A guide to understanding the debate over keeping voter rolls ‘clean’
Learn what it means to keep voter rolls “clean,” why the issue is controversial, and how election officials maintain accurate voter registration lists while protecting voting rights and access.
By Jen Fifield for VotebeatNov. 5 2025, Published 12:06 p.m. ET
A guide to understanding the debate over keeping voter rolls ‘clean’
A guide to understanding the debate over keeping voter rolls ‘clean’
The federal government’s demands that states turn over their voter rolls and related information highlight longstanding conflicts over how to ensure that only eligible voters are registered without endangering voting rights.
The U.S. Justice Department has sent letters to several states — and plans to send many more — asking them for copies of their voter lists and for detailed information about how they maintain them. The department has said it’s seeking to enforce requirements in federal law that President Donald Trump has ordered it to prioritize.
It has already sued North Carolina, alleging that the state has not been properly verifying voter identity, and sued Orange County, California, for refusing to provide full records for 17 people who have been removed from the rolls in connection with a probe of potential noncitizen voting. And it has threatened to sue or withhold federal funding from other states if they do not comply with their requests for information.
Everyone agrees that a “clean” voter list — cleared of people who have died or moved out of the jurisdiction, or who otherwise aren’t eligible to vote — is good practice. But they differ on how aggressively election officials should move to remove potentially ineligible voters, what exactly federal law requires election officials to do, and how to balance election security with the risk of wrongly removing and disenfranchising eligible voters.
Rhetoric and false claims can make the debate harder to follow. Votebeat shares a guide to understanding the issues and arguments.
What does the law require?
There are two key federal laws that govern the maintenance of voter rolls.
The National Voter Registration Act requires election officials to make a “reasonable effort” to remove voters who become ineligible to vote because they move or die, a process known as list maintenance. The Help America Vote Act, enacted about a decade later, requires states to use a computerized statewide list of every registered voter and assign them a unique identification number. It also requires them to remove duplicate names.
Beyond that, it’s up to state and local governments to set their own policies for how and when to perform list maintenance, and it’s up to federal courts to decide what is “reasonable.” That term isn’t defined in the law, and it’s often where voting rights groups and advocates for stricter list maintenance disagree.
In a recent case in Michigan, for example, the 6th U.S. Circuit Court of Appeals found that the state’s actions to remove the names of thousands of dead voters from the rolls were sufficient, even though the plaintiff, the Public Interest Legal Foundation, claimed to have identified thousands more on the rolls.
Logan Churchwell, research director at the foundation said in an interview that the court’s decision amounted to giving Michigan an “E for effort.” He said his organization believes there should be a higher standard that would reduce the risk of fraud and administrative error.
For her part, Lata Nott, director of voting rights policy for Campaign Legal Center, said the National Voter Registration Act’s requirement for a “reasonable effort” at maintaining lists is designed to set a floor, but it doesn’t prevent states from creating extreme policies that lead to eligible voters being mistakenly removed.
What is the central issue in the debate?
The main disagreement is over how aggressive list maintenance should be. A recent congressional hearing highlighted the differences between Democrats and Republicans on this question.
House Republicans claimed dirty voter rolls enable fraud, and said ensuring that only eligible voters are on the list increases election security and voter confidence. They dismissed the idea that their efforts are meant to purge certain types of eligible voters from the rolls, such as people of color.
“This is not and should never be a partisan issue,” said Rep. Laurel Lee, a Florida Republican and former secretary of state. “Maintaining accurate voter rolls is fundamental to election security and public trust.”
House Democrats made it clear that they, too, don’t want ineligible voters, such as dead people or noncitizens, on the list. But they questioned why Republicans would want to take any actions that could potentially disenfranchise eligible people, citing recent incidents of state list maintenance actions that led to eligible voters being removed.
“What we do want is every eligible voter gets the chance to vote and their constitutional rights are not infringed upon,” said Rep. Julie Johnson, a Texas Democrat. “And that seems to be a huge distinction.”
Why is it hard to keep voter rolls updated?
It is difficult partly because of the decentralized nature of voting.
The U.S. doesn’t have a national database of eligible voters or citizens. Under federal law, states maintain their own lists. They assign voters the ID number that’s required under the Help America Vote Act, but that number doesn’t have to be connected to any existing federal identification, such as a Social Security number.
To remove voters who were eligible, but aren’t anymore, election officials must have ways to find out when a voter dies, moves to another state, is convicted of a felony, or otherwise becomes ineligible to cast a ballot.
