Similarly, our online voter registration system has simplified voter registration for Californians with a DMV-issued driver′s license or identification card. Nevertheless, there remains a voter registration gap of over 4 million Californians. AB 1116 would take the next step to assist eligible but unregistered Californians by removing an unnecessary barrier to using our online voter registration system. This change will make our voter registration process more cost-effective and efficient, while maintaining the integrity of our voter lists.″

Arguments in Support

In support of a prior version of this bill, NextGen, wrote, ″Since California first implemented online voter registration [OVR] in 2012, millions of eligible voters have benefited from a more secure, streamlined, and cost-effective means of registering to vote. The system has significantly improved election security, reducing the risk of errors associated with handwritten forms while increasing participation among eligible citizens. However, despite these successes, a significant gap remains – the current OVR system is only available to individuals who possess a California driver′s license or state identification card issued by the Department of Motor Vehicles (DMV). This restriction forces many eligible voters—particularly seniors, young voters, low-income individuals, and those with disabilities—into the process of having to complete a paper registration form, which they must then mail or deliver in-person…

″AB 1116 would allow individuals without a DMV-issued ID to register to vote online by providing the last four digits of their Social Security number (the same information they would provide on a paper form) and submitting an electronic image of their signature. The Secretary of State estimates a one-time cost of approximately $1 million, in addition to more minor ongoing costs for enhanced security and signature protocols. The costs are well worth the investment. Not only does the simple technological upgrade of allowing for electronic signatures remove a barrier to voter registration, but it also improves the accuracy of the voter rolls and saves administrative costs over the longer term by reducing the need for manual data entry. Election officials currently spend millions of dollars on the manual processing of paper registration forms — money that could be better allocated to meet other election needs.″

Arguments in Opposition

In opposition to a prior version of this bill, the Kern County Board of Supervisors, wrote, ″Kern county is [] concerned about the administrative burden and added costs this bill may place on county elections offices. The new processes for signature uploads and additional verification protocols could increase operational complexity and present a potential vulnerability without adequate safeguards to prevent ineligible registration. Likewise, the Secretary of State expects one-time costs of approximately $1 million dollars to the State General Fund to modify the voter registration system and database that would enable digital signature uploads and necessary security upgrades. Since there is currently no option on the Secretary of State′s website for the public to upload an item, the agency anticipates ongoing costs of an unknown amount for software and staff workload to validate signatures and screen for malicious files.″

FISCAL COMMENTS

According to the Senate Appropriations Committee, costs to SOS could potentially reach the low millions of dollars annually (General Fund).

VOTES

ASM ELECTIONS: 5-2-0

YES: Pellerin, Bennett, Berman, Solache, Stefani

NO: Macedo, Tangipa

ASM APPROPRIATIONS: 11-3-1

YES: Wicks, Arambula, Calderon, Caloza, Elhawary, Fong, Mark González, Hart, Pacheco, Pellerin, Solache

NO: Dixon, Ta, Tangipa

ABS, ABST OR NV: Sanchez

ASSEMBLY FLOOR: 60-18-1

YES: Addis, Aguiar-Curry, Ahrens, Alvarez, Arambula, Ávila Farías, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Caloza, Carrillo, Connolly, Elhawary, Fong, Gabriel, Garcia, Gipson, Mark González, Haney, Harabedian, Hart, Irwin, Jackson, Kalra, Krell, Lee, Lowenthal, McKinnor, Muratsuchi, Nguyen, Ortega, Pacheco, Papan, Patel, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Ransom, Celeste Rodriguez, Michelle Rodriguez, Rogers, Blanca Rubio, Schiavo, Schultz, Sharp-Collins, Solache, Soria, Stefani, Valencia, Ward, Wicks, Wilson, Zbur, Rivas

NO: Alanis, Castillo, Chen, Davies, DeMaio, Dixon, Ellis, Gallagher, Jeff Gonzalez, Hadwick, Hoover, Lackey, Macedo, Patterson, Sanchez, Ta, Tangipa, Wallis

ABS, ABST OR NV: Flora

SENATE FLOOR: 29-9-2

YES: Allen, Archuleta, Arreguín, Ashby, Becker, Blakespear, Cabaldon, Caballero, Cervantes, Cortese, Durazo, Gonzalez, Hurtado, Jones, Laird, Limón, McGuire, McNerney, Menjivar, Padilla, Pérez, Reyes, Richardson, Rubio, Smallwood-Cuevas, Stern, Umberg, Wahab, Wiener

NO: Alvarado-Gil, Choi, Dahle, Grove, Niello, Ochoa Bogh, Seyarto, Strickland, Valladares

ABS, ABST OR NV: Grayson, Weber Pierson

ASSEMBLY FLOOR: 59-19-1

YES: Addis, Aguiar-Curry, Ahrens, Alvarez, Arambula, Ávila Farías, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Caloza, Carrillo, Connolly, Elhawary, Fong, Gabriel, Garcia, Gipson, Mark González, Haney, Harabedian, Hart, Irwin, Jackson, Kalra, Krell, Lee, Lowenthal, Muratsuchi, Nguyen, Ortega, Pacheco, Papan, Patel, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Ransom, Celeste Rodriguez, Michelle Rodriguez, Rogers, Blanca Rubio, Schiavo, Schultz, Sharp-Collins, Solache, Soria, Stefani, Valencia, Ward, Wicks, Wilson, Zbur, Rivas

NO: Alanis, Castillo, Chen, Davies, DeMaio, Dixon, Ellis, Flora, Jeff Gonzalez, Hadwick, Hoover, Johnson, Lackey, Macedo, Patterson, Sanchez, Ta, Tangipa, Wallis

ABS, ABST OR NV: McKinnor

UPDATED

VERSION: August 27, 2026

CONSULTANT: Nichole Becker / ELECTIONS / (916) 319-2094 FN: 0004623

CONCURRENCE IN SENATE AMENDMENTS

CSA1 Bill Id:AB 1116

Author:(Berman)

As Amended Ver:August 13, 2026

Majority vote

SUMMARY

Permits a person who does not have a state identification card or driver’s license (DL) but is qualified to register to vote, beginning January 1, 2029, to register using California′s Online Voter Registration (COVR) system on the Secretary of State′s (SOS) internet website, and requires the SOS to develop a method to collect an electronic image of an applicant’s signature.

Senate Amendments

1. Require the SOS to develop a method to collect an electronic signature image from a person who registers to vote through COVR without their DL or state identification card, instead of requiring the SOS to develop a process to allow an applicant to electronically upload a digitized image of their signature through COVR.
2. Permit the SOS to prescribe technical, security, accessibility, quality, retention, and transmission standards necessary to implement the collection method described in 1).
3. Clarify that a person who registers to vote through COVR without their DL or state identification card shall have their information verified using the same federal and state verification process used for an affidavit of voter registration submitted on paper that contains the last four digits of the applicant’s social security number. Provides that verification does not require the SOS to establish a new interface with the Social Security Administration.
4. Require the bill’s provisions to become operative January 1, 2029.

COMMENTS

As part of a voter′s registration, elections officials need to obtain a copy of the voter′s signature for various elections-related purposes. In order to allow for online voter registration, the Department of Motor Vehicles (DMV) and the SOS developed a process and infrastructure to transfer an electronic copy of a person′s signature from the DMV to the SOS and to a county′s election management system. For individuals who do not have a California DL or a state identification card, however, the infrastructure does not currently exist to obtain a signature electronically for that voter from a source other than the DMV. Accordingly, individuals who do not have either of those documents may use COVR to fill out a voter registration application, but then must print, sign, and return the form to their local elections official′s office by mail or in person. This bill requires the SOS to develop a process that allows a person to register to vote through COVR without their DL or state identification card by providing an electronic signature image as part of the COVR registration process.

The Senate amendments require the SOS to develop a method to collect an electronic signature image from a person who registers through COVR without their DL or state identification card instead of requiring the SOS to develop a process to allow an applicant to electronically upload a digitized image of their signature through COVR. Additionally, the amendments permit the SOS to prescribe technical, security, accessibility, quality, retention, and transmission standards necessary to implement the collection method and clarify the verification process and provide that verification does not require the SOS to establish a new interface with the Social Security Administration. Finally, the Senate amendments require the bill’s provisions to become operative January 1, 2029. This bill, as amended in the Senate, is consistent with prior Assembly actions.

