PDF July 2003 Issue

VOL. 5 • NO. 2 • JULY 2003

ELECTORAL www.elections.ca

YouthYouth ParticipationParticipation inin ElectionsElections

WhyWhy areare theythey votingvoting less?less? HowHow cancan theythey bebe engaged?engaged? Contents VOL. 5 • NO. 2 • JULY 2003 Chief Electoral Officer’s Message 1 Chief Electoral Officer’s Message 3 Youth Participation in Elections 3 Confronting the Problem of Declining Voter Turnout Among Youth Jon H. Pammett and Lawrence LeDuc Youth Participation in Elections A new survey explores the reasons for the drop in youth turnout 9 Turned Off or Tuned Out? Youth Participation in Politics emocracy is based on the right of citizens to participate Elisabeth Gidengil, André Blais, Neil Nevitte and Richard Nadeau Political interest is key to encouraging young people to vote in making the decisions that affect them and in 15 Examining Declining Electoral Turnout Among determining the rules by which they agree to live Canada’s Youth Dtogether. These fundamental rights find full meaning only Brenda O’Neill Editor Youth are more likely than older Canadians to believe voting is not F. Leslie Seidle when citizens engage, as actively as possible, in public life. important, but they are not more cynical about democracy Publications Manager 20 Electoral Participation and the Knowledge Deficit The act of voting is an essential manifestation of that Francine Dalphond Paul Howe engagement. Managing Editor Political knowledge helps explain why younger age groups are voting less Wayne Brown 26 Increasing Youth Voter Registration: Best Practices in This special issue of Electoral Insight is devoted to exploring Targeting Young Electors Jean-Pierre Kingsley Keith Archer Chief Electoral Officer of Canada a major challenge to contemporary Canadian democracy: the For more information, contact A survey of approaches to encourage youth registration in Australia, Elections Canada: New Zealand and the United Kingdom decline in voter turnout during the past decade and, in particular, Telephone: 1 800 463-6868 31 Marketing Voter Participation to the MuchMusic Generation among the youngest group of eligible Canadians. The trend is not entirely new; nor is it www.elections.ca Phillip Haid Some ideas from a social marketing perspective for re-establishing the confined to Canada. It could, however, worsen if steps are not taken to reverse it. © ELECTIONS CANADA 2003 relevance of politics for youth ISSN 1488-3538 From an average of 75 percent during the period from the Second World War to 1988, voter turnout in Canadian federal EC 91827 36 How Old Is Old Enough to Vote? Youth Participation elections declined in 1993 and again in 1997. At the most recent general election in 2000, voter participation dropped ALL RIGHTS RESERVED in Society PRINTED IN CANADA Raymond Hudon and Bernard Fournier further to slightly more than 64 percent of registered electors. Most troubling is the finding of a major research study by Surveys of Quebec students suggest preparing them for voting is more professors Jon Pammett (Carleton University) and Lawrence LeDuc (University of Toronto) that only about one quarter important than lowering the voting age (25.4 percent) of eligible 18–24-year-olds voted in the 2000 election. 42 Lowering the Voting Age: European Debates and Experiences I am grateful to all the authors of the articles published in this issue for agreeing to share their research and analysis on Kees Aarts and Charlotte van Hees the subject of declining youth electoral participation. Taken together, their contributions indicate that young Canadians Emerging debates on extending the franchise to 16-year-olds Eleanor Milne, Chris Fairbrother and have not been exercising their democratic right to vote to the same degree as older citizens because of lower levels of Marcel Joanisse 47 Rush the Vote political knowledge, feelings of apathy, a declining sense that voting is a civic duty, and limited contact with political The Vote (1979–1980) Wayne Brown Indiana limestone, 121.9 x 182.8 cm, parties and candidates. Artists promote youth voting House of Commons, Ottawa Elections Canada is the non-partisan Submissions of articles and photos that might As I said in my address to the Symposium on Electoral Participation in Canada at Carleton University on March 21, 2003, The base stone of The Vote, a sculpture agency responsible for the conduct of be of interest to Electoral Insight readers are Elections Canada is committed to addressing the issue of declining turnout among young Canadian voters. Certain measures on the east wall of the House of Commons federal elections and referendums welcome, although publication cannot be chamber, shows four heads with flowing guaranteed. If used, submissions will be edited will be implemented by the time of the next federal election, while others will be launched following consultations and, Electoral Insight hair whose mouths shape, in song, the is published by Elections for length and clarity as necessary. in some cases, pilot projects. Canada three times a year. It is intended first syllables of Canada’s national for those interested in electoral and related Please address all contributions and letters to anthem, “O-Ca-na-da”. matters, including parliamentarians, officials Wayne Brown, Managing Editor, of international and domestic electoral man- Electoral Insight, Elections Canada, Cover photo: Getty Images agement bodies, election officers and academics. 257 Slater St., Ottawa, Canada The opinions expressed are those of the authors; K1A 0M6 ([email protected]). they do not necessarily reflect those of the Chief Electoral Officer of Canada. July 2003 1 Contents VOL. 5 • NO. 2 • JULY 2003 Chief Electoral Officer’s Message 1 Chief Electoral Officer’s Message 3 Youth Participation in Elections 3 Confronting the Problem of Declining Voter Turnout Among Youth Jon H. Pammett and Lawrence LeDuc Youth Participation in Elections A new survey explores the reasons for the drop in youth turnout 9 Turned Off or Tuned Out? Youth Participation in Politics emocracy is based on the right of citizens to participate Elisabeth Gidengil, André Blais, Neil Nevitte and Richard Nadeau Political interest is key to encouraging young people to vote in making the decisions that affect them and in 15 Examining Declining Electoral Turnout Among determining the rules by which they agree to live Canada’s Youth Dtogether. These fundamental rights find full meaning only Brenda O’Neill Editor Youth are more likely than older Canadians to believe voting is not F. Leslie Seidle when citizens engage, as actively as possible, in public life. important, but they are not more cynical about democracy Publications Manager 20 Electoral Participation and the Knowledge Deficit The act of voting is an essential manifestation of that Francine Dalphond Paul Howe engagement. Managing Editor Political knowledge helps explain why younger age groups are voting less Wayne Brown 26 Increasing Youth Voter Registration: Best Practices in This special issue of Electoral Insight is devoted to exploring Targeting Young Electors Jean-Pierre Kingsley Keith Archer Chief Electoral Officer of Canada a major challenge to contemporary Canadian democracy: the For more information, contact A survey of approaches to encourage youth registration in Australia, Elections Canada: New Zealand and the United Kingdom decline in voter turnout during the past decade and, in particular, Telephone: 1 800 463-6868 31 Marketing Voter Participation to the MuchMusic Generation among the youngest group of eligible Canadians. The trend is not entirely new; nor is it www.elections.ca Phillip Haid Some ideas from a social marketing perspective for re-establishing the confined to Canada. It could, however, worsen if steps are not taken to reverse it. © ELECTIONS CANADA 2003 relevance of politics for youth ISSN 1488-3538 From an average of 75 percent during the period from the Second World War to 1988, voter turnout in Canadian federal EC 91827 36 How Old Is Old Enough to Vote? Youth Participation elections declined in 1993 and again in 1997. At the most recent general election in 2000, voter participation dropped ALL RIGHTS RESERVED in Society PRINTED IN CANADA Raymond Hudon and Bernard Fournier further to slightly more than 64 percent of registered electors. Most troubling is the finding of a major research study by Surveys of Quebec students suggest preparing them for voting is more professors Jon Pammett (Carleton University) and Lawrence LeDuc (University of Toronto) that only about one quarter important than lowering the voting age (25.4 percent) of eligible 18–24-year-olds voted in the 2000 election. 42 Lowering the Voting Age: European Debates and Experiences I am grateful to all the authors of the articles published in this issue for agreeing to share their research and analysis on Kees Aarts and Charlotte van Hees the subject of declining youth electoral participation. Taken together, their contributions indicate that young Canadians Emerging debates on extending the franchise to 16-year-olds Eleanor Milne, Chris Fairbrother and have not been exercising their democratic right to vote to the same degree as older citizens because of lower levels of Marcel Joanisse 47 Rush the Vote political knowledge, feelings of apathy, a declining sense that voting is a civic duty, and limited contact with political The Vote (1979–1980) Wayne Brown Indiana limestone, 121.9 x 182.8 cm, parties and candidates. Artists promote youth voting House of Commons, Ottawa Elections Canada is the non-partisan Submissions of articles and photos that might As I said in my address to the Symposium on Electoral Participation in Canada at Carleton University on March 21, 2003, The base stone of The Vote, a sculpture agency responsible for the conduct of be of interest to Electoral Insight readers are Elections Canada is committed to addressing the issue of declining turnout among young Canadian voters. Certain measures on the east wall of the House of Commons federal elections and referendums welcome, although publication cannot be chamber, shows four heads with flowing guaranteed. If used, submissions will be edited will be implemented by the time of the next federal election, while others will be launched following consultations and, Electoral Insight hair whose mouths shape, in song, the is published by Elections for length and clarity as necessary. in some cases, pilot projects. Canada three times a year. It is intended first syllables of Canada’s national for those interested in electoral and related Please address all contributions and letters to anthem, “O-Ca-na-da”. matters, including parliamentarians, officials Wayne Brown, Managing Editor, of international and domestic electoral man- Electoral Insight, Elections Canada, Cover photo: Getty Images agement bodies, election officers and academics. 257 Slater St., Ottawa, Canada The opinions expressed are those of the authors; K1A 0M6 ([email protected]). they do not necessarily reflect those of the Chief Electoral Officer of Canada. July 2003 1 Youth Participation in Elections

Elections Canada will expand its efforts to promote young Canadians’ understanding of the electoral process through information campaigns and joint initiatives with organizations interested in civic education. For example, Elections Canada is partnering with Cable in the Classroom to develop a new voter education program for students. In a contest Confronting the Problem to be held this autumn in each province and territory, young people between 16 and 18 years of age will be challenged to create 30-second public service announcements (PSAs) on video to tell their peers why the democratic process and voting are important. of Declining Voter

We will also ensure that access to the electoral process is as convenient as possible for young voters – and, indeed, for all voters. During the next general election, Elections Canada will conduct special registration drives to target student Turnout Among Youth residences and neighbourhoods, and place more polls in locations to which young people have easy access. We are also planning to send a card to Canadian citizens following their 18th birthdays, with a message from the Chief Electoral Jon H. Pammett Officer congratulating them on attaining the right to vote and reminding them to register. Professor of Political Science, Carleton University Recognizing the need for a shared effort to address the drop in youth voting, Elections Canada will host a National Forum Lawrence LeDuc on Youth Voting, in Calgary on October 30–31. It will bring together youth, Aboriginal, business, labour, political party Professor of Political Science, University of Toronto and non-governmental organization representatives, as well as academics, researchers and the media. Participants will exchange information about activities to address the decline in youth voting, and offer suggestions for further actions. The decline of voter turnout in Canada to a historic low in political forces that are driving turnout down are of a I invite parliamentarians and political parties, as well as business and civic leaders, youth representatives and the media to the November 2000 federal election has generated concern longer-term nature, the problem of low voter participation join a national dialogue in search of ways to encourage more young Canadians to vote. Without concerted efforts, there among academics, the media and attentive members of the could continue to plague the political system for years to are strong reasons to believe the drift to lower turnout will continue. We must not let that happen. general public. While voter turnout has long been a subject come. If, for example, there is a consistent pattern of of study by scholars interested in more general issues of declining turnout across the generations, we might predict political participation, the reasons for the recent precipitous that electoral participation would continue to decline well decline are not yet well understood. It is evident, however, into the future, simply as a result of normal demographic that the decline is not connected solely with the most recent processes of population replacement. Such an interpretation federal election, as turnout has declined in each of the last has already been suggested by Blais and his colleagues in three general elections. Nor does it seem that the turnout their analysis of the low turnout in the 2000 election.1 Jean-Pierre Kingsley decline is necessarily connected to political issues and events specific to Canada. Voter turnout has also been declining Survey of voters and non-voters in many other industrialized countries. In the most recent French parliamentary election, for example, it dropped to To investigate more levels as low as those observed in Canada, while in the systematically the causes United Kingdom it has fallen even lower. and possible consequences of the prolonged decline Implications of declining turnout in voter turnout in Canada, we designed and The issue of voter turnout is taking on greater importance carried out a new survey in public discussion in Canada and elsewhere, both because in co-operation with of the magnitude of the recent declines and the way in which Elections Canada in they are being interpreted. Observers increasingly link April 2002.2 The sample declining participation in elections to some of the more design called for a short fundamental problems of modern democracy. In this view, screening interview declining public participation in a nation’s most fundamental with a large number The survey results are available in the Electoral Law & Policy section of the democratic exercise may be part of a larger “democratic of Canadians (5,637) Elections Canada Web site deficit” and may have serious implications for the health and a longer interview (www.elections.ca). of its democratic political system. Further, if the social and continued with

2 Electoral Insight July 2003 3 Youth Participation in Elections

2 Electoral Insight July 2003 3 960 reported voters in the 2000 federal Canadian democracy – for the extent towards political election and 960 reported non-voters of a democratic mandate that govern- candidates, parties in that election. In this way, interviews ments might claim, for the kinds of and leaders than were were obtained with a much larger candidates who are elected and even older age groups. They Photo: Wayne Brown Photo: Wayne sample of non-voters than is possible Photo: Elections Canada for the types of issues that are discussed. were, however, more in election-related surveys of the likely to cite personal Canadian public. The survey was Reasons for not voting or administrative designed to explore a variety of expla- reasons for not voting, nations for not voting, both in general Many of the questions in our survey particularly that they terms and with reference to the sharp were open-ended, allowing respondents were “too busy”. They increase in not voting that has occurred to answer in their own words and to give were also somewhat in each of the last three federal elec- more than one response to a question. more likely to experience tions. This article highlights three of the In this way, we were able to explore registration problems. more important findings of the survey – more fully some of the attitudes and The percentages the generational patterns of not voting, Participants at the Symposium on Electoral Participation in Canada (March 21, 2003, in feelings that lie behind the decline in reporting lack of the reasons behind it, and perceptions Ottawa) discussed ways to promote turnout among young voters. voter turnout in Canada. The ability interest were also of both younger and older voters of to compare the answers of both older higher in the two According to the authors’ research, only about one quarter of possible solutions to the problem. electorate during the Mulroney years They should also increase with rising and younger respondents, and of voters youngest age groups. eligible 18–24-year-olds are believed to have voted at the most recent Canadian general election in 2000. (aged 30 to 37 in 2000) the overall levels of education. Our evidence and non-voters, Table 1 illustrates the clear pattern of percentage casting a ballot in 2000 suggests, however, that such changes provides insights decline in turnout across generations was only 54 percent. are occurring more slowly than they into the problem of Table 2 Main Reasons for Not Voting in 2000 that has been at work in the Canadian have in the past, and that many not voting among (open-ended; multiple responses; % of respondents) electorate over the past decade or It is, of course, not unusual to find younger voters, when they do begin the young. We 3 Age in 2000 more. The levels of non-participation lower rates of voting participation to enter the electorate, enter it at a asked those who for the three cohorts of newly eligible among the young. Such patterns much higher average age.5 If such reported not having 55+ 45–54 35–44 25–34 18–24 Total voters entering the electorate in each are well documented in the literature patterns persist over time, normal voted in the 2000 Lack of interest 32 30 34 41 39 37 of the past three federal elections are on non-voting behaviour in Canada processes of population replacement federal election to Not interested; didn’t care; apathy 23 18 20 27 28 25 4 Vote meaningless; won’t count; election forgone striking. Only slightly more than one and in other countries. But lower will combine to keep driving turnout give their reasons conclusion 8 10 10 11 7 9 in five of those who were eligible to participation rates among the young down, with each generation of newly for not voting, and Forgot; unaware 2 0 1 2 4 2 vote for the first time in 2000 chose to have generally been interpreted as eligible voters participating at lower we grouped these Too complicated; confusing 0 2 3 1 0 1 participate. The figures are only slightly a pattern associated with specific rates and taking longer to enter the in three main cate- Negativity 30 50 46 32 27 34 better among those cohorts of voters behavioural characteristics of the life electorate. Since there is, as yet, no gories as shown in No appealing candidates/parties/issues 12 23 21 14 14 16 lack of eligible to vote for the first time in 1997 cycle. As people age, they become evidence that this process of steadily Table 2 – Lack of faith/confidence in candidates/parties/leaders 15 21 17 14 6 13 interest, negativity or 1993. Even those who entered the more politically aware and engaged. lower participation among younger Lack of information about candidates/parties/issues 1 3 5 3 6 4 personal/ electorate during the later Trudeau It is, therefore, to be expected that generations is abating, there could and Regional discontent 2 3 3 1 1 1 administrative.6 period (1974–1980) voted in 2000 at voting rates should increase over well be even lower turnout in future Personal/Administrative 46 33 28 35 43 37 a lower rate than those in the older time with these normal life elections than in 2000. Such a trend Table 2 shows a Too busy with work/school/family 4 3 12 14 23 14 age groups. For those who entered the cycle changes. has potentially serious implications for number of interest- Away from riding/province/country 22 98 11 8 10 ing variations in Registration problems 3 7 3 5 7 6 the reasons for not Illness, health issues 12 8 2 2 * 3 Table 1 voting given by Voting and Not Voting in 2000, by Age Cohorts Didn’t know where or when; polling station different age groups. problems; transportation 5 3 3 2 4 3 Age in 2000 In particular, the Moving-related problems 0 3 1 1 1 1 Voted (first eligibility) Total in 2000 youngest age group, Other 5 3 5 3 5 4 % 68+ 58–67 48–57 38–47 30–37 25–29 21–24 18–20 % (–1953) (1957–1963) (1968–1972) (1974–1980) (1984–1988) (1993) (1997) (2000) aged 18–24 in 2000, Religious reasons 4 2 2 1 1 2 Yes 83 80 76 66 54 38 28 22 61 was less likely to Other; unclassifiable; unclear; none 1 1 3 2 4 2 No 17 20 24 34 46 62 73 78 39 express reasons N = 101 109171 331 347 1,059 N = 2,467 (weighted) having to do with *less than 1 percent negative feelings

