Absentee/mail-in voting
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Absentee/mail-in voting is voting that does not happen in person on Election Day but instead occurs another way (generally by mail). All states allow for some form of absentee/mail-in voting. Fourteen states require voters to provide a valid excuse to vote absentee/by mail. Twenty-eight states allow any eligible voter to cast an absentee/mail-in ballot. Eight states have automatic mail-in ballot systems, also known as all-mail voting systems.[1][2]
HIGHLIGHTS
Background
Every state provides for some method whereby voters can cast ballots without visiting a physical polling place. The terms absentee voting, voting by mail, or voting from home are sometimes used to describe these methods, which can be divided into two categories: automatic mail-in ballot systems and request-required mail-in ballot systems.
Automatic mail-in ballot systems
- See also: All-mail voting
Automatic mail-in ballot systems mandate that all eligible voters receive a ballot by default. These are sometimes referred to as all-mail voting systems.
Access to mail-in voting is not restricted to voters meeting certain eligibility criteria and officials automatically transmit mail-in ballots to all eligible voters. Voters may return these ballots by mail or by using designated deposit sites. Limited in-person voting is generally available, although the number of polling sites and terms of accessibility vary from state to state. One state, Nevada, allows voters to opt out of all-mail voting.[3]
Request-required mail-in ballot systems
Request-required mail-in ballot systems require that eligible voters initiate the process for receiving and casting mail-in ballots. These have traditionally been described as absentee voting systems. There are two types of request-required mail-in ballot systems.
- No excuse required: Any voter may request a mail-in ballot. Generally, a voter must first submit an application in order to receive a ballot. The voter may then return the completed ballot by mail or by using a designated deposit site. In-person voting is dominant.
- Automatic mail-in ballot applications: In one state, Massachusetts, officials automatically transmit mail-in ballot applications to all eligible voters. A voter must complete and submit the application to receive a ballot. The voter then returns the completed ballot by mail or by using designated deposit sites.
- Excuse required: A voter must meet eligibility criteria in order to qualify for a mail-in ballot, such as having an illness or disability or being absent from their polling place on Election Day. Generally, a voter must first submit an application in order to receive a ballot. The voter may then return the completed ballot by mail or by using a designated deposit site. In-person voting is dominant.
Absentee/mail-in voting procedures by state
The map and table below summarizes existing statutory absentee/mail-in voting procedures in the states.
| State | Absentee/mail-in voting type | Description |
|---|---|---|
| Alabama | Request-required absentee/mail-in voting | Excuse required. |
| Alaska | Request-required absentee/mail-in voting | No excuse required. |
| Arizona | Request-required absentee/mail-in voting | No excuse required. |
| Arkansas | Request-required absentee/mail-in voting | Excuse required. |
| California | Automatic mail-in voting | Every voter receives a mail-in ballot by default. |
| Colorado | Automatic mail-in voting | Every voter receives a mail-in ballot by default. |
| Connecticut | Request-required absentee/mail-in voting | Excuse required.[4] |
| Delaware | Request-required absentee/mail-in voting | Excuse required. |
| Florida | Request-required absentee/mail-in voting | No excuse required. |
| Georgia | Request-required absentee/mail-in voting | No excuse required. |
| Hawaii | Automatic mail-in voting | Every voter receives a mail-in ballot by default. |
| Idaho | Request-required absentee/mail-in voting | No excuse required. |
| Illinois | Request-required absentee/mail-in voting | No excuse required. |
| Indiana | Request-required absentee/mail-in voting | Excuse required. |
| Iowa | Request-required absentee/mail-in voting | No excuse required. |
| Kansas | Request-required absentee/mail-in voting | No excuse required. |
| Kentucky | Request-required absentee/mail-in voting | Excuse required. |
| Louisiana | Request-required absentee/mail-in voting | Excuse required. |
| Maine | Request-required absentee/mail-in voting | No excuse required. |
| Maryland | Request-required absentee/mail-in voting | No excuse required. |
| Massachusetts | Request-required absentee/mail-in voting | No excuse required. |
| Michigan | Request-required absentee/mail-in voting | No excuse required. |