According to the Author

″The National Voter Registration Act and California′s New Motor Voter program have been instrumental in closing voter registration gaps by making it easier for eligible voters to register or update their registration when completing a driver′s license and state identification card transaction. Similarly, our online voter registration system has simplified voter registration for Californians with a DMV-issued driver′s license or identification card. Nevertheless, there remains a voter registration gap of over 4 million Californians. AB 1116 would take the next step to assist eligible but unregistered Californians by removing an unnecessary barrier to using our online voter registration system. This change will make our voter registration process more cost-effective and efficient, while maintaining the integrity of our voter lists.″

Arguments in Support

In support of a prior version of this bill, NextGen, wrote, ″Since California first implemented online voter registration [OVR] in 2012, millions of eligible voters have benefited from a more secure, streamlined, and cost-effective means of registering to vote. The system has significantly improved election security, reducing the risk of errors associated with handwritten forms while increasing participation among eligible citizens. However, despite these successes, a significant gap remains – the current OVR system is only available to individuals who possess a California driver′s license or state identification card issued by the Department of Motor Vehicles (DMV). This restriction forces many eligible voters—particularly seniors, young voters, low-income individuals, and those with disabilities—into the process of having to complete a paper registration form, which they must then mail or deliver in-person…

AB 1116 would allow individuals without a DMV-issued ID to register to vote online by providing the last four digits of their Social Security number (the same information they would provide on a paper form) and submitting an electronic image of their signature. The Secretary of State estimates a one-time cost of approximately $1 million, in addition to more minor ongoing costs for enhanced security and signature protocols. The costs are well worth the investment. Not only does the simple technological upgrade of allowing for electronic signatures remove a barrier to voter registration, but it also improves the accuracy of the voter rolls and saves administrative costs over the longer term by reducing the need for manual data entry. Election officials currently spend millions of dollars on the manual processing of paper registration forms — money that could be better allocated to meet other election needs.″

Arguments in Opposition

In opposition to a prior version of this bill, the Kern County Board of Supervisors, wrote, ″Kern county is [] concerned about the administrative burden and added costs this bill may place on county elections offices. The new processes for signature uploads and additional verification protocols could increase operational complexity and present a potential vulnerability without adequate safeguards to prevent ineligible registration. Likewise, the Secretary of State expects one-time costs of approximately $1 million dollars to the State General Fund to modify the voter registration system and database that would enable digital signature uploads and necessary security upgrades. Since there is currently no option on the Secretary of State’s website for the public to upload an item, the agency anticipates ongoing costs of an unknown amount for software and staff workload to validate signatures and screen for malicious files.″

FISCAL COMMENTS

According to the Senate Appropriations Committee, costs to SOS could potentially reach the low millions of dollars annually (General Fund).

VOTES:

ASM ELECTIONS: 5-2-0

YES: Pellerin, Bennett, Berman, Solache, Stefani

NO: Macedo, Tangipa

ASM APPROPRIATIONS: 11-3-1

YES: Wicks, Arambula, Calderon, Caloza, Elhawary, Fong, Mark González, Hart, Pacheco, Pellerin, Solache

NO: Dixon, Ta, Tangipa

ABS, ABST OR NV: Sanchez

ASSEMBLY FLOOR: 60-18-1

YES: Addis, Aguiar-Curry, Ahrens, Alvarez, Arambula, Ávila Farías, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Caloza, Carrillo, Connolly, Elhawary, Fong, Gabriel, Garcia, Gipson, Mark González, Haney, Harabedian, Hart, Irwin, Jackson, Kalra, Krell, Lee, Lowenthal, McKinnor, Muratsuchi, Nguyen, Ortega, Pacheco, Papan, Patel, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Ransom, Celeste Rodriguez, Michelle Rodriguez, Rogers, Blanca Rubio, Schiavo, Schultz, Sharp-Collins, Solache, Soria, Stefani, Valencia, Ward, Wicks, Wilson, Zbur, Rivas

NO: Alanis, Castillo, Chen, Davies, DeMaio, Dixon, Ellis, Gallagher, Jeff Gonzalez, Hadwick, Hoover, Lackey, Macedo, Patterson, Sanchez, Ta, Tangipa, Wallis

ABS, ABST OR NV: Flora

SENATE FLOOR: 29-9-2

YES: Allen, Archuleta, Arreguín, Ashby, Becker, Blakespear, Cabaldon, Caballero, Cervantes, Cortese, Durazo, Gonzalez, Hurtado, Jones, Laird, Limón, McGuire, McNerney, Menjivar, Padilla, Pérez, Reyes, Richardson, Rubio, Smallwood-Cuevas, Stern, Umberg, Wahab, Wiener

NO: Alvarado-Gil, Choi, Dahle, Grove, Niello, Ochoa Bogh, Seyarto, Strickland, Valladares

ABS, ABST OR NV: Grayson, Weber Pierson

UPDATED

VERSION: August 13, 2026

CONSULTANT: Nichole Becker / ELECTIONS / (916) 319-2094 FN: 0003826

CONCURRENCE IN SENATE AMENDMENTS

CSA1 Bill Id:AB 1116

Author:(Berman)

As Amended Ver:August 13, 2026

Majority vote

SUMMARY

Permits a person who does not have a state identification card or driver’s license (DL) but is qualified to register to vote, beginning January 1, 2029, to register using California′s Online Voter Registration (COVR) system on the Secretary of State′s (SOS) internet website, and requires the SOS to develop a method to collect an electronic image of an applicant’s signature.

Senate Amendments

1. Require the SOS to develop a method to collect an electronic signature image from a person who registers to vote through COVR without their DL or state identification card, instead of requiring the SOS to develop a process to allow an applicant to electronically upload a digitized image of their signature through COVR.
2. Permit the SOS to prescribe technical, security, accessibility, quality, retention, and transmission standards necessary to implement the collection method described in 1).
3. Clarify that a person who registers to vote through COVR without their DL or state identification card shall have their information verified using the same federal and state verification process used for an affidavit of voter registration submitted on paper that contains the last four digits of the applicant’s social security number. Provides that verification does not require the SOS to establish a new interface with the Social Security Administration.
4. Require the bill’s provisions to become operative January 1, 2029.

COMMENTS

As part of a voter′s registration, elections officials need to obtain a copy of the voter′s signature for various elections-related purposes. In order to allow for online voter registration, the Department of Motor Vehicles (DMV) and the SOS developed a process and infrastructure to transfer an electronic copy of a person′s signature from the DMV to the SOS and to a county′s election management system. For individuals who do not have a California DL or a state identification card, however, the infrastructure does not currently exist to obtain a signature electronically for that voter from a source other than the DMV. Accordingly, individuals who do not have either of those documents may use COVR to fill out a voter registration application, but then must print, sign, and return the form to their local elections official′s office by mail or in person. This bill requires the SOS to develop a process that allows a person to register to vote through COVR without their DL or state identification card by providing an electronic signature image as part of the COVR registration process.

The Senate amendments require the SOS to develop a method to collect an electronic signature image from a person who registers through COVR without their DL or state identification card instead of requiring the SOS to develop a process to allow an applicant to electronically upload a digitized image of their signature through COVR. Additionally, the amendments permit the SOS to prescribe technical, security, accessibility, quality, retention, and transmission standards necessary to implement the collection method and clarify the verification process and provide that verification does not require the SOS to establish a new interface with the Social Security Administration. Finally, the Senate amendments require the bill’s provisions to become operative January 1, 2029. This bill, as amended in the Senate, is consistent with prior Assembly actions.

According to the Author

″The National Voter Registration Act and California′s New Motor Voter program have been instrumental in closing voter registration gaps by making it easier for eligible voters to register or update their registration when completing a driver′s license and state identification card transaction. Similarly, our online voter registration system has simplified voter registration for Californians with a DMV-issued driver′s license or identification card. Nevertheless, there remains a voter registration gap of over 4 million Californians. AB 1116 would take the next step to assist eligible but unregistered Californians by removing an unnecessary barrier to using our online voter registration system. This change will make our voter registration process more cost-effective and efficient, while maintaining the integrity of our voter lists.″

Arguments in Support

In support of a prior version of this bill, NextGen, wrote, ″Since California first implemented online voter registration [OVR] in 2012, millions of eligible voters have benefited from a more secure, streamlined, and cost-effective means of registering to vote. The system has significantly improved election security, reducing the risk of errors associated with handwritten forms while increasing participation among eligible citizens. However, despite these successes, a significant gap remains – the current OVR system is only available to individuals who possess a California driver′s license or state identification card issued by the Department of Motor Vehicles (DMV). This restriction forces many eligible voters—particularly seniors, young voters, low-income individuals, and those with disabilities—into the process of having to complete a paper registration form, which they must then mail or deliver in-person…

AB 1116 would allow individuals without a DMV-issued ID to register to vote online by providing the last four digits of their Social Security number (the same information they would provide on a paper form) and submitting an electronic image of their signature. The Secretary of State estimates a one-time cost of approximately $1 million, in addition to more minor ongoing costs for enhanced security and signature protocols. The costs are well worth the investment. Not only does the simple technological upgrade of allowing for electronic signatures remove a barrier to voter registration, but it also improves the accuracy of the voter rolls and saves administrative costs over the longer term by reducing the need for manual data entry. Election officials currently spend millions of dollars on the manual processing of paper registration forms — money that could be better allocated to meet other election needs.″

Arguments in Opposition

In opposition to a prior version of this bill, the Kern County Board of Supervisors, wrote, ″Kern county is [] concerned about the administrative burden and added costs this bill may place on county elections offices. The new processes for signature uploads and additional verification protocols could increase operational complexity and present a potential vulnerability without adequate safeguards to prevent ineligible registration. Likewise, the Secretary of State expects one-time costs of approximately $1 million dollars to the State General Fund to modify the voter registration system and database that would enable digital signature uploads and necessary security upgrades. Since there is currently no option on the Secretary of State’s website for the public to upload an item, the agency anticipates ongoing costs of an unknown amount for software and staff workload to validate signatures and screen for malicious files.″

FISCAL COMMENTS

According to the Senate Appropriations Committee, costs to SOS could potentially reach the low millions of dollars annually (General Fund).