4 Electoral Insight July 2003 5 960 reported voters in the 2000 federal Canadian democracy – for the extent towards political election and 960 reported non-voters of a democratic mandate that govern- candidates, parties in that election. In this way, interviews ments might claim, for the kinds of and leaders than were were obtained with a much larger candidates who are elected and even older age groups. They Photo: Wayne Brown Photo: Wayne sample of non-voters than is possible Photo: Elections Canada for the types of issues that are discussed. were, however, more in election-related surveys of the likely to cite personal Canadian public. The survey was Reasons for not voting or administrative designed to explore a variety of expla- reasons for not voting, nations for not voting, both in general Many of the questions in our survey particularly that they terms and with reference to the sharp were open-ended, allowing respondents were “too busy”. They increase in not voting that has occurred to answer in their own words and to give were also somewhat in each of the last three federal elec- more than one response to a question. more likely to experience tions. This article highlights three of the In this way, we were able to explore registration problems. more important findings of the survey – more fully some of the attitudes and The percentages the generational patterns of not voting, Participants at the Symposium on Electoral Participation in Canada (March 21, 2003, in feelings that lie behind the decline in reporting lack of the reasons behind it, and perceptions Ottawa) discussed ways to promote turnout among young voters. voter turnout in Canada. The ability interest were also of both younger and older voters of to compare the answers of both older higher in the two According to the authors’ research, only about one quarter of possible solutions to the problem. electorate during the Mulroney years They should also increase with rising and younger respondents, and of voters youngest age groups. eligible 18–24-year-olds are believed to have voted at the most recent Canadian general election in 2000. (aged 30 to 37 in 2000) the overall levels of education. Our evidence and non-voters, Table 1 illustrates the clear pattern of percentage casting a ballot in 2000 suggests, however, that such changes provides insights decline in turnout across generations was only 54 percent. are occurring more slowly than they into the problem of Table 2 Main Reasons for Not Voting in 2000 that has been at work in the Canadian have in the past, and that many not voting among (open-ended; multiple responses; % of respondents) electorate over the past decade or It is, of course, not unusual to find younger voters, when they do begin the young. We 3 Age in 2000 more. The levels of non-participation lower rates of voting participation to enter the electorate, enter it at a asked those who for the three cohorts of newly eligible among the young. Such patterns much higher average age.5 If such reported not having 55+ 45–54 35–44 25–34 18–24 Total voters entering the electorate in each are well documented in the literature patterns persist over time, normal voted in the 2000 Lack of interest 32 30 34 41 39 37 of the past three federal elections are on non-voting behaviour in Canada processes of population replacement federal election to Not interested; didn’t care; apathy 23 18 20 27 28 25 4 Vote meaningless; won’t count; election forgone striking. Only slightly more than one and in other countries. But lower will combine to keep driving turnout give their reasons conclusion 8 10 10 11 7 9 in five of those who were eligible to participation rates among the young down, with each generation of newly for not voting, and Forgot; unaware 2 0 1 2 4 2 vote for the first time in 2000 chose to have generally been interpreted as eligible voters participating at lower we grouped these Too complicated; confusing 0 2 3 1 0 1 participate. The figures are only slightly a pattern associated with specific rates and taking longer to enter the in three main cate- Negativity 30 50 46 32 27 34 better among those cohorts of voters behavioural characteristics of the life electorate. Since there is, as yet, no gories as shown in No appealing candidates/parties/issues 12 23 21 14 14 16 lack of eligible to vote for the first time in 1997 cycle. As people age, they become evidence that this process of steadily Table 2 – Lack of faith/confidence in candidates/parties/leaders 15 21 17 14 6 13 interest, negativity or 1993. Even those who entered the more politically aware and engaged. lower participation among younger Lack of information about candidates/parties/issues 1 3 5 3 6 4 personal/ electorate during the later Trudeau It is, therefore, to be expected that generations is abating, there could and Regional discontent 2 3 3 1 1 1 administrative.6 period (1974–1980) voted in 2000 at voting rates should increase over well be even lower turnout in future Personal/Administrative 46 33 28 35 43 37 a lower rate than those in the older time with these normal life elections than in 2000. Such a trend Table 2 shows a Too busy with work/school/family 4 3 12 14 23 14 age groups. For those who entered the cycle changes. has potentially serious implications for number of interest- Away from riding/province/country 22 98 11 8 10 ing variations in Registration problems 3 7 3 5 7 6 the reasons for not Illness, health issues 12 8 2 2 * 3 Table 1 voting given by Voting and Not Voting in 2000, by Age Cohorts Didn’t know where or when; polling station different age groups. problems; transportation 5 3 3 2 4 3 Age in 2000 In particular, the Moving-related problems 0 3 1 1 1 1 Voted (first eligibility) Total in 2000 youngest age group, Other 5 3 5 3 5 4 % 68+ 58–67 48–57 38–47 30–37 25–29 21–24 18–20 % (–1953) (1957–1963) (1968–1972) (1974–1980) (1984–1988) (1993) (1997) (2000) aged 18–24 in 2000, Religious reasons 4 2 2 1 1 2 Yes 83 80 76 66 54 38 28 22 61 was less likely to Other; unclassifiable; unclear; none 1 1 3 2 4 2 No 17 20 24 34 46 62 73 78 39 express reasons N = 101 109171 331 347 1,059 N = 2,467 (weighted) having to do with *less than 1 percent negative feelings

4 Electoral Insight July 2003 5 • No one listens to young people; they activity. Young people were also seen Table 3 have no voice. by some respondents as lacking trust in Table 4 Perceived Reasons Why Young People Are Less Likely to Vote What Should Be Done to Get Young People Interested in Politics? (open-ended; multiple responses; % of respondents) candidates, parties or the government, (open-ended; multiple responses; % of respondents) There is a strong feeling, then, that or simply disliking what is happening Under 25 25 and Under 25 25 and years old older young people lack connection to the (or not happening) in politics. years old older Not integrated 79 71 current political system. This explana- Improved education; information 47 53 Distanced from politics by age; tion is joined by the suggestion that Raising young people’s More education in the schools 23 24 not feeling represented, connected 40 37 young people simply do not have interest in politics More dialogue/exposure/education (general) 913 Lack of information, understanding, knowledge 34 27 enough political information. This More emphasis on personal relevance, Lack of encouragement 2 4 lack of knowledge relates to all aspects We followed up the question about the benefits, jobs 8 10 Too busy, too mobile 3 3 of politics – the candidates, parties reasons for lower voting levels among More advertisements, media exposure 8 4 Disengagement 51 59 and issues. It extends to a lack of youth by asking respondents to suggest More education in the home 0 2 Uninterested, apathetic 31 30 knowledge of how politics might what they felt should be done to get Political system change; involvement 43 39 Negativism, cynicism, disillusionment 914affect their lives. Attitudes of this sort young people to be more interested in More relevant issues to youth 27 15 Distrustful of system, politicians 7 9 are cited as explanations by 34 percent politics. The answers to this question, Recruitment, involvement of youth 7 11 Irresponsibility, rebelliousness, laziness 4 6 of young people themselves. Overall, again grouped by age, are shown in Younger candidates, politicians, leaders 5 7 Other 2 4 then, almost three quarters of the Table 4. A majority of those respond- Better politicians, leaders, parties 2 4 Do not know 0 * respondents in the study, and 80 percent ing mentioned “improved education or Electoral reform; democratic reform 2 2 N = 386 1,420 of the under-25 age group, gave answers information” as a potential solution. Changes in conduct of politics 25 30 *less than 1 percent that we have classified in the “not Answers in this category, however, Government relate better to, understand youth 11 14 integrated” category. were reasonably diverse, dealing not More honesty, responsibility, accountability only with the need for more education in politics 6 11 The oldest age group was most affected information about it. The first category, Explanations for not voting among in the schools but also in the home Make politics less complicated, more interesting, fun 8 5 by health issues and by absence from distancing from politics, contained youth also involved reasons that we and in the media. Some also indicated Other 2 2 the electoral district at election time, responses of the following nature: classified as “disengagement”. Such that increased information or education Nothing, do not know 3 3 although it should be remembered that • Youth do not believe that govern- reasons were cited by 59 percent of needed to be made more relevant to N = 332 1,184 there were far fewer non-voters overall ment represents them or cares about respondents over 25, and 52 percent of the interests and personal situations of in the older age groups. The middle- their views, their needs and their young people themselves. The bulk of young people, to better engage them. aged groups, those between the mid-30s issues. these answers simply categorized youth respondents mentioned the electoral The matter of the “relevance” of politics and the mid-50s, were more likely to as uninterested or The notion of increased relevance to system as a target of possible change. to youth comes up again in the third cite reasons involving negative feelings apathetic when it young people came up again in the next Indeed, in response to a separate series category shown in Table 4 – changes toward politicians or political parties It is apparent that the bulk of Canadians comes to voting in category of answers, which referred to of closed-end questions on this topic, in the actions or conduct of those than were those in either the oldest or believe that young people are not voting elections. This systemic changes that might be made to more than three quarters of the running the political system. These the youngest groups. because they feel distanced from the image of uncaring encourage more involvement of youth. respondents in both the older and respondents felt that young people youth is sometimes Table 4 indicates that 27 percent of younger age groups expressed general might become more interested in As part of the survey, we asked our operations of the political system, or accompanied by a respondents under 25 years of age felt satisfaction with the operation of the politics if government made an effort respondents to speculate on the reasons because they lack information about it. more purposeful that those setting the political agenda current electoral system.7 But, in to contact and relate to youth, giving behind the higher rates of not voting description of youth should make more effort to accommo- response to a different question, nearly them more say in government activities. among youth. Their reasons (Table 3) as being actively date issues of relevance to young people, two thirds of the respondents were at Other people who referred to changes fell into two broad categories – those • The age difference distances youth negative toward politics or elections. such as those relating to the jobs, edu- least “somewhat supportive” of reforms in the conduct of politics were more related to a lack of integration of young from the political process and the Older respondents were somewhat cation and future of youth. This number that might introduce greater propor- likely to cite the need for more honesty, people into the political system, and politicians. more likely to say that young people is almost twice as high as in the 25 and tionality into the electoral system.8 responsibility and accountability in the those suggesting that the problem lies • Political parties do not reach out were less likely to vote because they older group. The majority of respondents, however, actions of politicians. In response to with feelings of apathy or political to them or are out of touch with were cynical or disillusioned about were clearly opposed to compulsory a separate series of questions, many distrust. It is apparent that the bulk of youth. politics, sick of the “false promises, Other changes suggested in this cate- voting. While those in the oldest age respondents also agreed that techno- Canadians believe that young people • Youth feel that politics does not affect dishonesty, hypocrisy, corruption and gory were related to improvements group were about evenly divided on this logical developments, such as the are not voting because they feel them, perhaps because they have not negativity” that are sometimes seen as that might encourage more youth to question, respondents in the youngest possibility of Internet voting, might distanced from the operations of the yet developed the responsibilities that characterizing political life, and not enter politics – as leaders, politicians age cohorts were the most opposed to help bring more young people into political system, or because they lack are the subject of political discourse. willing to participate in a “meaningless” and candidates, for example. Few the idea of making voting mandatory. the active electorate.9

