ElectoFacts

The Canada Elections Act is clear: Special ballots that were never sent back to us or that were received after election day can't be counted. For the 45th general election, the deadline to apply to vote by special ballot was Tuesday, April 22,2025. Electors had to make sure that we received their special ballot by election day on Monday, April 28, 2025. Special ballots received after the prescribed deadline were not counted. In accordance with the Act, the envelopes containing the special ballots must be set aside unopened. Elections Canada must keep the envelopes, unopened, for 10 years after the election.

The data on special ballots can be difficult to navigate. Here are some accurate numbers from the 45th general election:

• There were 969,882 special ballots issued to electors living in their riding and voting by mail, either inside their riding or at an Elections Canada office inside their riding. Of these ballots, 928,311 were returned in time and counted.
• There were 249,877 special ballots issued to electors living in their riding, but voting either by mail outside their riding or at an Elections Canada office outside their riding. Of these ballots, 215,057 were returned in time and counted.
• There were 101,690 special ballots issued to electors living outside Canada during the election. Of these ballots, 57,440 were returned in time and counted.
• In total, 1,321,449 special ballot voting kits were issued to electors, and 1,200,808 were returned in time and counted.

You can find more data on special ballots from the 45th general election on our website.

The Chief Electoral Officer has made recommendations on how to reduce the number of special ballots that are returned late.

A ballot that can be returned by mail is called a special ballot. Voting by special ballot is different from voting with the regular ballot that you may be used to seeing when you vote at a polling station.

When an elector applies to vote by special ballot, they must show or provide copies of their ID. Elections Canada reviews the application and the ID. Once the application is approved, the elector is given a special ballot voting kit. The kit may be handed to the elector, if they applied in person at a local Elections Canada office, or it may be sent to them via Canada Post or courier.

The voting kit includes:

• a special ballot with a space where the elector writes the name of their chosen candidate
• two envelopes: an inner envelope and an outer envelope
• instructions on how to fill out the special ballot and use the envelope system
• a postage-paid return envelope, if the elector wants to return their special ballot by mail

To return their completed ballot, the elector must place it in the inner envelope and seal the envelope. The inner envelope, often called a secrecy envelope, is blank; it has no markings that could be used to identify the elector. The elector then places the inner envelope in the larger outer envelope and seals it. The outer envelope has the elector's name, electoral district (riding) code, a unique number or barcode and a declaration that the elector must sign. By signing the declaration, the elector affirms that they are eligible to vote (i.e. at least 18 years old and a Canadian citizen), have not already voted and will not vote again in the election.
Here are the steps that Elections Canada takes when counting each special ballot:

1. We check that the unique identifier on the outer envelope matches the one on the elector's approved application.
2. We check that the elector's name and electoral district code on the outer envelope match those on the application form.
3. We check that the elector has signed the declaration on the outer envelope and has returned only one ballot.

Only after the above steps are taken can the ballot be counted. If any of these checks fails, the outer envelope is set aside, unopened.

Elections Canada has lists of electors, which we use at the polls on advance polling days and election day. The lists show which electors have requested a special ballot or have already voted at their assigned polling station.  

After the election, we review the lists of electors and our records of returned special ballots. If there are any possible cases of a person voting or attempting to vote more than once, we refer the matter to the Commissioner of Canada Elections. The Commissioner enforces the Canada Elections Act and investigates potential contraventions. 

Learn more: Voting Safeguards

Once an elector's Application for Registration and Special Ballot has been approved, the elector is issued a special ballot voting kit. This kit includes:

• a special ballot with a space where the elector writes the name of their chosen candidate
• two envelopes: an inner envelope and an outer envelope
• instructions on how to fill out the special ballot and use the envelope system
• a postage-paid return envelope, if the elector wants to return their special ballot by mail

To return their completed ballot, the elector must place it in the inner envelope and seal the envelope. The inner envelope, often called a secrecy envelope, is blank: it has no markings that could be used to identify the elector. The elector then places the inner envelope in the larger outer envelope and seals it. The outer envelope has the elector's name, electoral district (riding) code, a unique number or barcode and a declaration that the elector must sign. By signing the declaration, the elector affirms that they are eligible to vote (i.e. at least 18 years old and a Canadian citizen), have not already voted and will not vote again in the election.
When counting special ballots, more steps are required than when counting regular ballots. Every special ballot must be verified, and it is important to prioritize accuracy and transparency over speed.

Here are the steps that Elections Canada takes when counting each special ballot:  

• We check that the unique identifier on the outer envelope matches the one on the elector's approved application.
• We check that the elector's name and electoral district code on the outer envelope match those on the application form.
• We check that the elector has signed the declaration on the outer envelope and that the elector has returned only one ballot.

Only after the above steps are taken can the ballot be counted. If any of these checks fails, the outer envelope is set aside, unopened.