VOTES:

ASM ELECTIONS: 5-2-0

YES: Pellerin, Bennett, Berman, Solache, Stefani

NO: Macedo, Tangipa

ASM APPROPRIATIONS: 11-3-1

YES: Wicks, Arambula, Calderon, Caloza, Elhawary, Fong, Mark González, Hart, Pacheco, Pellerin, Solache

NO: Dixon, Ta, Tangipa

ABS, ABST OR NV: Sanchez

ASSEMBLY FLOOR: 60-18-1

YES: Addis, Aguiar-Curry, Ahrens, Alvarez, Arambula, Ávila Farías, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Caloza, Carrillo, Connolly, Elhawary, Fong, Gabriel, Garcia, Gipson, Mark González, Haney, Harabedian, Hart, Irwin, Jackson, Kalra, Krell, Lee, Lowenthal, McKinnor, Muratsuchi, Nguyen, Ortega, Pacheco, Papan, Patel, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Ransom, Celeste Rodriguez, Michelle Rodriguez, Rogers, Blanca Rubio, Schiavo, Schultz, Sharp-Collins, Solache, Soria, Stefani, Valencia, Ward, Wicks, Wilson, Zbur, Rivas

NO: Alanis, Castillo, Chen, Davies, DeMaio, Dixon, Ellis, Gallagher, Jeff Gonzalez, Hadwick, Hoover, Lackey, Macedo, Patterson, Sanchez, Ta, Tangipa, Wallis

ABS, ABST OR NV: Flora

UPDATED

VERSION: August 13, 2026

CONSULTANT: Nichole Becker / ELECTIONS / (916) 319-2094 FN: 0003826

 THIRD READING  

Bill No: AB 1116

Author: Berman (D), et al.

Amended: 8/13/26 in Senate

Vote: 21

SENATE ELECTIONS & C.A. COMMITTEE: 4-1, 6/16/26

AYES: Wiener, Allen, Cervantes, Umberg

NOES: Choi

SENATE APPROPRIATIONS COMMITTEE: 5-2, 8/13/26

AYES: Cervantes, Cabaldon, Grayson, Richardson, Wahab

NOES: Seyarto, Dahle

ASSEMBLY FLOOR: 60-18, 6/3/25 - See last page for vote

SUBJECT: Elections: voter registration

SOURCE: Center for Secure and Modern Elections

DIGEST:

This bill requires by January 1, 2029, the Secretary of State (SOS) to develop a method to collect an electronic image of a signature from someone who does not have a California driver’s license or a California identification card and is registering to vote electronically using the statewide voter registration system on the SOS’ website.

ANALYSIS:

Existing law:

1. Entitles a person to register to vote if that person is a United States citizen, a resident of California, not in prison for the conviction of a felony, not found mentally incompetent to vote by a court, and at least 18 years of age at the time of the next election.
2. Permits a person who is qualified to vote and who has a valid California driver’s license or state identification card to submit an affidavit of voter registration electronically on the SOS’ website. On the affidavit, the person registering to vote must affirmatively attest to the truth of the information provided and also assent to the use of the applicant’s signature from their driver’s license or identification card for verification of voter identity.
3. Requires the SOS to obtain an electronic copy of the signature from the person’s driver’s license or state identification card directly from the Department of Motor Vehicles (DMV).
4. Requires the SOS’ electronic voter registration system to immediately verify that the driver’s license or state identification card number provided and the date of birth provided matches the information on file for the person at the DMV.
5. Requires the SOS and the DMV to maintain a process and infrastructure to transfer the electronic copy of the signature and other information for the person registering to the SOS and county election management systems so that the person may register to vote and vote.
6. Provides that in order to register on the SOS’ website without a California driver’s license or a state identification card, a person must complete the affidavit of voter registration electronically on the SOS’ website, print a hard copy of the completed affidavit, and mail or deliver the hard copy of the completed affidavit to the SOS or a county elections official. A person who registers to vote this way must, when first voting, provide documentation of identity.
7. Uses a person’s signature on the return envelope for a vote by mail (VBM) ballot to verify the identity of the voter.
8. Requires each state, pursuant to the federal Help America Vote Act of 2002 (HAVA), to implement a single, uniform, official, centralized, interactive computerized statewide voter registration list defined, maintained, and administered at the state level that contains the name and registration information of every legally registered voter in the state and assigns a unique identifier to each legally registered voter in the state. California’s statewide voter database is known as VoteCal.

This bill:

1. Requires the SOS to develop a method to collect an electronic image of a signature for those without a driver’s license or state identification card who are registering to vote using the statewide online system.
2. Permits the SOS to prescribe technical, security, accessibility quality, retention, and transmission standards necessary to implement the method of collecting and sharing electronic images of signatures.
3. Requires the SOS to develop a system for those who register without providing a driver’s license or state identification card number that verifies the last four digits of a registrant’s Social Security Number, full name, and date of birth using the same federal and state verification process as is currently used for affidavits of registration submitted on paper that rely the applicant’s Social Security Number for identity verification. The bill specifically expresses that this new verification process does not require a new interface with the Social Security Administration.
4. Directs the SOS to amend its online registration affidavit to provide that a person providing their electronic signature assents to its use and that the SOS accept the signature for voter registration purposes.
5. Requires the SOS to develop a process for transmitting the image of the signature collected by the online registration system to the statewide voter registration database and the county election management systems.
6. Takes effect on January 1, 2029.

Background

California has long mandated that a voter register to vote by filing an affidavit of registration. Among other information, the affidavit shall include the name, residence address, date of birth, driver’s license number, and last four digits of the social security number of the person registering to vote. Election officials use this information to confirm the person is eligible to register and later to verify the voter’s identity.

SB 381 (Ron Calderon, Chapter 613, Statutes of 2008) permitted filing an affidavit of registration online on the SOS’ website by any person who is qualified to register to vote and who has a valid California driver's license or state identification card. SB 381 made the online voter registration system operative when the SOS certified that its statewide voter registration database complied with the requirements of HAVA.

For security purposes, SB 381 required the person registering to vote on the SOS' website to provide their driver's license or identification card number, date of birth, the last four digits of their social security number, and any other information the SOS deems necessary to establish the identity of the affiant. The law requires the SOS to immediately confirm with the DMV that the driver's license or state identification card number and date of birth match the information on file with the DMV and to obtain an electronic copy of the applicant's signature from the driver's license or state identification card. That signature becomes part of the voter’s file with the elections official in the county where the voter resides and gets compared to the signature on the VBM ballot envelope when the voter votes by mail, as over 80% of California voters do.

Comments

1. Author’s Statement. The National Voter Registration Act and California’s New Motor Voter program have been instrumental in closing voter registration gaps by making it easier for eligible voters to register or update their registration when completing a driver’s license and state identification card transaction. Similarly, our online voter registration system has simplified voter registration for Californians with a DMV-issued driver’s license or identification card. Nevertheless, there remains a voter registration gap of over four million Californians. This bill would take the next step to assist eligible but unregistered Californians by removing an unnecessary barrier to using our online voter registration system. This change will make our voter registration process more cost-effective and efficient, while maintaining the integrity of our voter lists.
2. Secretary of State Concerns. Calling the bill fundamentally flawed, Secretary of State Shirley Weber writes this bill “presents severe technical, security, and operational challenges that make implementation not only impractical but potentially dangerous to the integrity of California’ election systems.” She enumerates her concerns as follows:

Security risks. The SOS states, “Our current VoteCal system software deliberately restricts external connections to trusted government partners like the California [DMV] precisely to maintain the highest level of security.” Using any outside vendor to achieve the mandates of this bill could compromise critical protections of the SOS’s online systems.