6 Electoral Insight July 2003 7 • No one listens to young people; they activity. Young people were also seen Table 3 have no voice. by some respondents as lacking trust in Table 4 Perceived Reasons Why Young People Are Less Likely to Vote What Should Be Done to Get Young People Interested in Politics? (open-ended; multiple responses; % of respondents) candidates, parties or the government, (open-ended; multiple responses; % of respondents) There is a strong feeling, then, that or simply disliking what is happening Under 25 25 and Under 25 25 and years old older young people lack connection to the (or not happening) in politics. years old older Not integrated 79 71 current political system. This explana- Improved education; information 47 53 Distanced from politics by age; tion is joined by the suggestion that Raising young people’s More education in the schools 23 24 not feeling represented, connected 40 37 young people simply do not have interest in politics More dialogue/exposure/education (general) 913 Lack of information, understanding, knowledge 34 27 enough political information. This More emphasis on personal relevance, Lack of encouragement 2 4 lack of knowledge relates to all aspects We followed up the question about the benefits, jobs 8 10 Too busy, too mobile 3 3 of politics – the candidates, parties reasons for lower voting levels among More advertisements, media exposure 8 4 Disengagement 51 59 and issues. It extends to a lack of youth by asking respondents to suggest More education in the home 0 2 Uninterested, apathetic 31 30 knowledge of how politics might what they felt should be done to get Political system change; involvement 43 39 Negativism, cynicism, disillusionment 914affect their lives. Attitudes of this sort young people to be more interested in More relevant issues to youth 27 15 Distrustful of system, politicians 7 9 are cited as explanations by 34 percent politics. The answers to this question, Recruitment, involvement of youth 7 11 Irresponsibility, rebelliousness, laziness 4 6 of young people themselves. Overall, again grouped by age, are shown in Younger candidates, politicians, leaders 5 7 Other 2 4 then, almost three quarters of the Table 4. A majority of those respond- Better politicians, leaders, parties 2 4 Do not know 0 * respondents in the study, and 80 percent ing mentioned “improved education or Electoral reform; democratic reform 2 2 N = 386 1,420 of the under-25 age group, gave answers information” as a potential solution. Changes in conduct of politics 25 30 *less than 1 percent that we have classified in the “not Answers in this category, however, Government relate better to, understand youth 11 14 integrated” category. were reasonably diverse, dealing not More honesty, responsibility, accountability only with the need for more education in politics 6 11 The oldest age group was most affected information about it. The first category, Explanations for not voting among in the schools but also in the home Make politics less complicated, more interesting, fun 8 5 by health issues and by absence from distancing from politics, contained youth also involved reasons that we and in the media. Some also indicated Other 2 2 the electoral district at election time, responses of the following nature: classified as “disengagement”. Such that increased information or education Nothing, do not know 3 3 although it should be remembered that • Youth do not believe that govern- reasons were cited by 59 percent of needed to be made more relevant to N = 332 1,184 there were far fewer non-voters overall ment represents them or cares about respondents over 25, and 52 percent of the interests and personal situations of in the older age groups. The middle- their views, their needs and their young people themselves. The bulk of young people, to better engage them. aged groups, those between the mid-30s issues. these answers simply categorized youth respondents mentioned the electoral The matter of the “relevance” of politics and the mid-50s, were more likely to as uninterested or The notion of increased relevance to system as a target of possible change. to youth comes up again in the third cite reasons involving negative feelings apathetic when it young people came up again in the next Indeed, in response to a separate series category shown in Table 4 – changes toward politicians or political parties It is apparent that the bulk of Canadians comes to voting in category of answers, which referred to of closed-end questions on this topic, in the actions or conduct of those than were those in either the oldest or believe that young people are not voting elections. This systemic changes that might be made to more than three quarters of the running the political system. These the youngest groups. because they feel distanced from the image of uncaring encourage more involvement of youth. respondents in both the older and respondents felt that young people youth is sometimes Table 4 indicates that 27 percent of younger age groups expressed general might become more interested in As part of the survey, we asked our operations of the political system, or accompanied by a respondents under 25 years of age felt satisfaction with the operation of the politics if government made an effort respondents to speculate on the reasons because they lack information about it. more purposeful that those setting the political agenda current electoral system.7 But, in to contact and relate to youth, giving behind the higher rates of not voting description of youth should make more effort to accommo- response to a different question, nearly them more say in government activities. among youth. Their reasons (Table 3) as being actively date issues of relevance to young people, two thirds of the respondents were at Other people who referred to changes fell into two broad categories – those • The age difference distances youth negative toward politics or elections. such as those relating to the jobs, edu- least “somewhat supportive” of reforms in the conduct of politics were more related to a lack of integration of young from the political process and the Older respondents were somewhat cation and future of youth. This number that might introduce greater propor- likely to cite the need for more honesty, people into the political system, and politicians. more likely to say that young people is almost twice as high as in the 25 and tionality into the electoral system.8 responsibility and accountability in the those suggesting that the problem lies • Political parties do not reach out were less likely to vote because they older group. The majority of respondents, however, actions of politicians. In response to with feelings of apathy or political to them or are out of touch with were cynical or disillusioned about were clearly opposed to compulsory a separate series of questions, many distrust. It is apparent that the bulk of youth. politics, sick of the “false promises, Other changes suggested in this cate- voting. While those in the oldest age respondents also agreed that techno- Canadians believe that young people • Youth feel that politics does not affect dishonesty, hypocrisy, corruption and gory were related to improvements group were about evenly divided on this logical developments, such as the are not voting because they feel them, perhaps because they have not negativity” that are sometimes seen as that might encourage more youth to question, respondents in the youngest possibility of Internet voting, might distanced from the operations of the yet developed the responsibilities that characterizing political life, and not enter politics – as leaders, politicians age cohorts were the most opposed to help bring more young people into political system, or because they lack are the subject of political discourse. willing to participate in a “meaningless” and candidates, for example. Few the idea of making voting mandatory. the active electorate.9

6 Electoral Insight July 2003 7 Youth Participation in Elections

The survey findings point us toward itself. It is a problem that deserves our an understanding of the scope of the attention, but one that will not be problem, but only in a limited way easily solved. The direction of a solu- toward its possible solution. It is evident tion is clear – making voting easier that the decline in voter turnout in and more meaningful for first-time recent elections is mainly attributable voters; making politics more relevant Turned Off or Tuned Out? to the young, and that it is part of a to the young; providing them with the demographic trend that shows every tools they need to understand its rele- sign of continuing well into the future. vance to their own lives, engaging Youth Participation in Politics It has serious implications for the them more directly in the political kinds of issues that are likely to be process. But without fundamental addressed in the political arena, the changes in the way in which politics Elisabeth Gidengil Neil Nevitte types of candidates who seek election, is conducted in Canada, these are Professor, Department of Political Science, Professor, Department of Political Science, the positions of the parties, and even goals that could well remain out of McGill University University of Toronto possibly for the health of democracy reach for some time. André Blais Richard Nadeau Professor, Department of Political Science, Professor, Department of Political Science, NOTES Université de Montréal Université de Montréal 1. André Blais, Elisabeth Gidengil, Richard 5. An analysis of data from the Canadian 9. A majority of the survey respondents said Nadeau and Neil Nevitte, Anatomy of a National Election Studies, collected over that it was “very likely” or “somewhat likely” Young Canadians are turning their backs on electoral politics they are young. Most young people are not going to be Liberal Victory: Making Sense of the 2000 the past 30 years, which was also conducted that they personally would take advantage Canadian Election (Peterborough, Ontario: by the authors for Elections Canada, shows of an Internet voting option. The propor- in unprecedented numbers. The optimistic assumption is particularly concerned about taxes, mortgage rates and Broadview Press, 2002), pp. 45–63. clearly that each generation of newly tion responding positively to this item was that they are turning to other forms of political engagement access to services, and the political debate that swirls eligible voters participates at lower rates higher among younger, better-educated, instead. This assumption is encouraged by the fact that around these issues may seem remote and abstract. 2. The full report of the survey, “Explaining and begins to enter the active electorate higher-income and urban respondents, and the Turnout Decline in Canadian Federal today’s young Canadians are much more likely than their at a higher average age. Jon H. Pammett, among those who did not vote in 2000. Elections: A New Survey of Non-voters,” is parents’ or grandparents’ generation to have had a university What is new is the widening generational divide. There is Lawrence LeDuc, Erin Thiessen and available at www.elections.ca under education. The assumption gains credence from media something about this generation of young Canadians that Antoine Bilodeau, “Canadian Voting Electoral Law & Policy. Field work for the Turnout in Comparative Perspective,” images of young people protesting against survey was conducted by Decima Research. unpublished report prepared for Elections globalization or the war against Iraq. Figure 1 Technical details may be obtained by Canada, 2001, pp. 71–74, 78–79. What we are seeing, the argument goes, is Trends in Turnout by Age Group contacting Decima Research or Elections 0% Canada. 6. In tables 2, 3 and 4, which use multiple a new generation of highly educated responses, category totals should be regarded young Canadians who are frustrated with 3. To calculate this table, we employed a –5% as approximate, since respondents were traditional electoral politics and who are corrective weight to rebalance the total allowed to give more than one response turning to more autonomous forms of proportions of voters and non-voters in the in the same category. –10% sample. The weighting was arrived at by political action. However, as this article weighting each of the non-voters in 7. The question asked was: “In general, how demonstrates, there is evidence this repre- the sample at 1 and voters at .34, thereby satisfied are you with the present Canadian sents an unduly sanguine reading of the –15% simulating a sample of 2,467 with a voting electoral system?” Twenty-eight percent of situation. rate of 61.3 percent. all respondents indicated that they were –20% “very satisfied”, while fifty percent responded 4. The cohorts displayed in Table 1 are struc- The deepening divide that they were “somewhat satisfied”. tured according to the particular election at –25% which a respondent first became eligible to 8. The question asked was: “How supportive There is nothing new about lower turnout Born since 1970 vote. To have been eligible to vote in the would you be of introducing a proportional Born in 1960s rates among young people. Detailed study –30% Born 1945–1959 1988 federal election, for example, a representation system for federal elections of voter turnout in federal elections since Born before 1945 respondent would have to have been at in Canada?” Twenty-two percent of least 30 years old in 2000. respondents indicated that they would be 1968 suggests that the propensity to vote –35% “very supportive” and another forty-four typically increases by 7 or 8 points between 1988 1993 1997 2000 percent, “somewhat supportive”. ages 20 and 30 and by about 15 points Note: The turnout among the oldest age group in 1988 is used as the benchmark. Only people born in 1970 Differences between the age groups on this 1 or earlier were eligible to vote in 1988, and so the tracking for the youngest generation begins in 1993. between ages 20 and 50. Young people Source: 1988, 1993, 1997 and 2000 Canadian Election Studies item were negligible. are less likely to vote precisely because

8 Electoral Insight July 2003 9 Youth Participation in Elections

8 Electoral Insight July 2003 9 makes them less likely to vote than However, it is a serious misconception away from the polls. Many people who their parents or their grandparents to suppose that it is the highly educated are disaffected with politics choose to Figure 3 Knowledge of Party Leaders and Other Political Figures were when they were in their twenties. young who are failing to turn up at vent that frustration by voting against 3

Turnout was 10 points higher among Photo: Getty Images the polls. On the contrary, the more the incumbent. Liberal those born in the 1960s when they education young people have, the leader were young and 20 points higher among more likely they are to vote. Education Young Canadians are not so much Bloc Québécois baby boomers when they were the same remains one of the best predictors of “turned off” as “tuned out”. They tend leader (Quebec) age. When trends are tracked for the turnout because it provides the cogni- to be much less interested in politics Canadian different generations, the pattern is tive skills needed to cope with the than older Canadians and to know Alliance leader truly striking (see Figure 1). Turnout complexities of politics and because it much less about what is going on Progressive has held more or less steady for the seems to foster norms of civic engage- politically. Interest in politics and Conservative three older generations; it is only ment. Education makes a massive political knowledge are two of the best leader Born since 1970 among the young that voting has difference to whether young Canadians predictors of who will vote and who New Born in 1960s Democratic Born 1945–1959 decreased. What this means is that of young Canadians continue their vote or not. The 2000 Canadian will not. If young Canadians had been Party leader Born before 1945 much of the decline in turnout since education beyond high school. If they Election Study reveals that turnout as interested in politics and as informed Federal finance 1988 can be attributed to generational are so much more likely to go on to in the youngest generation was almost as older Canadians, their turnout in minister replacement. If the four generations university, why are they so much less 50 points higher among university the 2000 federal election would have Provincial had made up the same proportion of likely to vote than their parents or their graduates than it was among those been 14 points higher. premier the electorate in 2000 as they did in grandparents? A ready answer has been who left school without a high school 1988, turnout in the 2000 federal found in the very fact that they are diploma.2 Furthermore, the decline is When they were interviewed right 0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100% election would have been as much highly educated. The assumption has confined to those with less than a after the 2000 federal election, almost Source: 2000 Canadian Election Study as 10 points higher. been made that these young Canadians university education. Since the 1993 one young Canadian in five was unable are turning away from electoral politics general election, turnout has fallen to name Jean Chrétien as leader of the been active in federal politics, older and only two in three managed to The education myth in search of more active forms of politi- over 30 points among those with less Liberal party, and one in two failed to Canadians have simply had more time name their provincial premier. Young cal engagement. Because they are than a high school education and come up with Joe Clark’s name when to become acquainted with them. Canadians knew even less about the The declining turnout in this generation highly educated, they aspire to some- 15 points or more among those who asked to identify the Progressive However, younger respondents were parties’ positions than older Canadians. is puzzling because it has come at a thing more meaningful than casting a have completed high school and/or Conservative leader (see Figure 3). also much less likely to know the names Only one in four could identify the time when unprecedented numbers ballot once in a while. some college (see Figure 2). Meanwhile, The skeptical might charge that this of the newer party leaders: one in Alliance as being on the right and turnout has held steady among young knowledge test is biased against the three could not name Stockwell Day even fewer could locate the N.D.P. university graduates. young: given how long both men have as Canadian Alliance leader, and more as being on the left. The one factual Figure 2 Trends in Turnout Among Young Canadians than half failed to question on which young Canadians Knowing little and caring less identify Alexa did as well as the older age groups 0% McDonough as was naming the capital of the A second misconception is that young leader of the New United States. –10% Canadians are being “turned off” by Photo: CP Images Democratic Party. traditional electoral politics. They are Knowing the According to the optimistic scenario, –20% certainly dissatisfied with politics and names of the feder- however, this low level of knowledge politicians. Three in five believe that al party leaders is could be just what we would expect if –30% the government does not care what not mere political young Canadians are turning their people like them think and two in five trivia. After all, backs on traditional electoral politics. –40% believe that political parties hardly the leader of the If many of them are finding electoral University ever keep their election promises. winning party will politics to be irrelevant to their real College However, they are no more dissatisfied be Canada’s prime concerns, perhaps it is hardly surprising –50% High school Dropout than older Canadians. In fact, they are, minister. At the that they seem to know so little about –60% if anything, a little less disillusioned The leaders of five federal political parties took part in televised same time, only it. If this line of argument were correct, 1993 1997 2000 with politics than their parents and debates (English and French) during the 2000 general election: (from two in five could we would expect to find much higher their grandparents are. In any case, the left) Jean Chrétien (Liberal), Gilles Duceppe (Bloc Québécois), come up with the levels of knowledge when young Note: The turnout in 1993 among those with some college education is used as the benchmark. political discontent is not a particularly Joe Clark (Progressive Conservative), Alexa McDonough (N.D.P.) name of the federal Canadians are asked about the issues Source: 1993, 1997 and 2000 Canadian Election Studies and Stockwell Day (Canadian Alliance). good predictor when it comes to staying finance minister, that are supposed to concern them.