Learn more: Voting Safeguards 

If there are high volumes of special ballots or logistical problems, it might take longer to complete the count and report results in some ridings. For example, a power outage could cause delays in transmitting the results. In the 2021 general election, the COVID-19 pandemic led to a significant increase in the number of electors who chose to vote by special ballot, which resulted in delays in the counting of special ballots.

As with regular ballots, special ballots are counted in front of observers. 

Learn more: Safeguards for Counting Votes and Reporting on Results – Elections Canada

For election day and advance polls, results are reported for each ballot box. Once all the votes in a ballot box have been counted, the totals are entered into Elections Canada's results aggregation and reporting system and are released in near real time.

Special ballots, by contrast, are counted in waves. This means that the results are entered into our results aggregation and reporting system in batches of variable sizes on election night—and on the following days if the count of special ballots cannot be completed on election night. These entries may create sudden jumps in the votes cast for one candidate or another.

The results of votes cast by special ballot are reported under two categories: Group 1 and Group 2. The results for Group 1 include the votes cast by Canadian citizens residing outside Canada, members of the Canadian Armed Forces who voted at military polls, incarcerated electors and Canadian citizens residing in Canada who voted by special ballot outside their riding. The results for Group 2 include the votes cast by Canadian citizens residing in Canada who voted by special ballot inside their riding.

In federal elections, all regular ballots and special ballots are counted in front of candidates or their representatives. The totals are then entered into our results aggregation and reporting system. This system allows us to post the results on the Elections Canada website and provide them to media outlets in near real time.

A few days after election night, each returning officer (RO) validates the results for their riding. The RO compares the totals entered for each polling station into the results aggregation and reporting system with those recorded on the paper Statement of the Vote on election night. If the RO finds that the totals in the results aggregation and reporting system don't match those on the Statement of the Vote, the RO corrects the error in the system.

This validation is done in front of candidates or their representatives. Once the results have been confirmed, the RO issues a certificate or shows the number of votes for each candidate in the riding and gives it to the Chief Electoral Officer. The RO also provides copies to the candidates or their representatives. Elections Canada publishes the validated results on our website as we receive them.  

Learn more: Safeguards for Counting Votes and Reporting on Results

What cannot be shared, however, are images of the actual marked ballots. Ballots from federal elections are protected election documents, and only authorized individuals are permitted to view them. These individuals include the returning officer for the riding; the election workers who conduct the counts; witnesses who don't work for Elections Canada but observe the counts, such as candidates' representatives; and, in the case of a judicial recount, the judge who presides over the recount process. If needed, marked ballots may also be viewed by investigators to determine whether there has been a potential violation of the Canada Election Act.

Restricting who can view the ballots to only authorized individuals is an important integrity measure to ensure the secrecy of the vote.

Read more about the safeguards that protect the ballot counting process: Safeguards for Counting Votes and Reporting on Results.

Recounts are overseen by a judge, not Elections Canada. During a recount, the returning officer for the riding, staff asked by the returning officer to assist in the recount, and members of the recount teams may be present. Each team would include two members appointed by the returning officer (a handler and a recorder) and one representative of each candidate who wishes to be represented on the team. In addition, the following individuals may be present: the candidates, up to two representatives for each candidate who are not members of the recount team, one legal counsel for each candidate, legal counsel for the Chief Electoral Officer and any other person that the judge allows.

The procedure for recounts is governed by Schedule 4 of the Canada Elections Act and ensures that the counting of ballots is transparent and can be scrutinized. During a judicial recount, the lawyers present can raise any concerns with the judge who oversees the process.

Restricting who can view the ballots to only authorized individuals is an important integrity measure to ensure the secrecy of the vote.

Read more about the safeguards that protect the ballot counting process: Safeguards for Counting Votes and Reporting on Results.

The results are recorded on a paper document, called the Statement of the Vote. A copy is given to the candidates or their representatives who are present. The totals on the Statement of the Vote are then entered into Elections Canada's results aggregation and reporting system. This system, which is housed on a secure network based in Canada, allows us to post the results on our website and provide them to media outlets in near real time.  

A few days after election night, each returning officer (RO) validates the results for their riding (electoral district). The RO compares the totals entered into the results aggregation and reporting system for each polling station with those recorded on the paper Statement of the Vote on election night. If the RO finds that the totals in the results aggregation and reporting system don't match those on the Statement of the Vote, the RO corrects the error in the system.

This validation is done in front of candidates or their representatives. Once the results have been confirmed, the RO issues a certificate that shows the number of votes for each candidate in the riding and gives it to the Chief Electoral Officer. The RO also sends copies to the candidates or their representatives. Elections Canada publishes the validated results on our website as we receive them.  

