European observers record voters turned away over photo ID confusion in English local elections

European election observers recorded instances of voters in England being turned away from polling stations on Thursday because of confusion over photo identification requirements, the Council of Europe's delegation said as it prepared to issue its preliminary findings on Friday. The 17-member team from the Congress of Local and Regional Authorities, representing 46 member states, was deployed across English local elections as well as the Scottish Parliament and Welsh Senedd contests. While the delegation stressed the problem was not widespread, the incidents underline the practical friction that has accompanied the Elections Act 2022 since it introduced mandatory photo ID for certain UK polls.

What the observers saw on polling day

The Congress delegation visited polling stations in several English constituencies, including Gorton and Denton, where a UK-based observer group had raised concerns in February about possible "family voting" during a byelection. Police subsequently closed their inquiry after finding no evidence of intent to influence any voter. On Thursday, the European observers noted cases where voters arrived without accepted identification, a passport or photocard driving licence, and were unable to cast a ballot. The Electoral Commission, which met the delegation this week, said voters who forgot ID could return at any point before polls closed at 10pm.

Jani Kokko, a Finnish MP serving on the delegation, told the Guardian that the Congress is the only international body that observes local and regional elections. He said the work was "more important than ever because of the increasing threat posed by foreign interference, attempts to undermine democracy, and disinformation." The delegation's mandate also covered the organisation of polling stations, training of staff, access for people with disabilities and any harassment or interference. Russian interference was discussed during the week but is understood not to be considered an issue in these elections.

Electoral Commission cites high awareness but gaps remain

The Electoral Commission defended the rollout, stating that public awareness campaigns had achieved high recognition of the requirement. A spokesperson said 90% of people reported being aware of the voter ID rule at the May 2025 local elections in England. That figure, while substantial, still leaves a minority of the electorate potentially unaware, a gap that disproportionately affects groups less likely to hold a passport or photocard licence, including younger voters, older people and those on lower incomes. The Commission's reminder that voters could return with ID before 10pm does not help those who cannot obtain accepted documents in time.

Critics of the requirement have argued since the Elections Act 2022 that the measure solves a problem that barely exists, personation fraud at polling stations is vanishingly rare in the UK, while creating barriers for legitimate voters. The government has maintained that the rule protects electoral integrity. Thursday's observations will feed into the Council of Europe's report, which is expected to assess whether the implementation meets international standards for accessibility and non-discrimination.

Different rules across the UK add to confusion

The picture is complicated by the fact that photo ID rules do not apply in Scotland or Wales for their devolved elections. A Scottish council apologised this week after sending polling cards in envelopes that incorrectly stated photo identification would be needed for the Scottish Parliament election. The error, though corrected, illustrates how the patchwork of requirements across the UK can mislead voters. In Wales, the Senedd election proceeded without any ID requirement, while in England the rule applied to all local contests and will apply to the next general election.

This divergence stems from the fact that electoral law for devolved elections is set by the Scottish Parliament and the Senedd, both of which have declined to adopt the UK government's photo ID mandate. The result is a single state holding simultaneous elections under different franchise rules, a situation that the Council of Europe's report may flag as a source of voter confusion, particularly in border areas where media coverage crosses jurisdictions.

Government moves to expand accepted ID

Recognising the accessibility concerns, the UK government is bringing forward changes in its Representation of the People Bill to allow UK-authorised bank cards to be used as voter identification at polling stations in England. The measure would add a document that many more citizens carry routinely, potentially reducing the number of voters turned away. The bill's progress through Parliament will be watched closely by the Electoral Commission and by the Council of Europe, whose delegation met Steve Reed, the Secretary of State for Housing, Communities and Local Government, in Westminster on Wednesday.

Representatives from Labour and the Green Party also met the delegation. The cross-party engagement suggests a recognition that the observation mission carries weight, even though the UK is no longer an EU member state. The Council of Europe, founded in 1949 and distinct from the European Union, remains the continent's principal human rights and democracy monitoring body. Its election observation methodology is widely regarded as a benchmark for assessing compliance with the European Convention on Human Rights and the Copenhagen Document on democratic elections.

Why the Council of Europe mission matters

Background to the voter ID requirement

What happens next