10 Electoral Insight July 2003 11 makes them less likely to vote than However, it is a serious misconception away from the polls. Many people who their parents or their grandparents to suppose that it is the highly educated are disaffected with politics choose to Figure 3 Knowledge of Party Leaders and Other Political Figures were when they were in their twenties. young who are failing to turn up at vent that frustration by voting against 3

10 Electoral Insight July 2003 11 seeking to effect change by engaging are the most likely to go on-line in in protest activities. Indeed, this search of information about politics. Figure 4 Use of the Internet by Young Canadians to Obtain generation ranks second only to their However, the numbers are not very Political Information baby-boomer parents when it comes to impressive. At the time of the 2000 (% having ever used) involvement in three or more different federal election, less than a quarter of 45% protest activities. But far from turning young Canadians reported that they their backs on more conventional had ever used the Internet to track 40% means of making their voices heard, down political information. Moreover, 35% these young activists are more likely there was a clear education gradient: than other members of their generation the more education they had, the 30% to belong to a political party or to an more likely they were to have used the interest group, and to vote. Internet for this purpose (see Figure 4). 25% Almost two in five university gradu- 20% It is not really surprising that many ates had gone on-line to find some Young people were among the demonstrators at the April 2001 Summit of the Americas, in the of the same young people who fail to information or other about politics, 15% city of Québec. vote also fail to get involved in grass- compared with fewer than one in ten roots organizing or protest activities. of young Canadians without a high 10% This is not so. The sight of young active, it was typically in a sports Involvement presumes a degree of school diploma. More to the point, 5% Canadians protesting at economic association (40 percent). If young awareness of what is going on in the those young people who had used the summits suggests that globalization is Canadians were turning to more world. If people do not pay a modicum Internet to obtain political information 0% exactly the sort of issue that is of special meaningful forms of engagement, this of attention to the news, issues such as were also the most likely to be follow- University College High school Dropout interest to them. In truth, however, should show up in membership of globalization or the environment may ing politics in the traditional media. Source: 2000 Canadian Election Study their lack of awareness seems to extend environmental groups. The environ- simply be “off the radar screen”. These Internet users scored fully two to this topic as well. According to a ment is an issue that matters to young points higher on average than the of young Canadians, too, but they politics and the more likely they are survey conducted in March 2001 for the people, and it has hardly been a priority The on-line myth non-users (on a scale from zero to ten) were the least likely to report being to vote, to join groups working for Centre for Research and Information on on the country’s political agenda. Active when it came to the amount of atten- contacted. This suggests that a change and to be active in their com- Canada, only 57 percent of Canadians involvement in an environmental group This brings us to the final misconception they paid to television news munities. Canada’s born since 1970 had heard anything might seem to offer a more effective tion, namely that the Internet is and/or news in the newspaper. dropout rates may not about globalization, only 53 percent way of working for change. However, helping to counteract young Canadians’ The key to encouraging young Canadians be out of line with had heard anything about the demon- young Canadians are no more likely tendency to tune out of politics. It is How can young Canadians to participate in politics is to get them to other OECD coun- strations against the World Trade (9 percent) than Canadians in general certainly true that young Canadians be encouraged to vote? tries, but Canadian Organization the previous year in to have been active in an environmen- “tune in”. dropouts tend to have Seattle, and a mere 40 percent had tal group. This calls into question the The key to encouraging young very low levels of lit- heard anything about the upcoming optimistic assumption that declining Canadians to participate in politics eracy compared to Summit of the Americas in the city of participation in traditional electoral is to get them to “tune in”. Political concerted get-out-the-vote effort on these countries because they typically 4 7 Québec. On all three questions, aware- politics is being offset by greater involve- Photo: Getty Images engagement presupposes political the part of political parties could help quit high school at an earlier age. ness was lowest among the young. ment in grassroots-level activities. interest. If young Canadians are not to stem the downward trend in voting interested in politics, they are not going among the young. A recent study in Education not only equips citizens Who are the activists? Involvement in protest activities tells a to spend much time or energy keeping the U.S.A. points to the importance with the cognitive skills that active similar story. The activists are actually up with public affairs, and still less of getting young citizens to vote for engagement requires, it also seems to The third misconception is that young most likely to be found among the participating actively in the country’s the first time: once they have paid the instill norms of civic obligation. Sense Canadians who are giving up on elec- middle-aged, a pattern that holds across democratic life. We need to recognize, “start-up costs of voting”, young voters of duty is one of the most powerful toral politics are involving themselves national boundaries.5 The young are though, that interest runs both ways. tend to keep on voting.6 incentives for turning out to vote.8 in other ways. In fact, according to the the least likely among Canadians to One very tangible form of interest is to However, this sense seems to be 2000 Canadian Election Study, young have been active; more than one in have a campaign worker or even a For the longer term, the single most diminishing: fewer than one young Canadians were the least likely to have five have engaged in no form of protest candidate turn up at the door: people important step would be to find ways Canadian in five expressed a strong been active in a voluntary association whatsoever – even signing a petition who reported being contacted by any to keep more young people in school. sense of duty to vote in 2000, com- or community group during the previous or joining in a boycott. To be sure, of the parties during the 2000 campaign The more education young people pared with one in three of those born five years, and when they had been there is a core of young people who are were more likely to vote. This was true have, the more interested they are in before 1945.

12 Electoral Insight July 2003 13 seeking to effect change by engaging are the most likely to go on-line in in protest activities. Indeed, this search of information about politics. Figure 4 Use of the Internet by Young Canadians to Obtain generation ranks second only to their However, the numbers are not very Political Information baby-boomer parents when it comes to impressive. At the time of the 2000 (% having ever used) involvement in three or more different federal election, less than a quarter of 45% protest activities. But far from turning young Canadians reported that they their backs on more conventional had ever used the Internet to track 40% means of making their voices heard, down political information. Moreover, 35% these young activists are more likely there was a clear education gradient: than other members of their generation the more education they had, the 30% to belong to a political party or to an more likely they were to have used the interest group, and to vote. Internet for this purpose (see Figure 4). 25% Almost two in five university gradu- 20% It is not really surprising that many ates had gone on-line to find some Young people were among the demonstrators at the April 2001 Summit of the Americas, in the of the same young people who fail to information or other about politics, 15% city of Québec. vote also fail to get involved in grass- compared with fewer than one in ten roots organizing or protest activities. of young Canadians without a high 10% This is not so. The sight of young active, it was typically in a sports Involvement presumes a degree of school diploma. More to the point, 5% Canadians protesting at economic association (40 percent). If young awareness of what is going on in the those young people who had used the summits suggests that globalization is Canadians were turning to more world. If people do not pay a modicum Internet to obtain political information 0% exactly the sort of issue that is of special meaningful forms of engagement, this of attention to the news, issues such as were also the most likely to be follow- University College High school Dropout interest to them. In truth, however, should show up in membership of globalization or the environment may ing politics in the traditional media. Source: 2000 Canadian Election Study their lack of awareness seems to extend environmental groups. The environ- simply be “off the radar screen”. These Internet users scored fully two to this topic as well. According to a ment is an issue that matters to young points higher on average than the of young Canadians, too, but they politics and the more likely they are survey conducted in March 2001 for the people, and it has hardly been a priority The on-line myth non-users (on a scale from zero to ten) were the least likely to report being to vote, to join groups working for Centre for Research and Information on on the country’s political agenda. Active when it came to the amount of atten- contacted. This suggests that a change and to be active in their com- Canada, only 57 percent of Canadians involvement in an environmental group This brings us to the final misconception they paid to television news munities. Canada’s born since 1970 had heard anything might seem to offer a more effective tion, namely that the Internet is and/or news in the newspaper. dropout rates may not about globalization, only 53 percent way of working for change. However, helping to counteract young Canadians’ The key to encouraging young Canadians be out of line with had heard anything about the demon- young Canadians are no more likely tendency to tune out of politics. It is How can young Canadians to participate in politics is to get them to other OECD coun- strations against the World Trade (9 percent) than Canadians in general certainly true that young Canadians be encouraged to vote? tries, but Canadian Organization the previous year in to have been active in an environmen- “tune in”. dropouts tend to have Seattle, and a mere 40 percent had tal group. This calls into question the The key to encouraging young very low levels of lit- heard anything about the upcoming optimistic assumption that declining Canadians to participate in politics eracy compared to Summit of the Americas in the city of participation in traditional electoral is to get them to “tune in”. Political concerted get-out-the-vote effort on these countries because they typically 4 7 Québec. On all three questions, aware- politics is being offset by greater involve- Photo: Getty Images engagement presupposes political the part of political parties could help quit high school at an earlier age. ness was lowest among the young. ment in grassroots-level activities. interest. If young Canadians are not to stem the downward trend in voting interested in politics, they are not going among the young. A recent study in Education not only equips citizens Who are the activists? Involvement in protest activities tells a to spend much time or energy keeping the U.S.A. points to the importance with the cognitive skills that active similar story. The activists are actually up with public affairs, and still less of getting young citizens to vote for engagement requires, it also seems to The third misconception is that young most likely to be found among the participating actively in the country’s the first time: once they have paid the instill norms of civic obligation. Sense Canadians who are giving up on elec- middle-aged, a pattern that holds across democratic life. We need to recognize, “start-up costs of voting”, young voters of duty is one of the most powerful toral politics are involving themselves national boundaries.5 The young are though, that interest runs both ways. tend to keep on voting.6 incentives for turning out to vote.8 in other ways. In fact, according to the the least likely among Canadians to One very tangible form of interest is to However, this sense seems to be 2000 Canadian Election Study, young have been active; more than one in have a campaign worker or even a For the longer term, the single most diminishing: fewer than one young Canadians were the least likely to have five have engaged in no form of protest candidate turn up at the door: people important step would be to find ways Canadian in five expressed a strong been active in a voluntary association whatsoever – even signing a petition who reported being contacted by any to keep more young people in school. sense of duty to vote in 2000, com- or community group during the previous or joining in a boycott. To be sure, of the parties during the 2000 campaign The more education young people pared with one in three of those born five years, and when they had been there is a core of young people who are were more likely to vote. This was true have, the more interested they are in before 1945.

12 Electoral Insight July 2003 13 Youth Participation in Elections

Just what has impaired the development relatively powerless in the face of the role of the state. One result of a sense of duty to vote on the part global economic forces, and a series of may be a renewed sense that of this generation of young Canadians constitutional crises and failed accords. politics does indeed matter. is unclear, but it may well have some- All of these factors could have thing to do with the fact that they combined to produce a disengaged were reaching adulthood at a time generation that often tunes out when disaffection with politics was politics altogether. But these Examining Declining Electoral growing. This disaffection had a circumstances are changing. number of sources: the rise of a Political disaffection peaked in the neo-conservative outlook that mid-1990s and seems to be waning. Turnout Among Canada’s Youth advocated a smaller role for the state, Meanwhile, security concerns at a perception that governments were home and abroad have highlighted Brenda O’Neill Assistant Professor, Department of Political Studies, University of Manitoba

NOTES

1. André Blais, Elisabeth Gidengil, Richard 4. For details, see the Canadian Opinion Without question, young people are not participating in Nadeau and Neil Nevitte, “The Evolving Research Archive at Queen’s University politics to the same degree as previous generations.1 This Nature of Non-Voting: Evidence from under CROP Political Survey (March trend has important implications for politics today, as Canada,” European Journal of Political 2001), CROP, Inc., Montréal, Quebec well as in the future, and for society at large, as well as for Research (forthcoming). For more detailed (CRIC0103). Neither the original collector information on issues covered in this arti- of the data, CORA, nor the relevant fund- the youngest generation in particular. A key question cle, see André Blais, Elisabeth Gidengil, ing agency bear any responsibility for the generated by the trend is what accounts for it, which is

Richard Nadeau and Neil Nevitte, use of the data made here. The results of the focus of this article; another is what should be done to Photography Photo: Paul Toogood Anatomy of a Liberal Victory: Making the survey are analyzed in “Trade, reverse it. Sense of the 2000 Canadian Election Globalization and Canadian Values,” (Peterborough, Ontario: Broadview Press, The CRIC Papers Vol. 1 (April 2001), Analysis of a survey conducted by the Institute for 2002), Chapter 3, and Elisabeth Gidengil, available at http://www.cric.ca/pdf/cahiers/ 2 André Blais, Neil Nevitte and Richard cricpapers_april2001.pdf. Research on Public Policy (IRPP) in 2000 revealed a gap Nadeau, Democratic Citizenship in Canada of 25 percentage points in reported turnout for the 1997 5. Pippa Norris, The Democratic Phoenix: (University of British Columbia Press, election between those aged 18–27 and those over 57 years Reinventing Political Activism (New York: forthcoming). Cambridge University Press, 2002). of age (see Table 1). Additionally, research suggests that the 2. The 2000 Canadian Election Study dramatic decline in voter turnout in Canada can largely be 6. Eric Plutzer, “Becoming a Habitual Voter: involved a rolling cross-section campaign attributed to Canada’s youth. According to Blais and his Inertia, Resources, and Growth in Young survey with a representative sample of colleagues, tracking non-voters across the three latest A study by the Institute for Research on Public Policy in 2000 found Adulthood,” American Political Science 3,651 Canadians, a post-election survey that only slightly more than 40 percent of Canadian 18–27-year-olds Review Vol. 96 (2002), pp. 41–56. Canadian general elections (1993, 1997 and 2000) reveals with 2,862 of the campaign survey respond- that not voting increased only among those born after 1970, have an interest in politics. ents, and a mail-back questionnaire filled 7. Canada, Human Resources Development and by a significant 14 points.3 out by 1,535 of the post-election respond- Canada, Applied Research Branch, ents. The campaign survey response rate Dropping Out of High School: Definitions lead to unique attitudes and behaviours among individuals was 62 percent. The field work was con- and Costs R-01-1E (Ottawa: Human Differences in political attitudes and participation across for whom these are newly developing. ducted by the Institute for Social Research Resources Development Canada, 2000). age groups are normally accounted for by two distinct at York University and by Jolicoeur et phenomena: life-cycle and generational effects. The first The IRPP survey revealed that life-cycle effects are evident 8. André Blais, To Vote or Not to Vote: The Associés. It was funded by the Social identifies the reality that politics achieves greater impor- in Canadians’ attitudes and participation rates (see Table 1). Sciences and Humanities Research Council Merits and Limits of Rational Choice Theory of Canada, with additional funding from (Pittsburgh: University of Pittsburgh Press, tance in the middle and later stages of one’s life, because of When 1997 voting turnout was compared to turnout meas- Elections Canada and the Institute for 2000). self-interest (political decisions take on greater importance ured in a 1990 survey, a similar pattern emerged, with Research on Public Policy. when the risk associated with the outcome increases), or younger Canadians being less likely to vote than older because of an increased sense of responsibility to the Canadians in both time periods.4 But comparing the 1990 3. Elisabeth Gidengil, André Blais, Neil Nevitte and Richard Nadeau, “The community. Generational effects account for changes results to the 2000 survey results reveals that generational Correlates and Consequences of Anti- across generations due to shared common and distinctive changes are strong and that increased voting among today’s Partyism in the 1997 Canadian Election,” experiences in young and early adulthood. Formative expe- youth over time will not allow the turnout rate to “catch Party Politics Vol. 7 (2001), pp. 491–513. riences, the presence or absence of war, for example, can up” to rates previously recorded in Canada.5 Much of the