 It is important to know that electors, including candidates, can request a judicial recount of the votes. A judicial recount is a formal way of verifying the count of the votes cast in a particular riding. You can learn more about this process in the Judicial Recount Handbook.

Recounts are presided over by a judge of the superior court who sits in the electoral district in the province or territory where the election results are being validated. Upon application by an elector, a judicial recount can occur if there is credible evidence that:

• an election officer incorrectly counted or rejected ballots
• an election officer wrote an incorrect number of votes cast for a candidate on the Statement of the Vote, or
• the RO incorrectly added up the totals recorded on statements of the vote

All other concerns about the regularity of an election are addressed through the contested election process. After a person is declared elected, any elector who was eligible to vote in the riding, or any candidate in the riding, may bring an application for a contested election before a judge, either in a provincial superior court or in the Federal Court.

Learn more: Results, Validation, Recounts, and Contested Elections: What Happens After Voting in a Federal Election

It is also important to know that ballots are stored securely for 10 years after an election. This means that if there is an investigation by the Commissioner of Canada Elections, the number of ballots cast during an election can still be verified.  

When we refer to a “spoiled” ballot, we are referring to a ballot that never made it to the ballot box and was never counted. One example of such a ballot would be one where an elector made a mistake while marking it and informed the poll worker about the mistake. Their ballot would be set aside, and the elector would receive a new ballot. Spoiled ballots do not form part of the count.

During the count on election night, an election officer examines each ballot, shows it to each person present and asks another election officer to tally the vote in favour of the candidate for whom the vote was cast, and keep a tally of the votes. Any candidates or their representatives who are present can also keep a tally of the count as they observe the process. If no candidates or their representatives are present, the count must take place before two witnesses who are electors.

If a ballot was not supplied by an election officer, was improperly marked (marked for multiple candidates or for no candidate), was cast for a person other than a candidate or has markings on it that could identify the elector, then the ballot is rejected.

Any objections to a ballot made by any candidate or their representative are recorded by an election officer and given a number. The election officer then writes that number on the rejected ballot and initials it. Every objection is noted in the Events Log. The election officer's decision can only be reversed by a judge on a judicial recount or on an application to contest the election.

Learn more about election validation and recounts: Results, Validation, Recounts, and Contested Elections: What Happens After Voting in a Federal Election – Elections Canada

Learn more about safeguards that protect the counting of the vote: Safeguards for Counting Votes and Reporting on Results – Elections Canada

Here's how the count works:

The preliminary count takes place on election night. Election workers count ballots in front of witnesses and complete a statement of the vote that sets out the vote totals and is signed by the workers and witnesses. Totals are then phoned into the returning office.

Then, within about a week of the election, returning officers must validate the results. During that step, returning officers make sure that the numbers written manually on the tally sheets by election workers match the results entered in Elections Canada's results system. That's where any data entry error from election night can be corrected.

After validation, if the results are close, there may be a judicial recount. A judicial recount must take place if the leading candidates in an electoral district receive the same number of votes after the validation of the results; or if the difference in votes is less than one one-thousandth of the total votes cast. In these instances, the returning officer must make a request to a judge for a judicial recount and must also let the candidates or their official agents know of the recount request. An elector, including a candidate, can also make a judicial recount request through the court's application process.

Elections Canada does not oversee the judicial recount process. A judge will fix the date for the recount within four days of receiving the request.

During a recount, the number of votes can change. Here's why: During the ballot counting process on election night, the deputy returning officer (DRO) must determine whether or not certain ballots are rejected. A rejected ballot is one that was not marked according to the law, such as a ballot that was marked for more than one candidate or not marked for any candidate. When that happens, the ballot is not counted and is set aside in a separate envelope. During this process, other election officers or candidate representatives can disagree with the DRO on whether a ballot should be rejected, but it is only the DRO who can make the final decision. During a judicial recount, a judge may have a different interpretation and accept a ballot that had been rejected on election night, either because they are correcting a mistake made by the DRO, or because they apply the Canada Elections Act differently than the DRO did on election night. During the judicial recount, it is the judge who makes the final decision on rejected ballots.

There are more details on judicial recounts here: Results, Validation, Recounts, and Contested Elections: What Happens After Voting in a Federal Election – Elections Canada

See a summary of judicial recounts for the 45th general election here: Election Night Results – Judicial Recounts

Learn more about safeguards that protect vote counting here: Safeguards for Counting Votes and Reporting on Results – Elections Canada

Safeguards are in place throughout the electoral process to make sure that only eligible individuals can vote, and that they vote only once and only in the electoral district where they are registered.

Although Elections Canada accepts voter information cards as proof of address, an elector would need to provide a second piece of ID with their name.

Additionally, when someone votes in person or asks for a special ballot, an election worker crosses their name off the list of electors to show that the person has voted and cannot vote again in the election.