| Minnesota | Request-required absentee/mail-in voting | No excuse required. |
| Mississippi | Request-required absentee/mail-in voting | Excuse required. |
| Missouri | Request-required absentee/mail-in voting | Excuse required. |
| Montana | Request-required absentee/mail-in voting | No excuse required. |
| Nebraska | Request-required absentee/mail-in voting | No excuse required. |
| Nevada | Automatic mail-in voting | Every voter receives a mail-in ballot by default. |
| New Hampshire | Request-required absentee/mail-in voting | Excuse required. |
| New Jersey | Request-required absentee/mail-in voting | No excuse required. |
| New Mexico | Request-required absentee/mail-in voting | No excuse required. |
| New York | Request-required absentee/mail-in voting | No excuse required. |
| North Carolina | Request-required absentee/mail-in voting | No excuse required. |
| North Dakota | Request-required absentee/mail-in voting | No excuse required. |
| Ohio | Request-required absentee/mail-in voting | No excuse required. |
| Oklahoma | Request-required absentee/mail-in voting | No excuse required. |
| Oregon | Automatic mail-in voting | Every voter receives a mail-in ballot by default. |
| Pennsylvania | Request-required absentee/mail-in voting | No excuse required. |
| Rhode Island | Request-required absentee/mail-in voting | No excuse required. |
| South Carolina | Request-required absentee/mail-in voting | Excuse required. |
| South Dakota | Request-required absentee/mail-in voting | No excuse required. |
| Tennessee | Request-required absentee/mail-in voting | Excuse required. |
| Texas | Request-required absentee/mail-in voting | Excuse required. |
| Utah | Automatic mail-in voting | Every voter receives a mail-in ballot by default. |
| Vermont | Automatic mail-in voting (general elections only) | Every voter receives a mail-in ballot by default. |
| Virginia | Request-required absentee/mail-in voting | No excuse required. |
| Washington | Automatic mail-in voting | Every voter receives a mail-in ballot by default. |
| West Virginia | Request-required absentee/mail-in voting | Excuse required. |
| Wisconsin | Request-required absentee/mail-in voting | No excuse required. |
| Wyoming | Request-required absentee/mail-in voting | No excuse required. |
Voter identification requirements for absentee/mail-in voting
Under the Help America Vote Act, a person who has not voted in a federal election in the state in which they are voting and who did not submit a copy of their ID when registering to vote must either provide a copy of their ID with their absentee/mail-in ballot or submit a paycheck, bank statement, current utility bill, or government document showing their name and address.[5]
States differ in how they apply voter identification laws for absentee/mail-in voting.
- Three states — Alabama, Kentucky, and New Hampshire — require voters to provide a copy of their photo identification when requesting an absentee/mail-in ballot.
- Two states — Arkansas and North Carolina — require voters to submit a copy of their photo identification when returning an absentee/mail-in ballot.
- Eight states require voters to provide a copy of their photo identification when applying for an absentee/mail-in ballot in certain situations other than what is required under the Help America Vote Act.[6]
- Two states— Oklahoma and South Carolina — require voters to provide a copy of their photo identification when returning an absentee/mail-in ballot in certain situations other than what is required under the Help America Vote Act.
- Two states — Georgia and Ohio — require voters to provide a copy of their photo identification when applying for and returning an absentee/mail-in ballot in certain situations other than what is required under the Help America Vote Act.
Additionally, some other states with voter identification requirements mandate that voters must provide a driver's license number, Social Security number or other identification number in order to vote using an absentee/mail-in ballot:
- Eight states require voters provide a driver's license number, Social Security number or other identification number when applying for an absentee/mail-in ballot.
- Two states — Alaska and Texas — require voters to provide their identification number when requesting and returning an absentee/mail-in ballot.
- One state, Utah, requires a voter identification number when returning an absentee/mail-in ballot.
- Eight states require a voter identification number in certain situations when applying for an absentee/mail-in ballot.[7]
- Two states — Georgia and Ohio — require a voter identification number in certain situations when applying for and returning an absentee/mail-in ballot.
The table below describes the voter ID requirements for individuals requesting and submitting an absentee/mail-in ballot in each state.