14 Electoral Insight July 2003 15 Youth Participation in Elections

NOTES

14 Electoral Insight July 2003 15 level of cyni- the highest level of satisfaction of all Table 1 7 cism. Canada’s age groups, 81 percent. Table 3 Generational Differences in Reported Turnout, Variation in Reported Turnout Among Canadians 22 to 37 Years 1990–2000 youth have of Age, 2000

tuned out, they Differences across age groups are Photo: Getty Images Voting % voted in Birth cohort insist, because apparent, however, in political interest % 1990 % 2000 1997 election they have little and knowledge (see Table 2). Only 1973–1982 – 66 Education confidence in 41 percent of 18–27-year-olds indicated 1963–1972 74 69 High school or less 60 (118) those entrusted an interest in politics; this increases 1953–1962 85 85 Post-secondary 71 (322) with society’s with age to 68 percent among those 57 1943–1952 93 92 Gender interests. Very and over. While the ability to correctly Before 1943 93 91 Female 65 (241) visible protests, identify the Prime Minister differs only Total 88 81 Male 71 (203) apparently slightly among age groups, more than Household income Note: Entries are percentage of respondents. The youngest birth cohort in both dominated by 40 points separate the youngest and Less than $30,000 64 (91) surveys includes only those respondents of voting age at the time of the election. Older Canadians are much more likely Data for 1990 are from the Lortie survey [Blais and Gidengil, 2000 (see note 5)] young activists, oldest groups in their ability to identify $30,000–$49,000 74 (100) than younger ones to follow politics closely. and for 2000 from the IRPP survey [Howe and Northrup, 2000 (see note 2)]. would seem to the Minister of Finance: 22 percent $50,000–$79,000 79 (95) support such a and 65 percent respectively. Lower Over $80,000 67 (90) reported drop in voting over the conclusion. But while levels of political levels of both political interest and the likelihood of participating in poli- Political interest 10-year period is accounted for by the cynicism have increased, a more knowledge have been associated with tics, but again the question remains as Follow politics very or fairly closely 81 (225) lower turnout among those who became accurate picture emerges through decreased voter turnout and help to to why previous generations were less Not very closely or not at all 55 (214) newly enfranchised between the two more careful analysis. explain increased levels of electoral likely to dismiss the importance of Political knowledge surveys (from 74 percent in 1990 to abstention among Canadian youth. elections at the same stage of life. Identified the Prime Minister 72 (385) 66 percent in 2000) and to the drop in Canada’s youth are not more cynical However, it is not clear why this lack Could not identify the Prime Minister 47 (58) turnout among the 1963–1972 cohort than other Canadians about democ- of knowledge and limited interest are Political participation involves Political cynicism: Those elected to (from 74 percent in 1990 to 69 percent racy and politics, and indeed are, in more pronounced today than in previ- more, however, than simply voting. Parliament soon lose touch with the people in 2000). Generational effects, then, some cases, more satisfied with the ous generations. This is due in part to Involvement in political parties has Agree 69 (307) are outpacing life-cycle effects. workings of the Canadian political the limited attention devoted to the exhibited a similar decline among Disagree 72 (106) 8 system than members of previous question in Canadian research. young Canadians, a trend that is also Importance of voting Explaining low youth generations. As shown in Table 2, likely to continue over time. Only two Essential 88 (153) voter turnout when asked whether elected officials Young Canadians are also more likely percent of those aged 18 to 27 in the Very important 64 (207) “soon lose touch with the people”, to believe that voting is simply not 2000 IRPP survey indicated that they Somewhat or not at all 44 (78) Evidence of dropping turnout levels the youngest Canadians did not reveal important, with only 75 percent of the had ever been members of any political Interest group member among youth in Canada mirrors the themselves to be the most cynical youngest respondents in the IRPP party, a drop from eight percent in 1990 Yes 82 (49) 6 9 trend in other advanced democracies. among Canadians. Moreover, when survey suggesting that voting was among similarly-aged respondents. No 66 (395) Some have been quick to suggest that asked how satisfied they are with elec- essential or very important (Table 2). Interestingly, the ratio of interest group Most effective way to work for change this is symptomatic of an increased tions, the youngest age group reveals Clearly, such attitudes directly shape to political party involvement among Join a political party 71 (79) young Canadians is much higher than Join an interest group 70 (285) Table 2 for other Canadians. Among those Note: Entries are percentage of respondents; the number of respondents is indicated in parentheses. Political Interest, Knowledge, Importance of Voting and Cynicism, by Age Group, 2000 aged 18 to 27 in the IRPP survey, for Data are from the IRPP survey [Howe and Northrup, 2000 (see note 2)]. every respondent who indicated having Age group % 18–27 % 28–37 % 38–47 % 48–57 % over 57 been a member of a political party, 4.5 Follow politics very or fairly closely 41 5958 64 68 indicated membership in an interest Variations in voter turnout with low and high family incomes and, Correctly identify the Prime Minister 84 89 93 93 89 group. In comparison, the interest among youth to some extent, women.11 Variation in Correctly identify the Minister of Finance 22 46 46 61 65 group to party membership ratio reported turnout by levels of political Voting essential or very important 75 85 8986 91 among respondents over 57 years of Examination of reported turnout across knowledge and interest is, however, Those elected to government soon lose touch with the people 71 75 81 70 67 age was only 0.3 to 1. Thus, while demographic and other groups (see much greater. While 81 percent of 10 Very or fairly satisfied with elections 81voter turnout 7968 might be down 66 among 72Table 3) reveals that not all young young respondents with some political young Canadians, there is reason to Canadians are avoiding the polls. Low interest reported voting in 1997, the Note: Entries are percentage of respondents responding in the identified category. The second to last row reports those respondents who strongly or somewhat agreed with the statement. Data are from the IRPP survey [Howe and Northrup, 2000 (see note 2)]. believe that traditional partisan politics turnout is greatest among those with rate drops to 55 percent among those has also been affected. no post-secondary education, those reporting little or no interest. Similarly,

16 Electoral Insight July 2003 17 level of cyni- the highest level of satisfaction of all Table 1 7 cism. Canada’s age groups, 81 percent. Table 3 Generational Differences in Reported Turnout, Variation in Reported Turnout Among Canadians 22 to 37 Years 1990–2000 youth have of Age, 2000

16 Electoral Insight July 2003 17 less than half of respondents who Instead, the answer may lie in the very they see politics and elections as be most effective. The challenge is could not identify the Prime Minister success of governments in reducing unimportant, rather than because of a thus twofold: to develop an interest reported voting in 1997. In comparison, their perceived responsibility towards strong belief that politicians and politics in politics and elections among the over 70 percent of those who could citizens. are not addressing issues of importance current generation of young voters identify him went to the polls. Equally to them. This conclusion is reinforced and, second, to commit to fostering revealing is the fact that 88 percent of In the end, however, what is clear by evidence that the many young just such an interest among the next those who believed that voting was Photography Photo: Paul Toogood is that many, if not most, young Canadians who consider interest groups generation of voters, to arrest any essential reported having voted in Canadians avoid the polls because of to be the most effective instruments of further decline in voter turnout 1997; among those who attached little political apathy rather than cynicism. political change vote at rates similar to levels. importance to the vote, the reported They choose not to vote because those who consider political parties to turnout level drops to 44 percent.

NOTES Cynicism, on the other hand, does little to explain low turnout among 1. Examples include André Blais, Elisabeth 7. One should note, however, that a significant 13. The Chief Electoral Officer has announced Canadian youth. As shown in Table 2, Gidengil, Richard Nadeau and Neil Nevitte, share of respondents in the youngest age that measures designed to make polling there is little difference in the turnout Anatomy of a Liberal Victory: Making Sense group, 43 percent, answered “don’t know” stations and information about advance of the 2000 Canadian Election rate between respondents who agree (Peterborough, to this question. By comparison, only voting and mail-in ballots more accessible Ontario: Broadview Press, 2002); Henry 21 percent among those aged 48–57 are being adopted specifically to increase that those elected to Parliament soon about politics and believe less strongly today than in the past. If young people’s Milner, “Civic Drop-outs? What Young answered similarly. participation among Canada’s youngest lose touch with the people (69 percent) that voting is essential. This explanation time is more limited in today’s world, Citizens Know and Don’t Know About voters. See Elections Canada news 8. One exception is Paul Howe, “Name and those who disagree with the state- does not, however, take us very far, however, then perhaps increasing the Politics,” paper presented at the annual release dated March 21, 2003, at That Premier: The Political Knowledge ment (72 percent). Similarly, reduced for it begs the question of why this is ease with which they might vote could meeting of the American Political Science www.elections.ca. of Canadians Past and Present,” paper 13 Association, Boston, Massachusetts, turnout levels are not the result of the case. It might help to consider that result in higher participation rates. presented at the annual meeting of the 14. André Blais, To Vote or Not to Vote: August 26 – September 1, 2002; and my young people turning away from political participation depends directly Canadian Political Science Association, The Merits and Limits of Rational Choice own, “Generational Patterns in the Political electoral and partisan politics towards on ability, opportunity and motivation.12 In addition, value might come from Toronto, May 29–31, 2002. Theory (Pittsburgh: University of Opinions and Behaviour of Canadians,” interest group and social group politics. We have seen that young people who focusing on motivation – or lack Pittsburgh Press, 2000). Policy Matters Vol. 2, No. 5 (October 2001). 9. Table 13 in O’Neill, “Generational In fact, the turnout rate is higher among lack the tools provided by education thereof – as an explanation for lower Patterns,” p. 35. 2. York University’s Institute for Social are voting at lower levels of participation among youth. Research interviewed 1,278 Canadians for levels due, perhaps, The lack of motivation for voting – 10. Table 3 provides reported turnout levels … reduced turnout levels are not the this survey. Full details can be found in for 1997 for respondents between 22 and to the fact that the that is, no reason or stimulus justifying Appendix 1 of Paul Howe and David 37 years of age across various categories in result of young people turning away from political system the expenditure of time and energy, Northrup, “Strengthening Canadian the IRPP survey (N = 448). The reported electoral and partisan politics towards seems remote and however limited – might help to Democracy: The Views of Canadians,” turnout rates among those between 22 and complex. But it is explain the decreasing turnout rates. Policy Matters Vol. 1, No. 5 (July 2000). 27 years of age and those between 28 and interest group and social group politics. 37 years were 66 percent and 69 percent not clear why today’s André Blais has argued that an impor- 3. Blais et al., Anatomy of a Liberal Victory, respectively. young Canadians tant motivation for voting is a sense of p. 46. 14 11. This examination provides first-order those who indicate they have been would find the system any more complex duty. A sense of duty may be thought 4. O’Neill, “Generational Patterns,” differences in turnout. A more rigorous members of an interest group. Indeed, than young Canadians 10 years ago. of as one side of a reciprocal relation- pp. 34–35. those who believe that interest groups ship: citizens agree to vote in return analysis would control for the impact of 5. This survey was conducted by the Royal various factors on these relationships and are the most effective way to work for Alternatively, limited opportunities for for the benefits provided by govern- Commission on Electoral Reform and could result in different conclusions. change are as likely to vote as those political participation, as reflected in ments. However, more than 10 years Party Financing (the Lortie Commission). Women, for instance, report lower levels of who believe political parties are the the electoral system’s tendency to dis- of Canadian governments highlighting See André Blais and Elisabeth Gidengil, political interest than men and controlling most effective mechanisms of change. tort voters’ choices in the translation the need for fiscal restraint and balanced Making Representative Democracy Work: for this difference could lead to disappear- to seat shares, might help to explain budgets might have left many young The Views of Canadians (Toronto: Dundurn ance of the gender gap in reported turnout. Press, 1991). Concluding reflections increased participation within non- Canadians with less than a clear sense 12. See Patrick Fournier, “The Uninformed traditional political organizations such of what exactly governments do for 6. See Russell J. Dalton, Citizen Politics: Canadian Voter” in Joanna Everitt and How, then, to make sense of these as interest groups and social movements. them to deserve their duty in return. Public Opinion and Political Parties in Brenda O’Neill, Citizen Politics: Research changed patterns of participation But this helps little to explain drops in The answer to the paradox of falling Advanced Western Democracies, 2nd ed. and Theory in Canadian Political Behaviour among Canada’s youth? Young people electoral participation among young turnout rates among the young may (Chatham, New Jersey: Chatham House (Don Mills, Ontario: Oxford, 2003), Publishers, 1996). pp. 92–109. are less likely to vote because they are people over time, since there are no thus lie outside of factors historically less interested in politics, know less fewer opportunities for participation evaluated as explanations for turnout.

18 Electoral Insight July 2003 19 less than half of respondents who Instead, the answer may lie in the very they see politics and elections as be most effective. The challenge is could not identify the Prime Minister success of governments in reducing unimportant, rather than because of a thus twofold: to develop an interest reported voting in 1997. In comparison, their perceived responsibility towards strong belief that politicians and politics in politics and elections among the over 70 percent of those who could citizens. are not addressing issues of importance current generation of young voters identify him went to the polls. Equally to them. This conclusion is reinforced and, second, to commit to fostering revealing is the fact that 88 percent of In the end, however, what is clear by evidence that the many young just such an interest among the next those who believed that voting was Photography Photo: Paul Toogood is that many, if not most, young Canadians who consider interest groups generation of voters, to arrest any essential reported having voted in Canadians avoid the polls because of to be the most effective instruments of further decline in voter turnout 1997; among those who attached little political apathy rather than cynicism. political change vote at rates similar to levels. importance to the vote, the reported They choose not to vote because those who consider political parties to turnout level drops to 44 percent.

18 Electoral Insight July 2003 19 Youth Participation in Elections

(a percentile score, to be precise), time, even as the younger cohorts of political knowledge on electoral based on how their knowledge level have aged (what improvement there participation among those who have compared to other respondents in the is seems to come when cohorts are more recently joined the electorate. same survey. Table 1 uses these stand- relatively young, after which the Breaking down the data for various ardized scores to capture patterns of knowledge gap more or less stabilizes). birth cohorts,4 Table 2 reports the gap political knowledge over time, reporting The pattern is more suggestive of cohort in voting turnout across a series of Electoral Participation the gap in knowledge between various effects – sizable and persistent gaps elections between those with high birth cohorts and an older comparison between those born at different points – levels of political knowledge and those group (those born between 1926 and than a life-cycle pattern of growing with low levels. The turnout gaps, it and the Knowledge Deficit 1938). Two points stand out: first, there knowledge with advancing age. would appear, are substantially larger are large differences in political knowl- among younger cohorts than older ones. Paul Howe edge between the younger cohorts and This is only one way, however, in which For example, looking at the 1976 Assistant Professor, Department of Political Science, University of New Brunswick the comparison group, with the gaps political knowledge is implicated in the to 1982 cohort in the 2000 election, tending to grow larger with each suc- cohort effects that have depressed voter turnout was 46.9 points lower among cessive cohort; and second, those gaps turnout in the past several elections. the least knowledgeable respondents have been closing only marginally over A second lies in the heightened impact than the most knowledgeable (based Since the federal election of November 2000, considerable participation – is not, however, especially critical to current on reported turnout of 41.3 percent attention has been directed to the declining participation of concerns, since it is not implicated in the overall decline in the former group and 88.2 percent younger voters in Canadian elections. One recent estimate in voter turnout.2 More important in that regard are signifi- Table 1 in the latter). In short, there are two A Growing Knowledge Deficit, 1984 to 2000 for the 2000 campaign, which corrects for the tendency of cant generational differences that have emerged in the past dynamics working together to drive surveys to produce inflated estimates of voting, puts turnout 20 years or so, between those born in the 1960s and 1970s 1984 1990 1993 1997 2000 turnout down among younger among those aged 18 to 24 at about 25 percent, in an elec- and older Canadians. Turnout among those born in the 1939–1954 –4.6 –4.6 –4.5 –4.7 –2.6 cohorts: lower levels of knowledge, tion that saw overall participation drop to 64 percent,1 the 1970s, for example, who mostly joined the electorate in the 1955–1966 –15.4 –11.7 –8.9 –11.2 –10.7 the effects of which are magnified by lowest level since the Second World War. In trying to 1990s, is about 20 points lower than turnout was among 1967–1971 –23.7 –16.2 –14.4 –16.1 the escalating impact of knowledge on identify the reasons for voter withdrawal and strategies to pre-baby boomers (those born before 1945) when they were 1972–1975 –26.2 –19.1 –23.3 participation. The net result is that win them back, the question of flagging youth participation young adults. As these younger birth cohorts have come to 1976–1979 –24.0 –26.7 political knowledge is a critical must figure prominently. account for a greater proportion of the electorate, their 1980–1982 –33.3 factor – perhaps the critical factor – failure to turn up on election day has started to pinch, Entries represent the difference between the mean knowledge level for each cohort and a comparison underlying cohort differences in Researchers looking at the phenomenon in greater depth accounting for much of the aggregate decline in voter cohort (1926–1938), where political knowledge is measured on a 0 to 100 scale. voter turnout. Sources: 1984, 1993, 1997 and 2000 Canadian Election Studies and The Survey of Attitudes About 3 have discovered that it is not as novel as the recent flurry turnout over the past several elections. Electoral Reform (1990). Further information on these studies is provided in the Acknowledgements. of attention would suggest. Looking at surveys conducted To this conclusion, the objection might during federal elections from 1968 to 2000, they have iden- Political knowledge be raised that the problem surely runs tified a long-standing tendency for Canadians to vote less deeper, that the knowledge deficit is Table 2 in early adulthood than in later stages of life. Between the A pressing task for further research is to sift through the The Growing Impact of Knowledge on Electoral Participation, but a symptom of a more pervasive ages of 20 and 50, there is roughly a 15-point increase in various factors associated with age differences in voter 1984 to 2000 malaise, namely the wholesale disen- voter turnout. This – the life-cycle effect in electoral turnout to determine which underlie these important gagement of young Canadians from Cohort 1984 1990 1993 1997 2000 cohort effects and which are responsible for the less critical politics. In this alternative view, the pre-1926 10.6 9.1 11.9 15.6 4.2 life-cycle pattern. One cohort-related factor that stands out problem is first and foremost motiva- 1926–1938 12.5 7.7 9.1 12.3 20.4 is a significant gap in levels of political knowledge between tional: young Canadians do not vote 1939–1954 8.3 8.4 10.5 12.6 17.6 older and younger cohorts. In surveys conducted at the time (and do not know much about politics) 1955–1966 27.7 19.6 21.4 21.6 24.2 of the 1984, 1993, 1997 and 2000 general elections, as well simply because they are not interested 1967–1975 10.5* 31.1 33.8 31.9 as a separate study conducted in 1990, Canadians were asked in politics. However, a similar analysis 1976–1982 35.8* 46.9 political Photo: Paul Toogood Photography Photo: Paul Toogood a wide variety of factual questions that tapped into their to the above, looking at levels of Total 18.2 13.8 21.4 23.3 32.3 knowledge of Canadian politics – questions such as the interest across birth cohorts over time, names of political leaders and the campaign promises of *N < 20 for high knowledge category undermines this contention. When it Entries represent the gap in voting turnout between those with low political knowledge and those with different parties. Each survey included a different bundle of high knowledge, each representing roughly one third of total respondents. Some cells are empty because comes to political interest, cohort questions, so in order to draw comparisons, it is necessary there were no respondents in those cohorts for those years. effects are relatively weak. Instead, Sources: 1984, 1993, 1997 and 2000 Canadian Election Studies and the Survey of Attitudes About to standardize in some fashion. A simple method is to assign Electoral Reform (1990) political interest exhibits a stronger respondents on each survey a ranking between 0 and 100 life-cycle pattern: low levels of interest