It is illegal to vote more than once. Irregularities may be referred to the Commissioner of Canada Elections for potential investigation. Find more information on safeguards.

Every elector must provide proof of their identity and address before being allowed to vote. When an elector uses their voter information card as their proof of address, they must also show another piece of accepted ID to prove their identity.

Elections Canada maintains the National Register of Electors and updates it regularly using information from several sources. These include the Canada Revenue Agency, provincial and territorial election agencies and provincial and territorial vital statistics bureaus.

See the full list of sources: Description of the National Register of Electors 

However, there is necessarily a delay between the time a person passes away and the time Elections Canada is informed about the death. Occasionally, this means that Elections Canada will not have been informed in time to update the lists of electors for the election. It is always unfortunate when a voter information card is delivered for a deceased person, and we regret any distress this may cause.

Learn more: Voting Safeguards 

Elections Canada's mandate is set out in the Canada Elections Act and does not include any authority to conduct investigations. That being said, we understand the concerns related to the transparency of digital platforms' algorithms and take issues related to foreign interference very seriously. The Chief Electoral Officer has made recommendations to Parliament in two reports about the use of artificial intelligence and adopting measures to increase the transparency of all platforms' algorithms. You can read them here: Protecting Against Threats to the Electoral Process and Meeting New Challenges: Recommendations from the Chief Electoral Officer of Canada following the 43rd and 44th General Elections.

Addressing foreign interference requires a whole-of-society approach. It requires all actors involved in elections—from Elections Canada, security agencies, political parties, parliamentarians, academics, digital platforms and Canadians—to support electoral integrity. We encourage electors to look to us as the authoritative source of information about the federal electoral process.

Elections Canada's role in addressing foreign interference is critical and specific. Learn more about how foreign interference is regulated under the Canada Elections Act.

Anyone who believes that there has been a contravention of the Act can make a complaint to the Commissioner of Canada Elections. While Elections Canada's mandate is to administer elections, the Commissioner enforces the Act and investigates potential contraventions.

To vote in a federal election, you must be a Canadian citizen, be at least 18 years old on election day and prove your identity and address. You must also be registered to vote. When you register, you must declare or confirm your citizenship.

If you are a permanent resident, an international student or a person living in Canada who is not a Canadian citizen, it is illegal for you to vote.

Elections Canada maintains the National Register of Electors, and we have many safeguards in place to make sure that voter registrations are accurate and up to date. Any potential occurrence of illegal voting identified is referred to the Commissioner of Canada Elections.

First, ballots cast on election day are counted at the same location as where they were cast. Nobody touches the ballots between the moment they are cast and the moment they are counted in front of scrutineers, which are normally candidate representatives.

Second, ballots cast during advance polls are kept securely in ballot boxes and often have to be taken overnight by election workers to their homes. When this happens, there are safeguards in place.

Until the counting of the ballots on election day, an election officer must keep the sealed ballot box or boxes in their custody in accordance with the Chief Electoral Officer's instructions.

During closing procedures after each day of advance polls, the deputy returning officer (DRO) seals the ballot box slot and signs the seal. Any party or candidate representatives present must also sign the seal.

The seal prevents the ballot box from being tampered with, and prevents ballots from being added to or removed from the box. The ballot box is also sealed with short and long ballot box seals on each side of the box. If the seals were to be removed and replaced, they would not match the information on the Seal Control Sheet, which would result in an incident being detected.

The boxes must remain properly sealed and must be kept in a secure location at all times.

The chain of custody of a ballot box is maintained by a single election officer until the box can be returned to the office, and the handover of the box or boxes is always recorded in the appropriate log.

In between advance polls and the counting of the ballots on election day, ballot boxes are either kept in a secure place at the returning office or in the custody of the DRO.

On election day, before election workers start counting in front of witnesses the ballots cast at advance polls, the workers must make sure that the number of people who voted matches the number of ballots at each table. If the numbers do not match, they cannot start counting. The workers can also verify that the numbers on the ballots match those on the counterfoils that were kept on the day the ballots were cast.

Before any work begins, all election officers, when appointed, must sign a solemn declaration: They swear to perform their duties in an impartial manner and in accordance with the Canada Elections Act.

It is illegal under the Canada Elections Act to destroy, take, open or otherwise interfere with a ballot box or ballots otherwise than as provided by the Act or by instructions of the Chief Electoral Officer.

There are also multiple safeguards throughout the electoral process that would identify any irregularities if they were to occur. For example, there are always at least two election officers at a polling place to oversee the administration of the vote. Additionally, before the boxes are unsealed and ballots are counted, election workers close the doors of the polling place. No one is allowed to enter or leave until the end of counting. You can read more about the safeguards that are used for ballots and voting, here: Voting Safeguards – Elections Canada.