| State | Type of requirement | Source |
|---|---|---|
| Alabama | A photo ID is required when applying for an absentee ballot. This does not apply to federal overseas voters | Alabama Code Section 17-9-30 |
| Alaska | An identification number is required to apply for an absentee ballot and when a voter returns their ballot | AS 15.20.081 Alaska absentee ballot application Alaska absentee ballot envelope |
| Arizona | No requirement | N/A |
| Arkansas | Voters must include a copy of their photo ID when returning their absentee ballot. Overseas military voters and their spouses are exempt from the requirement. Residents of a long-term care or residential care facility are exempt from the requirement, provided an administrator attests that the voter is a resident | Arkansas Constitution of 1874 Amendment 51, § 13 |
| California | No voter ID law | N/A |
| Colorado | No requirement | N/A |
| Connecticut | No requirement | N/A |
| Delaware | No requirement | N/A |
| Florida | Voters must provide an identification number when applying for a vote-by-mail ballot. Military and overseas voters are exempt from this requirement | Fla. Stat. §101.62 |
| Georgia | Voters must provide an identification number when applying for and returning an absentee ballot. If a voter does not provide an identification number when applying for or returning a ballot, they must include a copy of their photo ID | O.C.G.A § 21-2-381 O.C.G.A § 21-2-385 |
| Hawaii | No voter ID law | N/A |
| Idaho | Voters must provide an identification number if applying for an absentee ballot online | Idaho Secretary of State |
| Illinois | No voter ID law | N/A |
| Indiana | Voters must provide their driver's license number, ID card number or Social Security number when applying for an absentee ballot. A person also can provide a copy of their photo ID to fulfill this requirement | Ind. Code §3-11-4-2 |
| Iowa | Voters must provide an identification number when applying for an absentee ballot | Iowa Code §53.2 |
| Kansas | Voters must provide their driver's license number or provide a copy of their photo ID when applying for an advanced mail ballot | Kan. Stat. Ann. §25-1122 |
| Kentucky | Voters must provide a copy of their photo ID when applying for an absentee ballot | KRS §117.085 |
| Louisiana | Voters must provide a copy of their photo ID when applying for an absentee ballot if they are considered a disabled applicant. Voters must provide their identification number when applying for an absentee ballot online; if applying using a paper form, this step is optional. | Louisiana Secretary of State Louisiana absentee ballot application |
| Maine | No voter ID law | N/A |
| Maryland | No voter ID law | N/A |
| Massachusetts | No voter ID law | N/A |
| Michigan | Voters must provide an identification number if applying for an absentee ballot online | Mich. Comp. Laws §168.759 |
| Minnesota | No voter ID law | N/A |
| Mississippi | No requirement | N/A |
| Missouri | Voters must provide the last four digits of their Social Security number when applying for an absentee ballot | Missouri absentee ballot request form |
| Montana | No requirement | N/A |
| Nebraska | Voters must provide either their driver's license or ID number or a copy of their photo ID when requesting a by-mail early voting ballot. Voters can complete a reasonable impediment certificate instead of providing their ID | Neb. Rev. Stat. §32-941 |
| Nevada | No voter ID law | N/A |
| New Hampshire | Effective September 30, 2025, voters must present their photo ID in person when applying for an absentee ballot or must include a notarized signature or a copy of their ID if they are mailing their application | New Hampshire Chapter 0302 |
| New Jersey | No voter ID law | N/A |
| New Mexico | No voter ID law | N/A |
| New York | No voter ID law | N/A |
| North Carolina | Voters must provide an identification number when applying for an absentee ballot and must include a copy of their ID when returning their ballot. Voters also can complete an exception form instead of providing their ID | N.C. Gen. Stat. §163-230.1 North Carolina State Board of Elections |
| North Dakota | Voters must provide an identification number when applying for an absentee ballot. Disabled voters are exempt from this requirement and those living outside the U.S. can use their military ID or passport | N.D.C.C. §16.1-07-06 |
| Ohio | Voters must provide either a copy of their ID or their driver's license or identification number when applying for and returning their absentee ballot | R.C. 3509.03 R.C. 3509.05 |
| Oklahoma | Voters must provide an identification number when applying for an absentee ballot. They also must provide their ID if returning an absentee ballot in person | Oklahoma absentee ballot application Okla. Stat. tit. 26, § 14-108 |
| Oregon | No voter ID law | N/A |
| Pennsylvania | No voter ID law | N/A |
| Rhode Island | Voters must provide an identification number if they are applying for a mail ballot online and aren't currently registered to vote | Rhode Island Secretary of State R.I. Gen. Laws §17-20-2.3 |
| South Carolina | Voters must provide an identification number when applying for an absentee ballot. They also must provide their ID if returning an absentee ballot in person | S.C. Code Ann. §7-15-330 and S.C. Code Ann. §7-15-385(D)(1) |
| South Dakota | Voters must provide a copy of their photo ID or a notarized statement when applying for an absentee ballot | SDCL 12-19-2 |
| Tennessee | Voters must provide their Social Security number when applying for an absentee ballot | Tenn. Code Ann. § 2-6-202 |
| Texas | Voters must provide an identification number when applying for and returning a ballot by mail | Tex. Elec. Code Ann. §84.002 Texas Secretary of State |
| Utah | Voters must provide the last four digits of their driver's license, ID card or Social Security number when returning a mail-in ballot. If voters do not provide those numbers, election officials will attempt to match the voter's signature on the envelope affidavit to the signature on file | Utah H.B. 300 |
| Vermont | No voter ID law | N/A |
| Virginia | Voters must provide their identification number when applying for an absentee ballot, unless they are doing so in person. If a person is applying for an absentee ballot in person they must instead provide a copy of their ID or sign a sworn statement | Va. Code §24-2-701 |
| Washington | No requirement | N/A |
| West Virginia | No requirement | N/A |
| Wisconsin | A voter must provide a copy of their photo ID when requesting an absentee ballot unless it was previously provided in an earlier absentee ballot request | Wis. Stat. §6.86(ar) |
| Wyoming | A voter must provide a copy of their ID if requesting an absentee ballot in person | Wy. Stat. §22-9-104 |
Ballot receipt deadlines
Regardless of when state laws permit election officials to process or count ballots, starting this work depends on the date that they receive completed ballots.
