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Ok I was right. Just add the ballots as attachments to the features and publish. I added the attach table to the published service. I am not sure if I needed to but it works so I will keep it.
for us we have multiple voting districts (each with different ballots) and they are divided into polling precincts. polling precincts boundaries do not cross voting districts. there is also only one polling place for each polling precinct. For us each polling place will have a ballot for democrats, republicans, and unaffiliated (school board). I could only get one ballot to show up so we combined the three samples into one pdf and attached it to the polling place point. incoming queries interact with polling precincts which have a one to one relationship with polling place. The attachment and other info time,contact ect.. come from that feature class. The attachments are stored in a related attachment table in a blob field, so each polling place gets its own copy of the sample. It makes for time consuming updating. Hope that helps.
I think we might have had one of those situations where two precincts voted at the same polling location. Since the query first interacts with the polygon then finds the related point, we just added another point. Looks the same but acts different ( i.e. separate ballot)