Technical and operational complexity. The SOS notes the VoteCal system was not designed to accept or validate signature files from the public and so substantial modifications to the system would be necessary to not only the SOS’s systems but also to the 58 county election management systems.

Identity verification gaps. The bill directs SOS to verify an applicant registration using information from the federal Social Security Administration (SSA), but the SOS points out this is not currently possible as the SOS does not contract with the SSA but relies on DMV for identity verification. This adds a complication to implementing the bill and also an expense.

Prohibitive implementation timeline and costs. California has nearly 23 million registered voters. The SOS notes that initial implementation of online voter registration in 2012 cost $1.8 million and this modification would be of a similar scale. The SOS emphasizes the differences between California’s voter registration system and that of other states cannot be overstated, thus rendering other state’s costs for similar activities incomparable.

Related/Prior Legislation

SB 299 (Limon) of 2024 would have required the SOS and the DMV to develop a process to determine whether a person who submits a driver’s license application is already registered or preregistered to vote. Based upon this determination, DMV would have been required to transmit specified information to the SOS, so the SOS could register, preregister, or update that person’s existing voter registration. Governor Newsom vetoed this bill. In his veto message, he noted that it would have required the DMV and SOS to develop new information technology systems for processing voter registrations and that these systems would cost tens of millions of dollars.  

SB 381 (Ron Calderon, Chapter 613, Statutes of 2008) allows a person who is qualified to register to vote and who has a valid California driver’s license or state identification card to submit an affidavit of voter registration electronically through the California’s Online Voter Registration system on the SOS’ internet website.

FISCAL EFFECT: Appropriation: No Fiscal Com.: Yes Local: No

According to the Senate Committee on Appropriations:

Costs to SOS could potentially reach the low millions of dollars annually (General Fund).

SUPPORT: (Verified 8/13/26)

Center for Secure and Modern Elections (source)

Coalition of Orange County Community Health Centers

Disability Rights California

Health in Partnership

Institute for Responsive Government Action

League of Women Voters of California

NextGen California

Responsive Gov Action

OPPOSITION: (Verified 8/13/26)

County of Kern

ARGUMENTS IN SUPPORT: Noting that many Californians, particularly those with disabilities, do not possess driver’s licenses or state identification cards, supporters fault the current online registration system for creating barriers to participation. For hundreds of thousands of people, the current system requires printing out, signing, and mailing or delivering in person to the county elections office the affidavit of registration. Once received, these paper forms create extra work for registrars of voters as they must decipher handwriting, scan signatures, and re-type handwritten forms into the registration database.

The bill’s sponsor, the Center for Secure and Modern Elections, says of the changes the bill makes to online registration:

This change improves convenience for voters and saves time and money for election officials. It also improves the accuracy of voter records by reducing the possibility of inadvertent errors when handwritten forms are manually entered into the voter registration database. Expanding [online voter registration] also improves security, reducing the risk of a paper submission being lost or damaged in transit.

ASSEMBLY FLOOR: 60-18, 6/3/25

AYES: Addis, Aguiar-Curry, Ahrens, Alvarez, Arambula, Ávila Farías, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Caloza, Carrillo, Connolly, Elhawary, Fong, Gabriel, Garcia, Gipson, Mark González, Haney, Harabedian, Hart, Irwin, Jackson, Kalra, Krell, Lee, Lowenthal, McKinnor, Muratsuchi, Nguyen, Ortega, Pacheco, Papan, Patel, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Ransom, Celeste Rodriguez, Michelle Rodriguez, Rogers, Blanca Rubio, Schiavo, Schultz, Sharp-Collins, Solache, Soria, Stefani, Valencia, Ward, Wicks, Wilson, Zbur, Rivas

NOES: Alanis, Castillo, Chen, Davies, DeMaio, Dixon, Ellis, Gallagher, Jeff Gonzalez, Hadwick, Hoover, Lackey, Macedo, Patterson, Sanchez, Ta, Tangipa, Wallis

NO VOTE RECORDED: Flora

Prepared by: Carrie Cornwell / E. & C.A. / (916) 651-4106

8/17/26 10:34:22

**** END ****

SENATE COMMITTEE ON

Senator Sabrina Cervantes, Chair

2025 - 2026 Regular Session

AB 1116 (Berman) - Elections: voter registration

Bill Summary:

AB 1116 would require the Secretary of State (SOS), by September 1, 2027, to develop a method to collect an electronic image of a signature from someone who does not have a California driver’s license or a California identification card and is registering to vote electronically using the statewide voter registration system on the SOS’s website.

*********** ANALYSIS ADDENDUM – SUSPENSE FILE ***********

The following information is revised to reflect amendments

adopted by the committee on August 13, 2026

Fiscal Impact:

Costs to SOS could potentially reach the low millions of dollars annually (General Fund).

Author Amendments:

• Delay implementation until January 1, 2029.
• Make clarifications regarding the verification of identity.
• Provide that verification does not require SOS to establish a new interface with the Social Security Administration.
• Make explicit that the SOS may prescribe standards as needed.

Committee Amendments:

Add Senator Cervantes as a coauthor.

-- END --

SENATE COMMITTEE ON

Senator Sabrina Cervantes, Chair

2025 - 2026 Regular Session

AB 1116 (Berman) - Elections: voter registration

Bill Summary:

AB 1116 would require the Secretary of State (SOS), by September 1, 2027, to develop a method to collect an electronic image of a signature from someone who does not have a California driver’s license or a California identification card and is registering to vote electronically using the statewide voter registration system on the SOS’s website.

Fiscal Impact:

SOS indicates that it would incur a one-time cost of $10 million, and $5 million annually thereafter, to implement the provisions of the bill (General Fund, see Staff Comments).

Background:

California law requires individuals seeking to vote to register by providing identifying information that election officials use to verify eligibility and maintain accurate voter records. Registration information generally includes personal identifiers, such as a voter’s name, address, date of birth, and other information used to confirm identity and eligibility.

In 2008, the Legislature authorized online voter registration for eligible Californians who possess a valid California driver’s license or state identification card. The online registration system became operational upon certification that California’s statewide voter registration database complied with federal requirements under the Help America Vote Act (HAVA).

To ensure the integrity of online voter registration, applicants must provide information that can be electronically verified through records maintained by the Department of Motor Vehicles (DMV). SOS is required to confirm the applicant’s identifying information with DMV records and obtain an electronic copy of the applicant’s signature from the driver's license or state identification card. That signature is incorporated into the voter’s registration record and serves as a key verification tool in election administration, including the signature-matching process used to authenticate vote-by-mail ballots, which are utilized by the vast majority of California voters.

Proposed Law:

This bill would, effective September 1, 2027, do the following:

• Require SOS to develop a method to collect an electronic image of a signature for those without a driver’s license or state identification card who are registering using the statewide online system.
• Direct SOS to amend its online registration affidavit to provide that a person providing their electronic signature assents to its use and that SOS accept the signature for voter registration purposes.
• Require SOS to develop a system for those who register without providing a driver’s license or state identification card number that authenticates the identity of the applicant using the last four digits of their Social Security Number, date of birth, and full name.
• Require SOS to develop a process for transmitting the image of the signature collected by the online registration system to the statewide voter registration database and the county election management systems.

Related Legislation:

• SB 299 (Limon, 2024) would have required SOS and the Department of Motor Vehicles (DMV) to develop a process to determine whether a person who submits a driver’s license application is already registered or preregistered to vote. Based upon this determination, DMV would have been required to transmit specified information to the SOS so the SOS could register, preregister, or update that person’s existing voter registration. Governor Newsom vetoed this bill. In his veto message, he noted that it would have required DMV and SOS to develop new information technology systems for processing voter registrations and that these systems would could costs tens of millions of dollars. The bill died on the Senate Floor.
• SB 381 (Ron Calderon, Chapter 613, Statutes of 2008), allows a person who is qualified to register to vote and who has a valid California driver’s license or state identification card to submit an affidavit of voter registration electronically through the California’s Online Voter Registration system on the SOS’s internet website.

Staff Comments:

As noted above, this bill would require SOS to modify California’s online voter registration system to allow applicants who do not possess a California driver’s license or state identification card to upload an electronic image of their signature. According to SOS, implementing this requirement would necessitate substantial changes to VoteCal and related voter registration systems, which currently rely on the electronic retrieval of signatures from government databases and were not designed to accept signature images submitted directly by the public.