20 Electoral Insight July 2003 21 Youth Participation in Elections

20 Electoral Insight July 2003 21 in early adulthood that pick up Civics education facts and sending them on their way; on a 0 to 100 scale. For those under age events of the day might be shown in substantially as cohorts age. When equally important are the skills and 30, the impact of television viewing is class and serve as the basis for debate the various pieces of information are The reasoning above predilections acquired in school that quite dramatic: a 33-point difference and discussion. To those wedded to

pulled together and plugged into a leads to the question Photo: Getty Images underwrite a process of continual in political knowledge separates those the printed word, this may seem like model of electoral participation over of civics education. learning after graduation. The objective in the low attention category from a strategy of capitulation, but it may time, the conclusions are reinforced: Are we doing enough should be, as Henry Milner puts it, to those in the high attention group. prove to be the most effective way of political interest has its greatest impact in our schools to instill habits of “civic literacy” so that The effect of television viewing is also sustaining a basic level of political on the life-cycle pattern in electoral educate young people citizens naturally and effortlessly keep considerable in the adjacent category, knowledge among generations raised participation, whereas political about politics? And if themselves abreast of politics.9 the 30- to 39-year-olds, but diminishes primarily on electronic media. knowledge principally explains we started doing more, considerably in the older age groups. cohort differences.5 would it have positive One important habit of civic literacy Reading newspapers also has a consid- Another strategy is to encourage use effects on political often highlighted is newspaper reading. erable impact on political knowledge of the Internet as a source of political Some reflection on the causal linkages knowledge and elec- Newspapers are an important source of in all groups, but for the younger information. Though not a great deal between knowledge and interest also toral participation? political information, but younger respondents – those 18 to 39 – follow- is currently known about its impact undermines the notion that motivation The literature in this generations are less inclined to pick ing politics on television makes a big- on levels of political knowledge,11 must be the prime mover in matters area is somewhat them up. There are, however, other ger difference, particularly when the consulting reliable news Web sites on of political disengagement. If it seems ambiguous. There are suggestions curriculum. Where civics courses are strategies that deserve at least equal variables are subjected to controls in a consistent basis could become as reasonable to suggest that interest that the long-term impact of civics optional, the methodological problem emphasis. In particular, television appears multivariate analysis.10 effective as reading newspapers regu- provides the incentive to learn about education is less than overwhelming, of self-selection arises: students with to be an especially important medium larly. Again, instilling the appropriate politics, it seems equally reasonable especially if it comes too early in the pre-existing knowledge of and interest for acquiring political knowledge, One part of a general strategy to raise habits early, as part of an enhanced to suppose that knowledge renders educational cycle.6 But broad conclu- in politics are more likely to take the among younger Canadians. Table 3, levels of political knowledge among civics curriculum, would likely prove politics more intelligible and hence sions can obscure finer differences. courses than others, making it difficult based on the 2000 Canadian Election young Canadians, then, should be to an effective way of piggy-backing on a more interesting. Likely the two are More needs to be known about the to know what effect the courses actually Study, reports levels of political knowl- shift the viewing patterns of young trend – extensive Internet use – that linked in a virtuous circle, interest potential impact of full-throttled civics have. With self-selection removed from edge in different age groups as a function people so that they pay greater attention is already well entrenched among generating knowledge and knowledge education in a country that has never the equation, more definitive assess- of people’s attention to the federal to politics on television. The best place younger generations. piquing interest, with some momentum emphasized the subject and appears to ment of civics education – its impact election campaign on television; polit- to start is probably in school. In the on either side potentially serving to be trailing other nations in its political on levels of knowledge, political ical knowledge, as above, is measured spirit of building habits of civic literacy, These suggestions for ways to raise voter start the circle spinning. Common knowledge capacities.7 engagement and participation – should watching turnout address one dimension of the sense would suggest that an injection be possible. And soon too, as at least Table 3 broadcasts of issue – the lower levels of knowledge of knowledge could be especially Fortunately, we have a ready-made some of the first graduates should be Attention to Politics on Television politically exhibited by younger Canadians. But effective at an early age – adolescence, case study at hand: the new civics eligible to vote in the next federal or and Political Knowledge oriented the second component, the heightened curriculum intro- provincial election. Investigating these Age Attention to politics Political knowledge programming impact of knowledge on voting among duced in Ontario matters and disseminating the results on television (0 to 100 scale) might be woven younger generations, is equally critical. Common sense would suggest that an injection high schools. Since so that other provinces might learn 18–29Low 21 into the civics This part of the problem may be a of knowledge could be especially effective at an 2000, all Grade 10 from the Ontario experience would be Moderate 35 curriculum. Just tougher nut to crack. students must take one concrete step to help address the High 54 as students are early age – adolescence, say – when interests a course simply problem of declining electoral partici- 30–39Low 38 sometimes It seems perfectly reasonable that are still relatively fluid and malleable. entitled “Civics” as pation among young Canadians. Moderate 45 required to political knowledge would have some part of the Canadian High 64 read the news- influence on electoral participation. and World Studies Newspapers, television 40–49Low 43 paper each day If people are drawn to cast a vote to say – when interests are still relatively program.8 What makes this initiative and Internet Moderate 51 for their civics exercise influence over public policy fluid and malleable. Practical consider- especially valuable, in more ways than High 61 class, so they and those who formulate it, it only ations also suggest that emphasizing one, is its compulsory nature. This In reflecting on the potential role of 50 plus Low 51 might be told stands to reason that people unfamiliar political knowledge is the sounder means, first, that all students, including civics education in enhancing levels Moderate 58 (and probably with the issues and political players strategy: it seems a less daunting task those who might otherwise avoid the of knowledge and participation, it is High 65 to greater will be less inclined to vote. Indeed, to teach teenagers something about civics program, will be given a basic important to bear in mind its multiple Attention to politics measured by attention to federal election campaign on effect) to watch what is probably most striking about politics than to cajole them into grounding in the subject. It also offers channels of influence. As others have television over last few days (a 0 to 10 scale, with 0 to 3 coded as “low”, a national the pattern of voting and not voting 4 to 6 coded as “moderate”, and 7 to 10 coded as “high”). caring about a subject they find an advantage to researchers interested noted, there is more to civics education Source: 2000 Canadian Election Study newscast each across cohorts is not that knowledge categorically boring. in assessing the effects of the new than simply stuffing students full of night. Or the makes such a big difference to

22 Electoral Insight July 2003 23 in early adulthood that pick up Civics education facts and sending them on their way; on a 0 to 100 scale. For those under age events of the day might be shown in substantially as cohorts age. When equally important are the skills and 30, the impact of television viewing is class and serve as the basis for debate the various pieces of information are The reasoning above predilections acquired in school that quite dramatic: a 33-point difference and discussion. To those wedded to

22 Electoral Insight July 2003 23 duty among younger Conclusion conducted for the Royal Commission (1990), André Blais and Elisabeth Election Study, André Blais, Elisabeth age groups.13 This is on Electoral Reform and Party Gidengil; the 1993 Canadian Election Gidengil, Richard Nadeau and Neil entirely consistent The analysis in this article is admittedly Financing. Principal investigators Study, Richard Johnston, André Blais, Nevitte. The original investigators, with broader trends speculative, but it seems a plausible for the studies are as follows: Henry Brady, Elisabeth Gidengil and the study sponsors and the ISR bear highlighted in vari- account of the rising importance of 1984 Canadian Election Study, Neil Nevitte; the 1997 Canadian no responsibility for the analyses and ous studies. Younger knowledge to political participation. It R. D. Lambert, S. D. Brown, J. E. Curtis, Election Study, André Blais, Elisabeth interpretations presented here.

Photo: Paul Toogood Photography Photo: Paul Toogood generations are less also carries an important implication: B. J. Kay and J. M. Wilson; the Survey Gidengil, Richard Nadeau and Neil inclined to take cues the decline in electoral participation of Attitudes About Electoral Reform Nevitte; and the 2000 Canadian and directions from among younger Canadians is partly those around them; rooted in a pervasive culture shift that they are more self- has altered the basis for social and NOTES directing, more political action. Self-directed behaviour 1. Jon H. Pammett and Lawrence LeDuc, 7. Results from an international survey of geo- 13. Blais, To Vote or Not to Vote, p. 97. autonomous in their is the norm nowadays, and this will “Explaining the Turnout Decline in political knowledge among 18- to 24-year- 14. See Neil Nevitte, The Decline of Deference: decision making, less not easily be undone. A change in the Canadian Federal Elections: A New Survey olds place Canada third from the bottom of Lack of knowledge about the issues and the contestants in politics Canadian Value Change in Cross-National is much less likely to discourage older Canadians from voting of Non-voters” [on-line research report], a group of nine countries, ahead only of likely to defer to motivational underpinnings of voting Perspective (Peterborough, Ontario: than young persons. 14 Elections Canada (March 2003), p. 20, Mexico and the United States. See outside authority. and not voting is probably something Broadview Press, 1996) and Russell Dalton, available at www.elections.ca under “Geography Quiz Stumps College-Age When it comes to that simply has to be accepted. Citizen Politics: Public Opinion and Political Electoral Law & Policy. The 64 percent Canadians,” The Globe and Mail, Parties in Advanced Industrial Democracies participation among younger cohorts; voting or not voting, younger people are figure for overall turnout is the corrected November 21, 2002, p. A14. (London: Chatham House Publishers, it is that knowledge makes such a small more likely to be guided by their own But if this part of the equation cannot figure produced by Elections Canada after 8. Details are provided in Ontario, Ministry of 2002), especially chapters 1 to 6. difference among older generations. lights than directed by social pressures. be altered, it can at least be turned to the 2000 election, once the National Education, “The Ontario Curriculum, Register of Electors had been purged of The gap in turnout between more and our advantage. The fact that knowledge Grades 9 and 10: Canadian and World duplicates (the original figure was just over less knowledgeable individuals in the It is in this context that political strongly influences electoral participa- Studies”, pp. 46–53, available at 61 percent). older age categories has often been knowledge comes to the fore. Self- tion in younger cohorts means that http://www.edu.gov.on.ca/eng/document/ around 10 percentage points in recent directed citizens are only likely to vote efforts to raise levels of political 2. The logic here is that the life-cycle effect curricul/secondary/canadian/canasc.pdf could only diminish overall turnout if elections (see Table 2), which means if they feel it will represent a personally knowledge could have a very sizable 9. Milner, Civic Literacy, especially chapters 7, young people somehow came to account for that roughly 80 to 85 percent of politi- impact on turnout 8 and 9. a larger portion of the electorate. But, of cally ill-informed, older citizens choose levels. Sorting The fact that knowledge strongly influences course, the age distribution of the electorate 10. These results are presented in greater detail to vote despite this evident debility. through the various is more or less constant over time. in Paul Howe, “Name That Premier: The electoral participation in younger cohorts factors that have Political Knowledge of Canadians Past and 3. André Blais, Elisabeth Gidengil, Neil Civic duty contributed to Present,” paper presented at the annual means that efforts to raise levels of political Nevitte and Richard Nadeau, “The meeting of the Canadian Political Science declining participa- Evolving Nature of Non-Voting: Evidence knowledge could have a very sizable impact Association, Toronto, May 29–31, 2002, We can only surmise that something tion among young from Canada,” paper presented at the pp. 17–19. else – something other than the desire on turnout levels. voters can help pin- annual meeting of the American Political to register one’s views on the issues point where policy Science Association, San Francisco, 11. Internet use is included in the multivariate of the day and the leaders who will leverage exists; it August 30 – September 2, 2001. analysis included in Paul Howe, “Name That Premier,” in Table 4, p. 31. It has a manage them – sustains electoral meaningful act. For those who know can also help identify forces that might 4. The cohorts from Table 1 are collapsed into positive impact, though its effect on politi- participation among older generations. little about politics, this is unlikely be harnessed to put that leverage to larger bands of birth years in Table 2 to cal knowledge is smaller than that of either increase sample sizes and produce more That something else, others have sug- to be the case – ticking one box or maximum effect. newspaper reading or TV viewing. The 12 reliable estimates. gested, is a strong sense of civic duty. another with little information to Internet measure in the survey used for that It is the responsibility of every citizen, guide them would be an empty, even Acknowledgements 5. This analysis has been conducted using analysis, however, is relatively imprecise, immersed in the issues or not, to cast a counter-productive, gesture. Learning All datasets were made available by election study data from 1984, 1988, 1993, simply asking people if they ever use the ballot on election day. For voters who something at election time is always the Institute for Social Research (ISR) 1997 and 2000. These results, along with Internet to become informed about politics. the cohort analysis of political interest, will More precise measurement – which Web think this way, going to the polls is an option, but not a very feasible one at York University. The 1984, 1993, be detailed in a forthcoming paper by the sites are consulted and how often – might more a reflexive instinct than a for someone starting from scratch; the 1997 and 2000 Canadian National author. produce stronger results. conscious decision. learning curve would be very steep Election Studies were funded by the Civic To Vote or Not to Vote: The indeed. It is in this way that knowledge, Social Sciences and Humanities 6. On this point, see Henry Milner, 12. André Blais, Literacy: How Informed Citizens Make Merits and Limits of Rational Choice Theory Those who highlight the importance in the absence of a strong sense of civic Research Council of Canada Democracy Work (Hanover, New (Pittsburgh: University of Pittsburgh Press, of civic duty to voting have at the same duty, comes to assume such influence (SSHRCC). The Survey of Attitudes Hampshire: University Press of New 2000), pp. 92–114. time identified a diminished sense of over the voting decision. About Electoral Reform (1990) was England, 2002), pp. 118–121.

24 Electoral Insight July 2003 25 duty among younger Conclusion conducted for the Royal Commission (1990), André Blais and Elisabeth Election Study, André Blais, Elisabeth age groups.13 This is on Electoral Reform and Party Gidengil; the 1993 Canadian Election Gidengil, Richard Nadeau and Neil entirely consistent The analysis in this article is admittedly Financing. Principal investigators Study, Richard Johnston, André Blais, Nevitte. The original investigators, with broader trends speculative, but it seems a plausible for the studies are as follows: Henry Brady, Elisabeth Gidengil and the study sponsors and the ISR bear highlighted in vari- account of the rising importance of 1984 Canadian Election Study, Neil Nevitte; the 1997 Canadian no responsibility for the analyses and ous studies. Younger knowledge to political participation. It R. D. Lambert, S. D. Brown, J. E. Curtis, Election Study, André Blais, Elisabeth interpretations presented here.