Many election officials get data on address changes from their state’s motor-vehicle department and the U.S. Postal Service, and get death reports from state and federal agencies. Some states allow or mandate the use of other sources, such as obituaries and responses to jury duty summonses.
But there are potential gaps and time lags in these systems. When people move, for example, they don’t often tell the election office for their old address to remove them from the rolls.
It’s fairly easy for officials to track in-state moves, because people carry the same state-assigned voter ID number when they go to register in a new location in the state. But it’s harder for officials to find out when someone moves out of state. That requires coordination between states, or more detailed searches through government records.
Many states are members of the Electronic Registration Information Center, or ERIC, a consortium that collects state voter roll data and alerts its members to potentially duplicate registrations across state lines. But two of the largest states, California and New York, are not members. And several Republican states have withdrawn from ERIC in recent years, citing concerns about the program, including about how the organization shares some of its data with researchers.
Do some states have more registered voters than residents?
Statistics like this are often used to back up claims of voter fraud or poor state practices. But there’s a legitimate explanation for this that’s tied to federal and state laws.
In some instances, state laws allow election officials to remove voters from the rolls quickly, such as when they die, or if they respond to a jury duty summons by saying they are not a U.S. citizen.
But when a state finds out a voter may have moved, federal law requires election officials to send a confirmation mailing before removing that person from the rolls. If the voter doesn’t respond, they remain on the roll of registered voters, but are moved to the “inactive” list, and their names must stay there for two federal election cycles before they are removed, unless the state hears from them.
That four-year wait, and a large number of voters on the inactive list, can make the voter roll appear bloated at any given time.
But another reason for the disparity is that population estimates themselves are imprecise, said Chris Fowler, a professor of geography and demography at Penn State University who studies voter rolls and census data.
The U.S. Census Bureau’s American Communities Survey is currently our best measure of population changes from year to year, Fowler said. But the uncertainty in the national population count is about 10 million residents, he said — roughly equal to the population of Michigan.
Some use the disparities between the numbers to cast doubt on the accuracy of elections and raise alarm about voter fraud, such as Elon Musk with his misleading claim that Michigan had “more registered voters than eligible citizens.” His numbers included inactive voters as if they were eligible voters. But before those voters could cast a ballot, they would have to correct their voting record to prove eligibility, most commonly by showing documentation proving they still live in the jurisdiction.
How ‘dirty’ are the voter rolls?
Some of the most cited data available on this comes from more than a decade ago, and has helped inspire efforts at improvement since then. But those efforts have run into challenges.
In 2012, a research study by the Pew Center on the States found that more than 2.75 million people were registered to vote in more than one state, and there were more than 1.8 million dead people whose names were still on the voter rolls. These and other findings “underscore the need for states to improve accuracy, cost-effectiveness, and efficiency,” Pew said.
There have been multiple attempts to create systems allowing states to share data to help with voter list maintenance. That’s a difficult task, because any such effort must comply with state and federal laws governing data use and privacy. Officials must also cross-check data from various sources, using enough different data points to ensure that the matches are accurate, and that a person with the same name as another isn’t mistakenly removed as a duplicate.
One prior program, the Interstate Voter Registration Crosscheck Program, was ultimately shut down under a court settlement because it did not do enough to protect sensitive voter data. It was also found to be highly inaccurate, often incorrectly identifying registrations as duplicates because of poor matching techniques.
After Pew’s study, the nonprofit provided funding to help launch ERIC, to try to screen out duplicate voter registrations across state lines. Since then, ERIC has helped states identify hundreds of thousands of voters each year who have moved across state lines, and tens of thousands of voters who died. But in part because some Republican states have left the program, only half of states now participate, leaving a lot of gaps.
Some states use more data sources and perform checks more frequently than others. In the latest federal survey of election officials, for example, about 30% of states said they do not use National Change of Address reports from the U.S. Postal Service or data from motor vehicle agencies to identify potentially ineligible voters.
Do poorly maintained voter rolls allow for more fraud?
Generally speaking, removing a voter who has moved prevents them from wrongly voting in their old voting jurisdiction, and removing a voter who has died prevents another person from fraudulently casting a ballot in their name.
That said, prosecutions for double voting and voting for others are rare, and Votebeat could not find any studies showing that states that do a better job of cleaning voter rolls have less voter fraud.