Specifically, SOS indicates that implementation would require the development of new technological capabilities to receive, store, review, validate, and transmit uploaded signature images while maintaining the security and integrity of the state’s voter registration infrastructure. In addition, the bill does not establish the technical or operational standards necessary to administer such a system, including requirements related to image quality, file formats, validation procedures, storage, security protocols, or the handling of incomplete submissions. As a result, SOS would need to develop these standards and potentially procure additional software or technology solutions to support implementation.

SOS initially estimated that the bill would result in one-time costs of $1 million to modify VoteCal and related voter registration systems to support the collection and processing of electronic signature images. However, SOS now anticipates significant additional costs for third-party software, cybersecurity protections, image validation tools, storage requirements, and ongoing workload associated with reviewing and processing submitted signature images.

The bill also would create ongoing operational costs related to customer support, signature image validation, exception processing, and coordination with county elections officials.

-- END --

SENATE COMMITTEE ON

Senator Sabrina Cervantes, Chair

2025 - 2026 Regular Session

AB 1116 (Berman) - Elections: voter registration

Bill Summary:

AB 1116 would require the Secretary of State (SOS), by September 1, 2027, to develop a method to collect an electronic image of a signature from someone who does not have a California driver’s license or a California identification card and is registering to vote electronically using the statewide voter registration system on the SOS’s website.

Fiscal Impact:

SOS indicates that it would incur a one-time cost of $10 million, $5 million annually thereafter, to implement the provisions of the bill (General Fund, see Staff Comments).

Background:

California law requires individuals seeking to vote to register by providing identifying information that election officials use to verify eligibility and maintain accurate voter records. Registration information generally includes personal identifiers, such as a voter’s name, address, date of birth, and other information used to confirm identity and eligibility.

In 2008, the Legislature authorized online voter registration for eligible Californians who possess a valid California driver’s license or state identification card. The online registration system became operational upon certification that California’s statewide voter registration database complied with federal requirements under the Help America Vote Act (HAVA).

To ensure the integrity of online voter registration, applicants must provide information that can be electronically verified through records maintained by the Department of Motor Vehicles (DMV). SOS is required to confirm the applicant’s identifying information with DMV records and obtain an electronic copy of the applicant’s signature from the driver's license or state identification card. That signature is incorporated into the voter’s registration record and serves as a key verification tool in election administration, including the signature-matching process used to authenticate vote-by-mail ballots, which are utilized by the vast majority of California voters.

Proposed Law:

This bill would, effective September 1, 2027, do the following:

• Require SOS to develop a method to collect an electronic image of a signature for those without a driver’s license or state identification card who are registering using the statewide online system.
• Direct SOS to amend its online registration affidavit to provide that a person providing their electronic signature assents to its use and that SOS accept the signature for voter registration purposes.
• Require SOS to develop a system for those who register without providing a driver’s license or state identification card number that authenticates the identity of the applicant using the last four digits of their Social Security Number, date of birth, and full name.
• Require SOS to develop a process for transmitting the image of the signature collected by the online registration system to the statewide voter registration database and the county election management systems.

Related Legislation:

• SB 299 (Limon, 2024) would have required SOS and the Department of Motor Vehicles (DMV) to develop a process to determine whether a person who submits a driver’s license application is already registered or preregistered to vote. Based upon this determination, DMV would have been required to transmit specified information to the SOS so the SOS could register, preregister, or update that person’s existing voter registration. Governor Newsom vetoed this bill. In his veto message, he noted that it would have required DMV and SOS to develop new information technology systems for processing voter registrations and that these systems would could costs tens of millions of dollars. The bill died on the Senate Floor.
• SB 381 (Ron Calderon, Chapter 613, Statutes of 2008), allows a person who is qualified to register to vote and who has a valid California driver’s license or state identification card to submit an affidavit of voter registration electronically through the California’s Online Voter Registration system on the SOS’s internet website.

Staff Comments:

As noted above, this bill would require SOS to modify California’s online voter registration system to allow applicants who do not possess a California driver’s license or state identification card to upload an electronic image of their signature. According to SOS, implementing this requirement would necessitate substantial changes to VoteCal and related voter registration systems, which currently rely on the electronic retrieval of signatures from government databases and were not designed to accept signature images submitted directly by the public.

Specifically, SOS indicates that implementation would require the development of new technological capabilities to receive, store, review, validate, and transmit uploaded signature images while maintaining the security and integrity of the state’s voter registration infrastructure. In addition, the bill does not establish the technical or operational standards necessary to administer such a system, including requirements related to image quality, file formats, validation procedures, storage, security protocols, or the handling of incomplete submissions. As a result, SOS would need to develop these standards and potentially procure additional software or technology solutions to support implementation.

SOS initially estimated that the bill would result in one-time costs of $1 million to modify VoteCal and related voter registration systems to support the collection and processing of electronic signature images. However, SOS now anticipates significant additional costs for third-party software, cybersecurity protections, image validation tools, storage requirements, and ongoing workload associated with reviewing and processing submitted signature images.

The bill also would create ongoing operational costs related to customer support, signature image validation, exception processing, and coordination with county elections officials.

-- END --

SENATE COMMITTEE ON

ELECTIONS AND CONSTITUTIONAL AMENDMENTS

Senator Sabrina Cervantes, Chair

2025 - 2026 Regular

Bill No: Hearing Date: 6/16/26

Subject:

DIGEST

This bill requires by September 1, 2027, the Secretary of State (SOS) to develop a method to collect an electronic image of a signature from someone who does not have a California driver’s license or a California identification card and is registering to vote electronically using the statewide voter registration system on the SOS’s website.

ANALYSIS

Existing law:

1. Entitles a person to register to vote if that person is a United States citizen, a resident of California, not in prison for the conviction of a felony, not found mentally incompetent to vote by a court, and at least 18 years of age at the time of the next election.
2. Permits a person who is qualified to vote and who has a valid California driver’s license or state identification card to submit an affidavit of voter registration electronically on the SOS’s website. On the affidavit, the person registering to vote must affirmatively attest to the truth of the information provided and also assent to the use of the applicant’s signature from their driver’s license or identification card for verification of voter identity.
3. Requires the SOS to obtain an electronic copy of the signature from the person’s driver’s license or state identification card directly from the Department of Motor Vehicles (DMV).
4. Requires the SOS’s electronic voter registration system to immediately verify that the driver’s license or state identification card number provided and the date of birth provided matches the information on file for the person at the DMV.
5. Requires the SOS and the DMV to maintain a process and infrastructure to transfer the electronic copy of the signature and other information for the person registering to the SOS and county election management systems so that the person may register to vote and vote.
6. Provides that in order to register on the SOS’s website without a California driver’s license or a state identification card, a person must complete the affidavit of voter registration electronically on the SOS’s website, print a hard copy of the completed affidavit, and mail or deliver the hard copy of the completed affidavit to the SOS or a county elections official. A person who registers to vote this way must, when first voting, provide documentation of identity.
7. Uses a person’s signature on the return envelope for a vote by mail (VBM) ballot to verify the identity of the voter.
8. Requires each state, pursuant to the federal Help America Vote Act of 2002 (HAVA), to implement a single, uniform, official, centralized, interactive computerized statewide voter registration list defined, maintained, and administered at the state level that contains the name and registration information of every legally registered voter in the state and assigns a unique identifier to each legally registered voter in the state. California’s statewide voter database is known as VoteCal.

This bill:

1. Requires the SOS to develop a method to collect an electronic image of a signature for those without a driver’s license or state identification card who are registering using the statewide online system.
2. Directs the SOS to amend its online registration affidavit to provide that a person providing their electronic signature assents to its use and that the SOS accept the signature for voter registration purposes.
3. Requires the SOS to develop a system for those who register without providing a driver’s license or state identification card number that authenticates the identity of the applicant using the last four digits of their Social Security Number, date of birth, and full name.
4. Requires the SOS to develop a process for transmitting the image of the signature collected by the online registration system to the statewide voter registration database and the county election management systems.
5. Takes effect on September 1, 2027.

BACKGROUND

California has long mandated that a voter register to vote by filing an affidavit of registration. Among other information, the affidavit shall include the name, residence address, date of birth, driver’s license number, and last four digits of the social security number of the person registering to vote. Election officials use this information to confirm the person is eligible to register and later to verify the voter’s identity.

SB 381 (Ron Calderon), Chapter 613, Statutes of 2008, permitted filing an affidavit of registration online on the SOS’s website by any person who is qualified to register to vote and who has a valid California driver's license or state identification card. SB 381 made the online voter registration system operative when the SOS certified that its statewide voter registration database complied with the requirements of HAVA.