24 Electoral Insight July 2003 25 Youth Participation in Elections

inclined to register, even the most • They often have not developed A number of advantages to the provi- ambitious registration effort will pro- consistent patterns of political sional register are worth considering. duce lower levels of registration among participation. First, it provides the election authority that group than for the electorate as a • They represent to a very considerable with a considerably longer period of whole. Consequently, it is common for extent the future citizens of a democ- time in which to contact, and be Increasing Youth targeted registration drives to include racy, and thus their active engagement contacted by, those who are coming of elements of political education to is tied to the very success of the voting age. It has been estimated that reduce such disinclination, and to pro- political system. approximately two percent of the elec- Voter Registration vide positive reasons for the electorate torate attains voting age every year. It to choose to register. Such campaigns For these and other reasons, increasing is reasonable to assume that, for any often use symbols and images that are the political participation and voter given electoral event, a very large viewed positively by the targeted registration of young electors is desirable. proportion of those who are becoming Best Practices in Targeting group, make appeals to the importance It is in this context that the Canadian eligible to vote within three months of the democratic process, or highlight Chief Electoral Officer recently (for example) of the election would not the power that comes from expressing announced initiatives to increase voter be included in the register of electors. Young Electors a political preference (for example, registration among Canadian youth.1 Therefore, approximately 0.5 percent with slogans such as “Make Your Voice A variety of instruments are available of the electorate (i.e. those turning 18 Keith Archer Count”, or “Make Your Voice Heard”, for a targeted youth registration initia- in those three months) would need to Professor, Department of Political Science, University of Calgary which have been used by a number of tive, some of which have been adopted register during the revision period or election authorities). in Canada and some of which are on polling day. Providing a provisional worthy of consideration by Canada’s register of electors would give these Best practices in targeted election authority. The following same new electors a full year to be One of the most consistent findings of two generations of to reflect the collective preferences and priorities of such youth registration section describes a number of such entered in the register, likely decreasing research on political behaviour in a broad range of settings is groups of voters. targeting strategies. that some citizens are more likely than others to be engaged Efforts to increase the registration of and involved in politics. If variations in political activity For the individual, political participation is an expression young electors are among the most Provisional were entirely random, this particular variation could be of belonging to a political community, of having one’s say common targeted enrolment strategies registration discounted as perhaps an interesting but insignificant feature in how one ought to be governed. Political activity can used by election authorities. The young Photo: Bérubé Roger of democratic political life. In fact, variation in political lead to a greater sense of support for the political community often are considered one of the most An obvious method activity is anything but random. Some groups of voters are and for the elites in positions of power. It gives citizens an important segments of the electorate of increasing the less likely to be involved in politics, and less likely to be increased sense of the legitimacy of the electoral process and upon which to focus. There are several registration of elec- involved across a broad spectrum of political systems and of their own roles as members of the political community. reasons for this. tors who are coming settings, than other groups. Among the groups with the • Youth typically have one of the of voting age is to lowest levels of participation are those with the lowest Further to the consistent finding that some electors are lowest rates of voter registration. extend the effective economic means, the young, members of the Aboriginal less likely to participate in politics is the finding that those • Youth are often among the most period in which Canada’s Chief Electoral Officer, Jean-Pierre Kingsley, announced community, and newly eligible electors. same segments of the electorate are less likely to be regis- highly mobile segments of the they can enrol, in measures to address declining voter turnout among youth, at a tered to vote. This has led many election authorities to population, moving frequently to particular by adding symposium on electoral participation in Canada held at Carleton That levels of participation vary systematically, and seek ways of encouraging registration among groups of enrol in post-secondary education a year in which they University in Ottawa on March 21, 2003. are much lower among certain groups, raises important citizens with historically lower levels of participation. or simply as part of a lifestyle of can be placed on a questions in a democracy. The assumption in democratic Election authorities typically seek to increase the registra- securing accommodation that provisional list of electors. This registration activity during the revision political systems is that political participation serves tion of such electors through targeted registration campaigns, changes due to a desire to travel, method is used in both Australia period. Also, spreading out the work important functions both for the political system and for which can vary considerably in the creative means by change jobs, etc. and New Zealand, as well as in some over a longer period would reduce the the individual. For the system, the participation of citizens which authorities attempt to reach these hard-to-reach • They often have not developed a U.S. states, and enables young people spike in the activity of the election results in selection among competing candidates and com- groups. Even the most aggressive targeted campaigns, sense of themselves as full members to complete voter registration forms authority during the revision period, peting political ideas. In short, it affects the types of policies however, have limited success in enrolling all members of a political community or a strong at age 17. The election authority thereby easing personnel management. and issues that are pursued and advanced by government. of the electorate. stake in their community of residence automatically moves those on the Data provided by the Australian The groups who participate less will have less impact on (as opposed, for example, to home- provisional list to the list of electors Electoral Commission (AEC) indicate the policies pursued or the ideas advanced by government. A related consideration is the desire of the hard-to-reach owners or parents of children in the upon their achieving the age of majority that approximately 16 percent of Consequently, the outputs of government will be less likely electorate to register to vote. If members of a group are not school system). (or legal voting age). 17-year-olds are included on the

26 Electoral Insight July 2003 27 Youth Participation in Elections

26 Electoral Insight July 2003 27 provisional list and, in the state of possible in post-secondary settings. and probably preferable strategy, is will automatically be placed on the information, register for the first time, The recently created Electoral Victoria, fully 27 percent of 17-year- Without the existence of a provisional to hold such events separate from the electoral roll upon reaching 18. or re-register after leaving the register Commission of the United Kingdom, olds are on the provisional list.2 It is list of electors for 17-year-olds, a regis- political clubs, either on an annual basis, On June 30, 2002, 16 percent of for a period. as one of its first initiatives, has also significant that the Victoria Electoral tration drive in high schools is likely or in the revision period preceding an 17-year-olds in Australia were on put in place on-line voter registration Commission sends birthday cards and to be much less effective, since a large electoral event. While this strategy has the provisional roll, compared to In Australia, while registration forms forms for British electors.7 As in the enrolment forms to individuals on proportion of students would not be of obvious staffing implications for the 27 percent of 17-year-olds in Victoria. for all states are available on the AEC Australian case, the forms must be their 17th birthdays, an issue to which voting age. election authority, some election Similarly, 56 percent of Australian Web site,6 the elector must first print printed and completed, with signature we return below.3 authorities have found it sufficiently 18-year-olds were enrolled, compared and complete the form and then send but without a witness, and sent to the A number of election authorities have effective to justify the additional to 68 percent of those in Victoria. it to the state or district enrolment district enrolment office. There is no School-based registration developed political education material expenditure. Therefore, this initiative appears to office through the postal service or by provision for the elector to check his drives specifically targeted to increase regis- account for an increased enrolment fax, or deliver the form in person. In or her registration information on-line, tration among the youth electorate. Birthday cards of approximately 10 percent of those addition to the extra step of printing and there is a relatively lengthy period It has become increasingly popular for In its review of practices of the AEC, eligible.5 and posting the form, Australian (seven weeks) for the processing of targeted youth enrolment activities to the Australian National Audit Office There are a variety of ways in which an registration informa- include a campaign for university and recommended the AEC collaborate election authority may become aware On-line voter registration tion. One of the college campuses. One novel method with educational authorities to develop that an elector has achieved voting Canada is among the most “wired” countries main reasons for used in Australia, and related to the curricular materials aimed at increasing age – for example, through data files The availability of personal computers in the world in terms of computer usage, the absence of com- existence of a provisional list of elec- the proportion of young electors shared with a motor transport authority, with very substantial storage capacity, which makes it among the most desirable pletely interactive tors for 17-year-olds, is to enter into enrolled.4 Elections Canada recently a tax authority or some other civic coupled with increasingly reliable net- on-line registration agreements with high schools for regis- concluded a partnership arrangement authority. In some instances, this work connections with high bandwidth places to introduce on-line access to voter is the highly decen- tration activities. The election authority with the Cable in the Classroom ini- information is used to generate a data transmission, and high accessibility registration. tralized character of pays a small per capita amount of tiative to encourage youth to prepare mail-out to electors coming of voting to computers in homes, at schools and the electoral register. funding to the school, based on the public service announcements to age, which may also include political in many public places (such as Internet Should the proposal number of students at the school who promote participation by their peers. education material, and possibly a cafés, government offices and the enrolment forms require that an by the Electoral Commission for a are on the list of electors. The advan- voter registration application. This like), means that opportunities for an elector who is eligible to be enrolled national electronic register be realized, tage of this arrangement, coupled with Even without the move to develop a approach personalizes communication electronically-based voter registration witness the completed form. This the on-line registration system that is the existence of a provisional list of provisional list of electors, and to direct with the elector, provides him or her system, or key elements of such a latter requirement makes on-line limited to making forms available, electors, is that the registration effort enrolment activities in the high schools, with information important to a citizen, system, are now available in a way registration much more difficult, rather than providing full interactive can take place in high schools, in many election authorities have initiated and also facilitates the completion of that was not the case even a decade particularly since the witness guaran- registration, likely will also be revisited. addition to universities and colleges. registration activities on university and the registration process. As a first con- ago. Canada is among the most “wired” tee is provided through the witness’ The recent announcement of the The high school setting is more college campuses. Since most universi- tact with the newly eligible elector, it countries in the world in terms of signature. In addition, unlike the targeted youth registration initiative ties include political also is a very cost-effective strategy, computer usage, which makes it among New Zealand case, the AEC does not by Elections Canada suggests a phase- clubs and also fea- and could be used either with a provi- the most desirable places to introduce provide electors with the option of in process. The first phase, similar to A number of election authorities have ture a “clubs week” sional list of electors (card sent upon on-line access to voter registration. In checking their registrations on-line. the Australian and British cases, will developed political education material each year (normally reaching 17 years of age), or a regular view of the fact that young citizens While the electoral roll is considered be to provide downloadable forms specifically targeted to increase registration during the early list (card sent at 18 years). In his tend to use the Internet more, on-line a public document, it is not available from the Elections Canada Web site. fall), one strategy March 2003 announcement, the Chief voter registration systems are likely to on-line, but rather through the AEC’s In addition, Elections Canada has among the youth electorate. would be to engage Electoral Officer of Canada indicated be particularly effective in increasing State Head Office or Divisional indicated a commitment to seek the these clubs in efforts that he will send a greeting card or registration among youth. Offices. Furthermore, requests to means to implement full on-line to publicize voter certificate to electors following their determine whether an elector is registration. It can be expected that advantageous, because high school registration efforts. While this has the 18th birthdays, congratulating them Various countries provide a range of enrolled must be made by the elector the latter initiative will have the enrolments are much higher than advantage of operating within a previ- on attaining the right to vote and options for on-line voter registration. him- or herself, and must be made in greatest effect in increasing youth post-secondary enrolments and, there- ously scheduled event, the drawback encouraging them to register. At one end of the continuum, Elections writing, including a signature on the registration. fore, the targeted campaign has a more is that the registration effort of any New Zealand provides the most direct request form. Thus, the high value comprehensive reach. In addition, particular club could be inspired as much The Victoria Electoral Commission and interactive on-line voter registra- placed on the security of the electoral Special events within high schools, it is possible to by the desire for partisan advantage as sends a birthday card to electors on tion system, at www.elections.org.nz. roll and the use of strict procedures to introduce a political education campaign by a sense of civic-mindedness in pro- their 17th birthdays, congratulating The elector may receive information guard against potential electoral fraud A particularly novel approach to con- into a civics curriculum that is offered viding equal opportunities for all eligible them on being eligible for the provi- about the registration process, check have, in Australia, limited the full use tacting young electors is to host events to all students, which simply is not young electors to register. An alternative, sional electoral roll, from which they and change his or her registration of on-line registration. that appeal to that age group, and to

28 Electoral Insight July 2003 29 provisional list and, in the state of possible in post-secondary settings. and probably preferable strategy, is will automatically be placed on the information, register for the first time, The recently created Electoral Victoria, fully 27 percent of 17-year- Without the existence of a provisional to hold such events separate from the electoral roll upon reaching 18. or re-register after leaving the register Commission of the United Kingdom, olds are on the provisional list.2 It is list of electors for 17-year-olds, a regis- political clubs, either on an annual basis, On June 30, 2002, 16 percent of for a period. as one of its first initiatives, has also significant that the Victoria Electoral tration drive in high schools is likely or in the revision period preceding an 17-year-olds in Australia were on put in place on-line voter registration Commission sends birthday cards and to be much less effective, since a large electoral event. While this strategy has the provisional roll, compared to In Australia, while registration forms forms for British electors.7 As in the enrolment forms to individuals on proportion of students would not be of obvious staffing implications for the 27 percent of 17-year-olds in Victoria. for all states are available on the AEC Australian case, the forms must be their 17th birthdays, an issue to which voting age. election authority, some election Similarly, 56 percent of Australian Web site,6 the elector must first print printed and completed, with signature we return below.3 authorities have found it sufficiently 18-year-olds were enrolled, compared and complete the form and then send but without a witness, and sent to the A number of election authorities have effective to justify the additional to 68 percent of those in Victoria. it to the state or district enrolment district enrolment office. There is no School-based registration developed political education material expenditure. Therefore, this initiative appears to office through the postal service or by provision for the elector to check his drives specifically targeted to increase regis- account for an increased enrolment fax, or deliver the form in person. In or her registration information on-line, tration among the youth electorate. Birthday cards of approximately 10 percent of those addition to the extra step of printing and there is a relatively lengthy period It has become increasingly popular for In its review of practices of the AEC, eligible.5 and posting the form, Australian (seven weeks) for the processing of targeted youth enrolment activities to the Australian National Audit Office There are a variety of ways in which an registration informa- include a campaign for university and recommended the AEC collaborate election authority may become aware On-line voter registration tion. One of the college campuses. One novel method with educational authorities to develop that an elector has achieved voting Canada is among the most “wired” countries main reasons for used in Australia, and related to the curricular materials aimed at increasing age – for example, through data files The availability of personal computers in the world in terms of computer usage, the absence of com- existence of a provisional list of elec- the proportion of young electors shared with a motor transport authority, with very substantial storage capacity, which makes it among the most desirable pletely interactive tors for 17-year-olds, is to enter into enrolled.4 Elections Canada recently a tax authority or some other civic coupled with increasingly reliable net- on-line registration agreements with high schools for regis- concluded a partnership arrangement authority. In some instances, this work connections with high bandwidth places to introduce on-line access to voter is the highly decen- tration activities. The election authority with the Cable in the Classroom ini- information is used to generate a data transmission, and high accessibility registration. tralized character of pays a small per capita amount of tiative to encourage youth to prepare mail-out to electors coming of voting to computers in homes, at schools and the electoral register. funding to the school, based on the public service announcements to age, which may also include political in many public places (such as Internet Should the proposal number of students at the school who promote participation by their peers. education material, and possibly a cafés, government offices and the enrolment forms require that an by the Electoral Commission for a are on the list of electors. The advan- voter registration application. This like), means that opportunities for an elector who is eligible to be enrolled national electronic register be realized, tage of this arrangement, coupled with Even without the move to develop a approach personalizes communication electronically-based voter registration witness the completed form. This the on-line registration system that is the existence of a provisional list of provisional list of electors, and to direct with the elector, provides him or her system, or key elements of such a latter requirement makes on-line limited to making forms available, electors, is that the registration effort enrolment activities in the high schools, with information important to a citizen, system, are now available in a way registration much more difficult, rather than providing full interactive can take place in high schools, in many election authorities have initiated and also facilitates the completion of that was not the case even a decade particularly since the witness guaran- registration, likely will also be revisited. addition to universities and colleges. registration activities on university and the registration process. As a first con- ago. Canada is among the most “wired” tee is provided through the witness’ The recent announcement of the The high school setting is more college campuses. Since most universi- tact with the newly eligible elector, it countries in the world in terms of signature. In addition, unlike the targeted youth registration initiative ties include political also is a very cost-effective strategy, computer usage, which makes it among New Zealand case, the AEC does not by Elections Canada suggests a phase- clubs and also fea- and could be used either with a provi- the most desirable places to introduce provide electors with the option of in process. The first phase, similar to A number of election authorities have ture a “clubs week” sional list of electors (card sent upon on-line access to voter registration. In checking their registrations on-line. the Australian and British cases, will developed political education material each year (normally reaching 17 years of age), or a regular view of the fact that young citizens While the electoral roll is considered be to provide downloadable forms specifically targeted to increase registration during the early list (card sent at 18 years). In his tend to use the Internet more, on-line a public document, it is not available from the Elections Canada Web site. fall), one strategy March 2003 announcement, the Chief voter registration systems are likely to on-line, but rather through the AEC’s In addition, Elections Canada has among the youth electorate. would be to engage Electoral Officer of Canada indicated be particularly effective in increasing State Head Office or Divisional indicated a commitment to seek the these clubs in efforts that he will send a greeting card or registration among youth. Offices. Furthermore, requests to means to implement full on-line to publicize voter certificate to electors following their determine whether an elector is registration. It can be expected that advantageous, because high school registration efforts. While this has the 18th birthdays, congratulating them Various countries provide a range of enrolled must be made by the elector the latter initiative will have the enrolments are much higher than advantage of operating within a previ- on attaining the right to vote and options for on-line voter registration. him- or herself, and must be made in greatest effect in increasing youth post-secondary enrolments and, there- ously scheduled event, the drawback encouraging them to register. At one end of the continuum, Elections writing, including a signature on the registration. fore, the targeted campaign has a more is that the registration effort of any New Zealand provides the most direct request form. Thus, the high value comprehensive reach. In addition, particular club could be inspired as much The Victoria Electoral Commission and interactive on-line voter registra- placed on the security of the electoral Special events within high schools, it is possible to by the desire for partisan advantage as sends a birthday card to electors on tion system, at www.elections.org.nz. roll and the use of strict procedures to introduce a political education campaign by a sense of civic-mindedness in pro- their 17th birthdays, congratulating The elector may receive information guard against potential electoral fraud A particularly novel approach to con- into a civics curriculum that is offered viding equal opportunities for all eligible them on being eligible for the provi- about the registration process, check have, in Australia, limited the full use tacting young electors is to host events to all students, which simply is not young electors to register. An alternative, sional electoral roll, from which they and change his or her registration of on-line registration. that appeal to that age group, and to

