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However, implementation of the act has been spotty, with only 15 states having fully implemented it. In California, only 15 of its 58 counties failed to comply with the law, resulting in military absentee ballots not being counted as they were received too late. Yet, 90 percent of absentee ballots sent to American civilians living abroad are returned and counted, compared to 2/3rds of absentee ballots mailed by overseas military personnel. In a report by the Overseas Vote Foundation released in January 2013, 21.6 percent of military voters did not receive their ballots, and 13.8 percent of military voters tried to vote but couldn't.