HIGHLIGHTS
As of December 2025:
Every state that accepts ballots after Election Day requires that the ballot has a postmark on or before Election Day to be counted.
Support and opposition
The following quotes briefly summarize arguments for and against no-excuse absentee/mail-in voting. See our page, Arguments for and against no-excuse absentee/mail-in voting, for detailed support and opposition arguments from a variety of sources.
| Support | Opposition |
|---|---|
| "If you want people to cast a ballot with full information, you really help if you let them do it from the kitchen table. Because if you’re sitting at the kitchen table and you don’t know who this probate judge candidate is, you can look it up and see who that person is." -Patricia Rossi, Connecticut League of Women Voters (2024)[8] | "The idea of no-excuse for absentee voting seems easy and convenient, but the loss of control of the ballot, the loss of the right to vote by secret ballot, the risk of fraud and the occurrence of subtle or outright voter intimidation is real. Simply put, the risk outweighs the benefit." -Janica Johnston, Georgia State Election Board (2024)[9] |
Method of how ballots were cast by state
- See also: Voting policies in the United States
The following table shows how many ballots were cast by specific methods (by mail, early in-person voting, etc.) according to the Election Assistance Commission's 2024 report on U.S. election administration, which can be found here.
| State | Mail ballots counted | In-person Election Day votes | In-person early votes | Provisional voters |
|---|---|---|---|---|
| Alabama | 126,018 | N/A[10] | N/A[10] | N/A[10] |
| Alaska | 48,744 | 175,541 | 92,281 | 14,786 |
| Arizona | 2,816,885 | 496,753 | 349,129 | 15,699 |
| Arkansas | 24,552 | 294,235 | 810,714 | 1,389 |
| California | 13,062,318 | 1,836,518 | 878,489 | 289,935 |
| Colorado | 2,957,550 | 141,556 | 109,209 | 205 |
| Connecticut | 127,354 | N/A | 715,275 | 36 |
| Delaware | 33,659 | 268,718 | 210,295 | 14 |
| D.C. | 168,111 | 82,396 | 72,914 | 93 |
| Florida | 2,947,371 | 2,596,761 | 5,364,821 | 6,168 |
| Georgia | 268,751 | 1,239,125 | 3,768,395 | 3,718 |
| Hawaii | 483,078 | 0 | 39,158 | 0 |
| Idaho | 179,777 | 508,734 | 225,973 | N/A[10] |
| Illinois | 1,022,256 | 2,666,185 | 2,001,203 | 8,316 |
| Indiana | 1,603,815 | 1,372,508 | 1,397,345 | 1,939 |
| Iowa | 220,041 | N/A[10] | N/A[10] | 749 |
| Kansas | 149,350 | 604,319 | 557,906 | 27,441 |
| Kentucky | 116,324 | 1,267,653 | 687,057 | 194 |
| Louisiana | 119,706 | 1,047,445 | 849,784 | 535 |
| Maine | 215,242 | 463,500 | 157,116 | N/A |
| Maryland | 744,244 | 1,145,134 | 974,945 | 145,763 |
| Massachusetts | 1,173,112 | 1,713,191 | 600,225 | 1,797 |
| Michigan | 2,017,704 | 2,453,252 | 1,214,409 | 10 |
| Minnesota | 446,576 | 1,960,360 | 850,705 | N/A[10] |
| Mississippi | N/A | 1,010,752 | N/A[10] | 14,685 |
| Missouri | 178,526 | 2,067,247 | 867,936 | 5,534 |
| Montana | 430,159 | N/A[10] | N/A[10] | N/A[10] |
| Nebraska | 307,135 | 564,660 | 80,304 | 10,651 |
| Nevada | 656,140 | 247,291 | 543,461 | 28,242 |
| New Hampshire | 92,945 | 730,273 | 0 | 0 |
| New Jersey | 828,200 | N/A[10] | N/A[10] | 116,528 |
| New Mexico | 111,527 | 252,629 | 556,395 | 1,597 |
| New York | 836,987 | 4,320,467 | 2,986,704 | 194,588 |
| North Carolina | 298,269 | 1,175,905 | 4,224,909 | 24,989 |
| North Dakota | 89,429 | 181,998 | 99,007 | N/A[10] |
| Ohio | 1,058,400 | 3,130,240 | 1,536,604 | 104,848 |
| Oklahoma | 98,548 | 1,174,876 | 294,037 | 1,598 |
| Oregon | 2,253,114 | N/A[10] | N/A[10] | 52 |