For security purposes, SB 381 required the person registering to vote on the SOS's website to provide their driver's license or identification card number, date of birth, the last four digits of their social security number, and any other information the SOS deems necessary to establish the identity of the affiant. The law requires the SOS to immediately confirm with the DMV that the driver's license or state identification card number and date of birth match the information on file with the DMV and obtain an electronic copy of the applicant's signature from the driver's license or state identification card. That signature becomes part of the voter’s file with the elections official in the county where the voter resides and gets compared to the signature on the VBM ballot envelope when the voter votes by mail, as over 80 percent of California voters do.

COMMENTS

1. Author’s Statement. The National Voter Registration Act and California’s New Motor Voter program have been instrumental in closing voter registration gaps by making it easier for eligible voters to register or update their registration when completing a driver’s license and state identification card transaction. Similarly, our online voter registration system has simplified voter registration for Californians with a DMV-issued driver’s license or identification card. Nevertheless, there remains a voter registration gap of over four million Californians. This bill would take the next step to assist eligible but unregistered Californians by removing an unnecessary barrier to using our online voter registration system. This change will make our voter registration process more cost-effective and efficient, while maintaining the integrity of our voter lists.
2. Arguments in Support. Noting that many Californians, particularly those with disabilities, do not possess driver’s licenses or state identification cards, supporters fault the current online registration system for creating barriers to participation. For hundreds of thousands of people, the current system requires printing out, signing, and mailing or delivering in person to the county elections office the affidavit of registration. Once received, these paper forms create extra work for registrars of voters as they must decipher handwriting, scan signatures, and re-type handwritten forms into the registration database.

The bill’s sponsor, the Center for Secure and Modern Elections, says of the changes the bill makes to online registration:

This change improves convenience for voters and saves time and money for election officials. It also improves the accuracy of voter records by reducing the possibility of inadvertent errors when handwritten forms are manually entered into the voter registration database. Expanding [online voter registration] also improves security, reducing the risk of a paper submission being lost or damaged in transit.

1. Secretary of State Concerns. Calling the bill fundamentally flawed, Secretary of State Shirley Weber writes this bill “presents severe technical, security, and operational challenges that make implementation not only impractical but potentially dangerous to the integrity of California’ election systems.” She enumerates her concerns as follows:

Security risks. The SOS states, “Our current VoteCal system software deliberately restricts external connections to trusted government partners like the California [DMV] precisely to maintain the highest level of security.” Using any outside vendor to achieve the mandates of this bill could compromise critical protections of the SOS’s online systems.

Technical and operational complexity. The SOS notes the VoteCal system was not designed to accept or validate signature files from the public and so substantial modifications to the system would be necessary to not only the SOS’s systems but also to the 58 county election management systems.

Identity verification gaps. The bill directs SOS to verify an applicant registration using information from the federal Social Security Administration (SSA), but the SOS points out this is not currently possible as the SOS does not contract with the SSA but relies on DMV for identity verification. This adds a complication to implementing the bill and also an expense.

Prohibitive implementation timeline and costs. California has nearly 23 million registered voters. The SOS notes that initial implementation of online voter registration in 2012 cost $1.8 million and this modification would be of a similar scale. The SOS emphasizes the differences between California’s voter registration system and that of other states cannot be overstated, thus rendering other state’s costs for similar activities incomparable.

RELATED/PRIOR LEGISLATION

SB 299 (Limon) of 2024 would have required the SOS and the DMV to develop a process to determine whether a person who submits a driver’s license application is already registered or preregistered to vote. Based upon this determination, DMV would have been required to transmit specified information to the SOS so the SOS could register, preregister, or update that person’s existing voter registration. Governor Newsom vetoed this bill. In his veto message, he noted that it would have required DMV and SOS to develop new information technology systems for processing voter registrations and that these systems would could costs tens of millions of dollars.  

SB 381 (Ron Calderon), Chapter 613, Statutes of 2008, allows a person who is qualified to register to vote and who has a valid California driver’s license or state identification card to submit an affidavit of voter registration electronically through the California’s Online Voter Registration system on the SOS’s internet website.

PRIOR ACTION

POSITIONS

Sponsor: Center for Secure and Modern Elections

Support: Coalition of Orange County Community Health Centers

Disability Rights California

Health in Partnership

Institute for Responsive Government Action

League of Women Voters of California

NextGen California

Responsive Gov Action

Oppose: County of Kern

-- END --

ASSEMBLY THIRD READING

ATR Bill Id:AB 1116

Author:(Berman)

As Amended Ver:April 22, 2025

Majority vote

SUMMARY

Allows a person who does not have a state identification card but is qualified to register to vote to register using California′s Online Voter Registration (COVR) system on the Secretary of State′s (SOS) internet website.

Major Provisions

1. Permits a person who is eligible to register to vote but does not have a Department of Motor Vehicles (DMV) issued California driver′s license (DL) or state identification card to submit an affidavit of voter registration through COVR system on the SOS′s internet website, instead of only allowing an eligible person who has a valid California DL or state identification to register to vote through COVR. Requires the COVR system to authenticate the identity of the person under a process developed by the SOS that verifies all of the following information using the information maintained by the SOS or the federal Social Security Administration:
   1. The last four digits of the applicant′s Social Security Number;
   2. The applicant′s full name; and,
   3. The applicant′s date of birth.
2. Requires the SOS to develop a process for an applicant who registers to vote through COVR without their DL or state identification number to electronically upload a high-quality digitized image of the applicant′s signature through the COVR system, and to develop a process for transmitting the digitized image signature to the statewide voter registration database (also known as VoteCal) and the county elections management system (EMS). Requires the electronic upload process to be accessible to people with disabilities.
3. Provides that these provisions become operative on January 1, 2027, or five days after the SOS certifies the information technology infrastructure necessary for implementation is functional, whichever is earlier.

COMMENTS

As part of a voter′s registration, elections officials need to obtain a copy of the voter′s signature for various elections-related purposes. In order to allow for online voter registration, the DMV and the SOS developed a process and infrastructure to transfer an electronic copy of a person′s signature from the DMV to the SOS and to a county′s EMS. For individuals who do not have a California DL or a state identification card, however, the infrastructure does not currently exist to obtain a signature electronically for that voter from a source other than the DMV. Accordingly, individuals who do not have either of those documents may use COVR to fill out a voter registration application, but then must print, sign, and return the form to their local elections official′s office by mail or in person.

This bill requires the SOS to develop a process that allows a person who registers to vote through COVR without their DL or state identification card to electronically upload a high-quality digitized image of their signature. Additionally, this bill requires the SOS to develop a process for transmitting the digitized image of the person′s signature to VoteCal and to a county′s EMS, and requires the electronic upload process to be accessible to people with disabilities.

Please see the policy committee analysis for a full discussion of this bill.

According to the Author

″The National Voter Registration Act and California′s New Motor Voter program have been instrumental in closing voter registration gaps by making it easier for eligible voters to register or update their registration when completing a driver′s license and state identification card transaction. Similarly, our online voter registration system has simplified voter registration for Californians with a DMV-issued driver′s license or identification card. Nevertheless, there remains a voter registration gap of over 4 million Californians. AB 1116 would take the next step to assist eligible but unregistered Californians by removing an unnecessary barrier to using our online voter registration system. This change will make our voter registration process more cost-effective and efficient, while maintaining the integrity of our voter lists.″

Arguments in Support

In support of this bill, NextGen, writes: ″Since California first implemented online voter registration [OVR] in 2012, millions of eligible voters have benefited from a more secure, streamlined, and cost-effective means of registering to vote. The system has significantly improved election security, reducing the risk of errors associated with handwritten forms while increasing participation among eligible citizens. However, despite these successes, a significant gap remains – the current OVR system is only available to individuals who possess a California driver′s license or state identification card issued by the Department of Motor Vehicles (DMV). This restriction forces many eligible voters—particularly seniors, young voters, low-income individuals, and those with disabilities—into the process of having to complete a paper registration form, which they must then mail or deliver in-person.

″The one-time costs incurred by the Secretary of State is a necessary investment to ensure the current OVR system makes registering to vote as easy and accessible as possible. Additionally, by modernizing the state′s current voter registration process - election officials can reduce administrative cost and increase efficiency. Election officials currently spend millions of dollars in labor hours processing paper registration forms. Enabling more voters to register electronically will result in substantial cost savings while allowing election offices to allocate resources more effectively.″

Arguments in Opposition

In opposition to this bill, the Kern County Board of Supervisors, writes: "While we recognize that AB 1116 includes measures such as signature uploads and partial Social Security Number verification, these do not provide the same level of identity authentication as government-issued identification. We are also concerned about the administrative burden and added costs this bill may place on county elections offices. The new processes for signature uploads and additional verification protocols could increase operational complexity and present a potential vulnerability without adequate safeguards to prevent ineligible registration."