The Heritage Foundation’s database of voter fraud across all states since 1982 includes 174 convictions for duplicate voting, 99 cases of noncitizen voting, and two cases of someone voting under a dead person’s name.
But Churchwell, of the Public Interest Legal Foundation, said the number of prosecutions does not properly measure how much fraud occurs. Rather, he said, it indicates the state’s propensity to prosecute. “I doubt you’ll find research showing where a state is simultaneously terrible at list maintenance yet zealous with prosecutions,” he said.
Are there noncitizens on the voter rolls?
Yes, but states that have looked have not found them in large numbers.
Audits in multiple states have found small numbers of noncitizens on the rolls, few of whom had actually cast ballots, and there are no known instances of noncitizens voting in large enough numbers to influence the outcome of an election.
The threat of noncitizen voting has become a prominent talking point for Republicans, driving their efforts to pass proof-of-citizenship requirements for voters. But even in Republican-led states, officials who have recently tried to find noncitizens on the rolls have reported only small numbers.
In an audit last year, for example, the Georgia Secretary of State’s Office found 20 noncitizens out of 8.2 million registered voters. Nine of them had voted in prior elections, the office found. In Ohio, only one of the 641 cases of noncitizen voting that Secretary of State Frank LaRose referred for prosecution resulted in a voter fraud charge.
In Texas, which has more than 18.6 million registered voters, the Secretary of State’s Office identified 581 noncitizens from 2021 to August of 2024. The state referred 33 potential noncitizens who voted in the 2024 election to the attorney general for investigation. The state also is investigating potential cases from the 2020 and 2022 election cycles.
In Michigan, where activists are working to get a proof-of-citizenship requirement enacted, a review this year by Secretary of State Jocelyn Benson’s office found 15 noncitizens who voted in the November 2024 election.
In Arizona, which requires proof of citizenship to vote in state and local elections, Jesse Richman, a political science professor at Old Dominion University, identified at least 2,331 registered voters who he believes are highly likely to be noncitizens. He studied the state’s voter rolls as an expert defense witness for a case challenging the state’s proof of citizenship laws. Richman said those people could have become naturalized citizens since last updating their license, but the ID they used when registering to vote or updating their registration was a noncitizen ID.
On Aug. 28, the U.S. Justice Department announced the indictment of a Canadian citizen charged with registering to vote and voting in federal elections in North Carolina in 2022 and 2024.
Are there dead people on the voter rolls?
Yes, there are voters who have died but whose names are still on the rolls.
But claims about the number of such voters often turn out to be inaccurate.
In 2012, for example, South Carolina’s State Election Commission reviewed 207 cases that the South Carolina Department of Motor Vehicles had referred to as potential cases of ballots being cast in the names of dead voters. Of those, the commission was able to conclude that 197 did not involve dead voters — instead, they were either clerical errors, or identified through bad matches. There wasn’t enough information on the remaining 10 cases to make any determination.
States that are members of ERIC receive reports about voters who may have died while out of state, and the service has identified about 644,000 voters who died over the last 13 years and whose names needed to be removed from the list. But some state laws may limit how states use that information.
Pennsylvania, for example, is an ERIC member, but state law allows officials to remove the names of dead voters only if they learn of it through the state’s health agency or an obituary. Election officials in the state, including Secretary of the Commonwealth Al Schmidt, have advocated for that to change.
Can list maintenance measures lead to eligible voters being purged?
Yes. In Texas, some of the people removed from the rolls last year were eligible citizens who did not respond to a mailed notice seeking more information about their status, an investigation by Votebeat, The Texas Tribune, and ProPublica found.
And that’s the concern that voting rights advocates have about states that take aggressive steps to clean their lists, especially close to an election. Two of the most recent cases were in Alabama and Virginia, just before the November 2024 election.
Alabama inactivated the registrations of 2,074 eligible voters whom it had flagged as noncitizens based on whether they had been issued federal immigration ID numbers. And Virginia also removed eligible voters from its rolls as it attempted to purge noncitizens based on information from its motor vehicle department, CNN and NPR found.
This is why federal law has safeguards on when states can remove potentially ineligible voters, such as the rule that election officials cannot conduct systematic voter removals within 90 days of an election, Nott with Campaign Legal Center said.
“The more aggressive your list maintenance laws are,” she said, “the more likely you are probably going to be purging people who are eligible to vote.”
This story was produced by Votebeat and reviewed and distributed by Stacker.
