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Manually typeset ballots

New topic.  VTS, as I understand it, allows printers to create ballot artwork using templates and then enter the candidate oval positions manually.  Correct and expand on this if I have missed any nuances.
GEMS doesn't have any facilities for this currently.  The two obvious questions are
  1. Do we want to support this?
  2. If yes, then how, specifically?
The place where this has come up is Connecticut and New York, which seem to have a very curious way of laying out ballots.  They lay out the races in a grid, with parties labeled down the left column, races labeled across the top, and candidates in the grid positions.  This was possible to do in VTS manually but is not possible in GEMS.  Worse, I really have no idea how such a layout can be automated (but I digress).  They also throw in referendum questions that don't follow the grid rule in the example I am looking at.
Anyway, let me open the floor on this one since I don't really know the details of how this has worked in the past with VTS.  I have a feeling that this is not going to interact well with GEMS' demand based (ie not batch oriented) ballot artwork generation.