| Pennsylvania | 1,933,102 | 5,043,808 | N/A[10] | 69,506 |
| Rhode Island | 51,995 | 290,699 | 173,547 | 2,514 |
| South Carolina | 98,782 | 977,341 | 1,476,843 | 4,517 |
| South Dakota | 151,762 | 273,648 | 0 | 201 |
| Tennessee | 86,904 | 856,491 | 2,132,535 | 3,139 |
| Texas | 384,221 | 2,329,171 | 8,703,181 | 20,511 |
| Utah | 1,239,070 | 104,350 | 36,381 | 41,114 |
| Vermont | 240,375 | 122,386 | 2,631 | 0 |
| Virginia | 474,332 | 2,053,905 | 1,840,239 | 111,390 |
| Washington | 3,890,945 | N/A[10] | 171 | 12 |
| West Virginia | 22,377 | 431,925 | 310,305 | 2,905 |
| Wisconsin | 572,434 | 1,870,285 | 977,648 | 57 |
| Wyoming | 38,217 | 154,579 | 76,943 | 63 |
| Total | 47,496,433 | 51,698,810 | 48,847,129 | 1,278,028 |
Absentee/mail-in voting legislation
The table below lists bills related to absentee/mail in voting introduced during (or carried over to) each state's regular legislative session this year. The following information is included for each bill:
- State
- Bill number
- Official bill name or caption
- Most recent action date
- Legislative status
- Sponsor party
- Topics dealt with by the bill
Bills are organized by state and then by most recent action. The table displays up to 100 results. To view more bills, use the arrows in the upper-right corner. Clicking on a bill will open its page on Ballotpedia's Election Administration Legislation Tracker, which includes bill details and a summary.
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See also
- Arguments for and against no-excuse absentee/mail-in voting
- Timelines related to absentee/mail-in ballot processing and counting
- Factors affecting the speed of ballot counting and delivery of unofficial election results
- Cure period for absentee and mail-in ballots
- All-mail voting
Footnotes
- ↑ National Conference of State Legislatures, "Absentee and Early Voting," August 1, 2025
- ↑ We use the term "absentee/mail-in voting" to describe systems in which requests or applications are required. We use the term "all-mail voting" to denote systems where the ballots themselves are sent automatically to all voters. We use the hyphenate term for absentee voting because some states use “mail voting” (or a similar alternative) to describe what has traditionally been called "absentee voting."
- ↑ Nevada Secretary of State, "Mail Ballot Voting," accessed October 24, 2025
- ↑ In November 2024, voters approved a constitutional amendment authorizing the Connecticut State Legislature to provide by law for no-excuse absentee voting. As of October 2025, the legislature has not passed legislation to implement the change.
- ↑ Congress.gov, "Help America Vote Act," accessed October 20, 2025
- ↑ For example, Louisiana requires disabled voters to provide a copy of their photo ID when applying for an absentee ballot, and voters in South Dakota must provide a copy of their photo ID or a notarized statement when applying for an absentee ballot.
- ↑ For example, multiple states require voters to provide their identification number if they do not provide a copy of their photo ID, while Rhode Island requires voters to provide an identification number if they are applying for an absentee ballot online and aren't currently registered to vote.
- ↑ CT News Junkie, "Roundtable Makes Argument For No-Excuse Absentee Voting," October 14, 2024
- ↑ Georgia Recorder, "No excuse absentee voting in Georgia survives a state election board vote to end it," February 13, 2024
- ↑ 10.00 10.01 10.02 10.03 10.04 10.05 10.06 10.07 10.08 10.09 10.10 10.11 10.12 10.13 10.14 10.15 10.16 10.17 Information not provided in the report.