FISCAL COMMENTS

According to the Assembly Appropriations Committee, one-time costs of approximately $1 million to the SOS to modify the voter registration system and database to enable digital signature uploads and necessary security upgrades (General Fund). The SOS notes that there is currently no option on the SOS′s website for the public to upload an item. Thus, the SOS also anticipates ongoing costs of an unknown amount for software and staff workload to validate signatures and screen for malicious files (GF). Additionally, one-time costs of approximately $55,000 to the SOS to develop related regulations (GF).

VOTES

ASM ELECTIONS: 5-2-0

YES: Pellerin, Bennett, Berman, Solache, Stefani

NO: Macedo, Tangipa

ASM APPROPRIATIONS: 11-3-1

YES: Wicks, Arambula, Calderon, Caloza, Elhawary, Fong, Mark González, Hart, Pacheco, Pellerin, Solache

NO: Dixon, Ta, Tangipa

ABS, ABST OR NV: Sanchez

UPDATED

VERSION: April 22, 2025

CONSULTANT: Nichole Becker / ELECTIONS / (916) 319-2094 FN: 0000577

Date of Hearing: April 30, 2025

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Buffy Wicks, Chair

ABPCA Bill Id:AB 1116

Author:(Berman) – As Amended Ver:April 22, 2025

Urgency: No State Mandated Local Program: No Reimbursable: No

SUMMARY:

This bill allows a person who does not have a state identification card but is qualified to register to vote to utilize the Secretary of State’s (SOS’s) online voter registration process.

Specifically, this bill:

1. Authorizes a person who has not been issued a driver’s license or identification card by the Department of Motor Vehicles (DMV), but is qualified to register to vote, to submit an affidavit of voter registration on the SOS’s website, as long as the person provides the last four digits of their social security number (SSN) with the affidavit.
2. Requires the SOS to authenticate the identity of such applicants by verifying the applicant’s SSN, full name, and date of birth.
3. Requires the SOS to develop both: (a) a secure process, inclusive of individuals with disabilities, to allow such applicants to electronically upload a high-quality digitized image of their signature to the voter registration system and (b) a process for transmitting the digitized signature to the statewide voter registration database and county election management system (EMS), thus incorporating the digitized signature into a voter’s registration record that a county elections official must check when verifying a voter’s signature on a vote-by-mail (VBM) ballot identification envelope.
4. Provides that these provisions become operative on January 1, 2027, or five days after the SOS certifies the information technology (IT) infrastructure necessary for implementation is functional, whichever is earlier.

FISCAL EFFECT:

One-time costs of approximately $1 million to the SOS to modify the voter registration system and database to enable digital signature uploads and necessary security upgrades (General Fund). The SOS notes that there is currently no option on the SOS’s website for the public to upload an item. Thus, the SOS also anticipates ongoing costs of an unknown amount for software and staff workload to validate signatures and screen for malicious files (GF). Additionally, one-time costs of approximately $55,000 to the SOS to develop related regulations (GF).

COMMENTS:

1. Purpose. According to the author:

The National Voter Registration Act and California’s New Motor Voter program have been instrumental in closing voter registration gaps by making it easier for eligible voters to register or update their registration when completing a driver’s license and state identification card transaction. Similarly, our online voter registration system has simplified voter registration for Californians with a [Department of Motor Vehicles (DMV)]-issued driver’s license or identification card. Nevertheless, there remains a voter registration gap of over 4 million Californians. AB 1116 would take the next step to assist eligible but unregistered Californians by removing an unnecessary barrier to using our online voter registration system. This change will make our voter registration process more cost-effective and efficient, while maintaining the integrity of our voter lists.

This bill is supported by the Center for Secure and Modern Elections, League of Women Voters of California, Disability Rights California, and other groups.

1. Signature Verification for Online Voter Registration. An elections official must obtain a copy of the voter’s signature as part of the voter registration process. For California’s online voter registration system on the SOS’s website, the DMV and SOS developed a process and IT infrastructure to transfer an electronic copy of a person’s signature from the person’s driver’s license or identification card to the statewide voter registration database and county EMS. For individuals who do not have such DMV-issued identification, however, the IT infrastructure does not currently exist to obtain a signature electronically. Instead, those individuals may still begin the voter registration process on the SOS’s website, but then must print, sign, and return a form to the local elections official’s office to complete the process. This bill requires the SOS to develop a process that allows a person to register to vote online by electronically uploading a high-quality digitized image of the person’s signature, thus allowing a person without DMV-issued identification to complete the voter registration process online. This bill also requires the SOS to develop a process for transmitting the digitized signature to the statewide voter registration database and county EMS.

Analysis Prepared by: Irene Ho / APPR. / (916) 319-2081

Date of Hearing: April 9, 2025

ASSEMBLY COMMITTEE ON ELECTIONS

Gail Pellerin, Chair

ABPCA Bill Id:AB 1116 (

Author:Berman) – As Amended Ver:March 28, 2025

SUBJECT: Elections: voter registration.

SUMMARY: Authorizes a person who is eligible to register to vote but does not have a Department of Motor Vehicles (DMV) issued California driver’s license (DL) or state identification card to submit an affidavit of voter registration electronically through California’s Online Voter Registration (COVR) system on the Secretary of State’s (SOS) internet website, as specified. Requires the SOS to develop a process for a person who registers this way to electronically upload a high-quality digitized image of their signature for the purposes of voter registration. Authorizes the SOS to include, as part of the online voter registration system, an application programming interface (API) that allows an organization conducting a voter registration drive to collect and submit affidavits of voter registration electronically. Specifically, this bill:

1. Permits a person who is eligible to register to vote but does not have a DMV issued California DL or state identification card to submit an affidavit of voter registration through COVR system on the SOS’s internet website, instead of only allowing an eligible person who has a valid California DL or state identification to register to vote through COVR. Requires the COVR system to authenticate the identity of the person under a process developed by the SOS that verifies all of the following information using the information maintained by the SOS or the federal Social Security Administration:
   
   1. The last four digits of the applicant’s Social Security Number (SSN);
      
   2. The applicant’s full name; and,
      
   3. The applicant’s date of birth (DOB).
      
2. Requires the SOS to develop a process for an applicant who registers to vote through COVR without their DL or state identification number to electronically upload a high-quality digitized image of the applicant’s signature through the COVR system, and to develop a process for transmitting the digitized image signature to the statewide voter registration database (also known as VoteCal) and the county elections management system (EMS). Requires the electronic upload process to be accessible to people with disabilities.
   
3. Authorizes the SOS to include, as part of the COVR system, an API that allows organizations and entities engaged in voter registration outreach to electronically collect and submit affidavits of voter registration on behalf of applicants. Permits the SOS to adopt the necessary regulations to implement these provisions.
   
4. Requires this bill to become operative on the earlier of the following dates:
   
   1. January 1, 2027.
      
   2. Five days after the date on which the SOS certifies that its electronic voter registration system has been updated to meet both of the following requirements:
      
      1. The electronic voter registration system shall authorize a person who has a SSN and is qualified to register to vote, but who does not have a California DL or state identification card, to submit an affidavit of voter registration electronically on the SOS’s internet website.
         
      2. The electronic voter registration system shall require a person who submits an affidavit of voter registration to provide the last four digits of the person’s SSN and to electronically upload a high-quality image of the person’s signature.

EXISTING LAW:

1. Requires each state, pursuant to the federal Help America Vote Act of 2002 (HAVA), to implement a single, uniform, official, centralized, interactive computerized statewide voter registration list defined, maintained, and administered at the state level that contains the name and registration information of every legally registered voter in the state and assigns a unique identifier to each legally registered voter in the state. (52 USC §21083)
   
2. Provides that a person entitled to register to vote shall be a United States citizen, a resident of California, not in prison for the conviction of a felony, and at least 18 years of age at the time of the next election. (California Constitution, Article II, §2 )
3. Permits a person who is qualified to register to vote and who has a valid California DL or state identification card to submit an affidavit of voter registration electronically through the COVR system on the SOS’s internet website, as specified. (Elections Code §§2196 et seq.)
4. Requires a person who registers to vote electronically through COVR on the SOS’s website to affirmatively assent to the use of the person’s signature from the person’s DL or state identification card, and requires the SOS to obtain an electronic copy of the signature from the person’s DL or state identification card directly from the DMV. (Elections Code §2196(a)(6))

FISCAL EFFECT: Unknown

COMMENTS:

1. Purpose of the Bill: According to the author:

The National Voter Registration Act and California’s New Motor Voter program have been instrumental in closing voter registration gaps by making it easier for eligible voters to register or update their registration when completing a driver’s license and state identification card transaction. Similarly, our online voter registration system has simplified voter registration for Californians with a DMV-issued driver’s license or identification card. Nevertheless, there remains a voter registration gap of over 4 million Californians. AB 1116 would take the next step to assist eligible but unregistered Californians by removing an unnecessary barrier to using our online voter registration system. This change will make our voter registration process more cost-effective and efficient, while maintaining the integrity of our voter lists.

1. VoteCal and HAVA Requirements: On October 29, 2002, President George W. Bush signed HAVA. Enacted partially in response to the 2000 Presidential election, HAVA was designed to improve the administration of federal elections. Among other provisions, HAVA requires every state to implement a computerized statewide voter registration list maintained at the state level. This statewide voter registration list serves as the official list of eligible voters for any federal election held within the state.

At the time HAVA was approved, California was already using a statewide voter registration system, known as Calvoter, which achieved some of the goals of the voter registration list required by HAVA. However, Calvoter did not satisfy many of the requirements in that law, including requirements that the database be fully interactive and have the capability of storing a complete voter registration history for every voter. Discussions between the United States Department of Justice and SOS led to the adoption of a memorandum of agreement (MOA) between the two parties. In that MOA, the SOS committed to further upgrades to the Calvoter system to achieve short term interim compliance with the requirements of HAVA, and to complete development and implementation of a longer term solution for replacing the Calvoter system with a new permanent statewide voter registration system. That permanent system is commonly known as VoteCal.

After a number of delays, in September 2016, Secretary of State Alex Padilla certified VoteCal as the system of record for voter registration in California.

1. California Online Voter Registration History and Previous Legislation: After the plans for VoteCal were initially developed, the Legislature approved a number of bills that sought to take advantage of some of the capabilities available in VoteCal that were not available with Calvoter. One of those bills was SB 381 (Ron Calderon), Chapter 613, Statutes of 2008, which allows a person who is qualified to register to vote and who has a valid California DL or state identification card to submit an affidavit of voter registration electronically through the COVR system on the SOS’s internet website. Online voter registration would not become operative under SB 381 until VoteCal was deployed.
   
   According to information provided to the Legislature when it was considering SB 381, online voter registration was expected to save the state and counties a significant amount of money on reduced costs for printing, processing, and data input from paper voter registration forms. Additionally, online voter registration was expected to improve the accuracy of the voter registration rolls by cutting down on data entry errors and errors that occur due to illegible voter registration forms, while making voter registration more convenient for many voters.

According to previous analyses, at the time the Legislature was considering SB 381, the VoteCal system was expected to be deployed by 2010. As the deployment of that system was delayed due to challenges with vendors and with the procurement process, however, SB 397 (Yee), Chapter 561, Statutes of 2011, permitted online voter registration to begin prior to the completion and implementation of VoteCal, if certain conditions were met.

1. Online Voter Registration and Digital Signatures: As part of a voter’s registration, elections officials need to obtain a copy of the voter’s signature for various elections-related purposes. In order to allow for online voter registration, the DMV and the SOS developed a process and infrastructure to transfer an electronic copy of a person's signature from the DMV to the SOS and to a county’s EMS system. In order to implement these changes, all county EMS systems needed to be modified to receive and store electronic voter registration information received from the SOS in order to allow a person who is qualified to register to vote through COVR.
   
   For individuals who do not have a California DL or a state identification card, however, the infrastructure does not currently exist to obtain a signature electronically for that voter from a source other than the DMV. Accordingly, individuals who do not have either of those documents may use COVR to fill out a voter registration application, but then must print, sign, and return the form to their local elections official’s office by mail or in person.
   
   This bill requires the SOS to develop a process that allows a person who registers to vote through COVR without their DL or state identification card to electronically upload a high-quality digitized image of their signature. Additionally, this bill requires the SOS to develop a process for transmitting the digitized image of the person’s signature to VoteCal and to a county’s EMS system, and requires the electronic upload process to be accessible to people with disabilities.
   
   According to the author and sponsor, in most cases this can be accomplished by uploading a photograph – a voter signs a piece of paper, takes a photograph, and uploads it to the COVR system along with the rest of their registration information. The author and sponsor state that adopting this option improves security, saves money, and makes registration more convenient by allowing more eligible people to register and update registration information online instead of through a paper form that may be inconvenient for both them and elections officials.
   
2. Other States and Online Voter Registration: According to National Conference of State Legislatures, forty-two states, Washington, D.C., Guam and the Virgin Islands offer online voter registration. Online voter registration systems supplement the traditional paper-based process and allow a voter to fill out a form via a website, and that paperless form is submitted electronically to election officials. In most states the application is reviewed electronically by comparing the information on the online registration form against the information provided by the same individual when they received a DL or other state-issued identification card. The signature already on record with the state becomes the signature on record for voting. When the information does not match, the application is sent to officials for further review or action.

In most states, online voter registration systems work for people who have state-issued DLs or identification cards, although a few states provide online access for other potential voters.
According to the author and sponsor, fourteen states and the District of Columbia have adopted online voter registration systems that permit a voter who does not have a DMV issued DL or state identification card to register to vote electronically.

1. Online Voter Registration and APIs: An API is a software intermediary that allows two applications to talk to each other. APIs are an accessible way to extract and share data within and across organizations. Every time an individual uses a rideshare app, sends a mobile payment, or changes the thermostat temperature from their phone, they’re using an API.

According to the author and sponsor, a common real world example of using an API is when a person is booking a flight. When a person books a flight via Expedia, they are using an API created by the airline. The API is the interface (in this instance Expedia) that electronically transmits a person’s information directly to the airline’s system for booking. The API also electronically sends the airline’s response to the individual’s request right back to the travel application the individual is using (Expedia). Through each step of the process, it facilitates the interaction between the application and the airline’s systems – from seat selection to payment and booking.

According to the author and sponsor, in the same way, an online voter registration API allows approved third-party groups to collect registration information and submit it electronically to the SOS for registration purposes. Moreover, using the online voter registration API will reduce the use of paper forms thereby minimizing data entry errors and allowing third-party organizations to track how many people they’ve registered and retain certain contact information for voter outreach and get-out-the vote practices.

Accordingly, this bill authorizes the SOS to create an API that allows organizations and entities that conduct voter registration drives to submit registration applications electronically to the SOS, and permits the SOS to adopt the necessary regulations to implement these provisions.

The committee, however, may wish to consider whether the Legislature, instead of the SOS, should have the authority to determine whether an online voter registration API should be used for voter registration purposes and seek the SOS’s expertise in making that decision.

1. Other States and Online Voter Registration API: According to the author and sponsor, online voter registration APIs or similar systems are used in Pennsylvania, Michigan, Washington, and Colorado. Additionally, Maine and Oregon Secretaries of State have legislative authority to create an online voter registration API.
   
2. Security Standards for APIs: As mentioned above, this bill authorizes the SOS to adopt necessary regulations to allow a third-party conducting a voter registration drive to use an API to electronically submit registration forms. The bill, however, lacks detail on what those regulations should entail. Moreover, committee staff is unaware of any federally created and published API standards for election administration systems. Given heightened concerns about election integrity and cyberattacks, it is important for there to be various data security safeguards in place. Thus, the committee may wish to consider amending the bill to require the SOS to adopt and publish security standards and regulations governing the use of an API for online voter registration purposes.
3. Arguments in Support: In support, NextGen California, writes:

AB 1116 will allow individuals without a DMV-issued ID to register to vote online by providing the last four digits of their Social Security number (the same information they would provide on a paper form) and uploading a photograph of their signature. This method mirrors a secure and widely accepted process used by financial institutions for accepting mobile check deposits…Specifically, AB 1116 will:

1. Expand Access to Voter Registration – Many Californians, particularly historically marginalized groups, do not possess a DMV-issued ID and are currently required to register via paper forms. This legislation will remove that barrier, ensuring that all eligible voters have access to the convenience and efficiency of online voter registration.

2. Improve the Accuracy and Security of Voter Registration Records – Electronic voter registration reduces the likelihood of errors caused by manual data entry. Allowing more voters to register online ensures that voter rolls remain accurate, up-to-date, and secure.

3. Reduce Administrative Costs and Increase Efficiency – Election officials currently spend millions of dollars in labor hours processing paper registration forms. Enabling more voters to register electronically will result in substantial cost savings while allowing election offices to allocate resources more effectively.

4. Facilitate More Effective Voter Registration Drives – The bill provides the Secretary of State with the authority to develop an application programming interface (API) that would allow organizations conducting voter registration drives to electronically submit registration forms. This change will encourage organizations to transition away from paper-based registrations.

REGISTERED SUPPORT / OPPOSITION:

Support

Center for Secure and Modern Elections

Disability Rights California

Institute for Responsive Government

League of Women Voters of California

NextGen California

Opposition

None on file.

Analysis Prepared by: Nichole Becker / ELECTIONS / (916) 319-2094