28 Electoral Insight July 2003 29 Youth Participation in Elections weave registration activities into an event that youth are attending for other purposes. This strategy is used in New Zealand. The election authority sponsors music concerts and festivals, Brown Photo: Wayne at which the host and entertainers encourage attendees to complete voter Marketing Voter Participation registration forms that are provided by the election authority at booths or tables. Although information on the to the MuchMusic Generation cost-per-enrolment for this initiative is not available, a personal communica- Phillip Haid tion with an official in New Zealand Account Director, Manifest Communications described it as “highly effective”. A On April 6, 2003, several thousand young people attended a Rush the Vote block party in variation on this approach would be Ottawa, which featured many solo artists, bands and speakers who encouraged them to get for the election authority to provide involved in political and social causes. partial sponsorship for the hosting of On a recent flight to Winnipeg, I was sitting next to The goal of this article is to provide some ideas on how to youth-oriented entertainment events, in of explanations for this pattern – eliminating variation in levels of a 22-year-old from a small town in Ontario, where he re-establish political relevance and lead young Canadians exchange for having the contribution greater residential mobility, less participation across groups in society works for an agricultural equipment manufacturer. It was back to the ballot box. The article will explore three main acknowledged and the opportunity for established patterns of voting and may not be an achievable outcome, his first time on a commercial airplane and he was a bit questions: Why aren’t young people voting? What can be done the organizers, host and entertainers to weaker attachments to the community, implementing best practices to nervous about flying. We struck up a conversation and to reverse the trend? How should it be accomplished? highlight registration activity. among others. It is likely this pattern mitigate those variations is a once we got past pleasantries about the weather, flying, will persist. That is not to suggest, sensible strategy for the election and mosquitoes in Winnipeg, we settled on more Tuned out and turned off: Why young Conclusion however, that one should be compla- authority. engaging topics, such as the war in Iraq, SARS and Canadians are not voting cent. Adjusting administrative Canadian politics. Young people in a wide range of arrangements to lead to fewer The vast majority of young Canadians (those between the countries have long displayed lower discrepancies in voter registration, I asked my seatmate what he thought of Canadian ages of 18 and 24) do not vote. In the last federal election, levels of participation in conventional, and in political participation, is politicians and whether he voted in the past federal or only 25.4 percent of eligible young voters showed up, the system-supporting political activities advantageous to the individual elector provincial elections. He informed me that he had not lowest turnout in Canadian history.1 The most commonly such as voting. There are a number and to the political system. While (adding that none of his friends ever thought about voting), expressed explanation from journalists, pundits and young and offered the following advice: “We need to go back to people themselves is cynicism – distrust of politicians and the times of ancient Greece, because the Greeks under- a belief that voting will not make a difference. While it is NOTES stood what it meant to be democratic. They understood true that cynicism plays a role in declining youth voter the need to talk to citizens and make politics relevant to turnout, it is not the driving force. In fact, research shows 1. See “Chief Electoral Officer of Canada 5. Unpublished data provided by Australian the average guy.” that youth are no more cynical about government or politics Announces Measures to Address Decline Electoral Commission, “Youth Enrolment 2 in Voter Turnout Among Youth” [on-line Statistics, 2002.” than older people. media release], Elections Canada His insight highlighted a key to the lack of voter participa- 6. See Electoral Enrolment Forms at (March 21, 2003) at www.elections.ca. tion among young people: relevance. Young Canadians do www.aec.gov.au/_content/what/ not find the act of voting very enticing. And while it is 2. Unpublished data provided by Australian enrolment/forms.htm. Electoral Commission, “Youth Enrolment true that a large majority of youth is not very politically 7. See www.electoralcommission.gov.uk/ Statistics: Enrolment by Age as a Percentage and civilly literate, this should not be used as an excuse to your-vote/rollingreg.cfm. Photo: Getty Images of Population, 30 June 2002”. avoid the challenge of making politics more engaging to

3. Unpublished data provided by Australian young people. Quite the opposite is true. It is up to govern- Electoral Commission, “Youth Enrolment” ments, non-profit organizations and corporations to help (no date). reinvigorate young people’s interest in the political system so that voting becomes an expression of their democratic 4. “Australian Electoral Commission: Integrity of the Electoral Roll,” [on-line beliefs and actions. Voting, as a recognized form of partici- report], Australian National Audit Office, patory democracy, must be re-learned. It must become a Canberra (2002) at www.anao.gov.au. habit for all young Canadians.

30 Electoral Insight July 2003 31 Youth Participation in Elections weave registration activities into an event that youth are attending for other purposes. This strategy is used in New Zealand. The election authority sponsors music concerts and festivals, Brown Photo: Wayne at which the host and entertainers encourage attendees to complete voter Marketing Voter Participation registration forms that are provided by the election authority at booths or tables. Although information on the to the MuchMusic Generation cost-per-enrolment for this initiative is not available, a personal communica- Phillip Haid tion with an official in New Zealand Account Director, Manifest Communications described it as “highly effective”. A On April 6, 2003, several thousand young people attended a Rush the Vote block party in variation on this approach would be Ottawa, which featured many solo artists, bands and speakers who encouraged them to get for the election authority to provide involved in political and social causes. partial sponsorship for the hosting of On a recent flight to Winnipeg, I was sitting next to The goal of this article is to provide some ideas on how to youth-oriented entertainment events, in of explanations for this pattern – eliminating variation in levels of a 22-year-old from a small town in Ontario, where he re-establish political relevance and lead young Canadians exchange for having the contribution greater residential mobility, less participation across groups in society works for an agricultural equipment manufacturer. It was back to the ballot box. The article will explore three main acknowledged and the opportunity for established patterns of voting and may not be an achievable outcome, his first time on a commercial airplane and he was a bit questions: Why aren’t young people voting? What can be done the organizers, host and entertainers to weaker attachments to the community, implementing best practices to nervous about flying. We struck up a conversation and to reverse the trend? How should it be accomplished? highlight registration activity. among others. It is likely this pattern mitigate those variations is a once we got past pleasantries about the weather, flying, will persist. That is not to suggest, sensible strategy for the election and mosquitoes in Winnipeg, we settled on more Tuned out and turned off: Why young Conclusion however, that one should be compla- authority. engaging topics, such as the war in Iraq, SARS and Canadians are not voting cent. Adjusting administrative Canadian politics. Young people in a wide range of arrangements to lead to fewer The vast majority of young Canadians (those between the countries have long displayed lower discrepancies in voter registration, I asked my seatmate what he thought of Canadian ages of 18 and 24) do not vote. In the last federal election, levels of participation in conventional, and in political participation, is politicians and whether he voted in the past federal or only 25.4 percent of eligible young voters showed up, the system-supporting political activities advantageous to the individual elector provincial elections. He informed me that he had not lowest turnout in Canadian history.1 The most commonly such as voting. There are a number and to the political system. While (adding that none of his friends ever thought about voting), expressed explanation from journalists, pundits and young and offered the following advice: “We need to go back to people themselves is cynicism – distrust of politicians and the times of ancient Greece, because the Greeks under- a belief that voting will not make a difference. While it is NOTES stood what it meant to be democratic. They understood true that cynicism plays a role in declining youth voter the need to talk to citizens and make politics relevant to turnout, it is not the driving force. In fact, research shows 1. See “Chief Electoral Officer of Canada 5. Unpublished data provided by Australian the average guy.” that youth are no more cynical about government or politics Announces Measures to Address Decline Electoral Commission, “Youth Enrolment 2 in Voter Turnout Among Youth” [on-line Statistics, 2002.” than older people. media release], Elections Canada His insight highlighted a key to the lack of voter participa- 6. See Electoral Enrolment Forms at (March 21, 2003) at www.elections.ca. tion among young people: relevance. Young Canadians do www.aec.gov.au/_content/what/ not find the act of voting very enticing. And while it is 2. Unpublished data provided by Australian enrolment/forms.htm. Electoral Commission, “Youth Enrolment true that a large majority of youth is not very politically 7. See www.electoralcommission.gov.uk/ Statistics: Enrolment by Age as a Percentage and civilly literate, this should not be used as an excuse to your-vote/rollingreg.cfm. Photo: Getty Images of Population, 30 June 2002”. avoid the challenge of making politics more engaging to

30 Electoral Insight July 2003 31 Lack of political and civic knowledge system, and do not believe that their where the relevance of government is same age. If this holds true, the lack right-minded citizen. People felt good For whom one votes, or whether One of the key drivers of low youth votes will make a difference. For marginalized. Molson, Labatt, Roots, of interest in voting today will affect about contributing positively to the one’s preferred candidate is elected, voter turnout is lack of political and example, in national focus groups con- Tim Horton’s and Canadian Tire are Canadian democracy for generations environment and nobody wanted to is secondary to the act of expression, civic knowledge. Several studies have ducted for Communication Canada in all helping to define what it means to come. be the only one in the neighbour- much in the same way that the act of pointed to young people’s low levels of 2001, the common lament from young to be Canadian. If this situation hood who was not recycling. protest is as or more important than awareness about government, politics, Canadians was the lack of political continues to hold, why should young Reversing the trend the outcome. history and current events.3 A survey leadership to inspire and help youth to adults bother to vote, when consumer Voter participation requires the in 2000 conducted by the Institute for believe there is something and someone decisions define the values landscape? The solution to reversing the “genera- creation of a new social norm, so Voting also lacks a personal connection Research on Public Policy found that worth voting for. Recent government While this may be overstated, govern- tional effect” lies with engaging my that young people see value in voting because most young Canadians are over 50 percent of young adults do not scandals surrounding improper contract- ments need to become more effective Air Canada seatmate and others like and wear their participation in the not aware of and have never met the follow politics closely.4 ing and misuse of money have only at marketing and communications him. Selling voter participation to political process as a badge of their people who represent them at the helped fuel this perception. The lack of aimed at young people. Recent find- young people requires a different frame identity. municipal, provincial and federal What has led to this lack of civic knowl- interest is also generated by a perception ings show that 62 percent of young of reference. It is about hearts, not levels. Elected officials are a mystery edge among young people? Schools that government does not understand adults do not believe that the federal minds. It is about a new way of Creating this new civic norm is a to young people. There is little under- have not focused enough attention young people’s needs and interests. government does a good job communi- approaching the problem. Small, challenge, given that young Canadians standing of what they do, why they do This was confirmed cating to them.6 incremental steps will not suffice. are not a homogenous group and efforts it and how government works. Part of by Communication Large-scale behaviour change is needed. aimed at increasing voter participation the reason for this is that, by and large, Political parties and elected officials have Canada’s Listening to Transitional stage of life Rational arguments that highlight the tend to occur only at election time. elected officials do not reach out to not made major efforts to engage young Canadians: Focus on Young adults are also naturally less importance of exercising one’s demo- Election-driven efforts are likely to young people and if they do, it is people in meaningful and ongoing dialogue. Young Adults report inclined to vote during the transitional cratic rights will not carry the same motivate only those who are already usually at election time – a very (2002), which indi- stage of life between the ages of 18 weight as values-based arguments and interested, and may breed cynicism transparent gesture from the stand- cated that 70 percent and 24. They are busy finding a job, initiatives that speak directly to young among those who are not. The election point of the young electorate. and importance on civics education in of young adults do not believe that the enrolling in university or college, period is too short the curriculum. Government depart- federal government understands what moving out of their parents’ houses, a time to persuade If, as a society, we are interested in ments and agencies have not had the is desirable to them. travelling, getting married, buying Voter participation requires the creation of young Canadians encouraging greater voter turnout necessary financial support to mount their first homes and having children. a new social norm, so that young people see that voting is a among young Canadians, efforts have wide-ranging multimedia campaigns Globalization They are in a highly mobile, turbulent value in voting and wear their participation worthwhile thing to be made by all sectors and in a way between elections to promote the Globalization has also widened the phase, dealing with the tension of to do. This is why that is relevant to youth. Young importance of voter/civic engagement. gap between young people and politi- expressing their individuality, while in the political process as a badge of their the time between people must be encouraged, exposed Political parties and elected officials cal institutions, negatively affecting also wanting to fit in and conform. identity. elections counts to and persuaded toward a different have not made major efforts to engage voter turnout. In a multimedia Politics and voting fall low on the most. That is when approach – one in which they are young people in meaningful and ongoing universe where information is so priority list of “to-dos”. political parties, aware of all the tools of civic engage- dialogue. Parents are not discussing prevalent, many young adults are people’s sense of self and identity. government departments and agencies, ment at their disposal, and believe politics and civic engagement as much becoming “over-informed and under- Generational effect Participatory democracy must become non-profits and corporations should be that utilizing these tools can make a as is perhaps necessary. And, finally, engaged”. The multiplicity of issues, “Tuned out” and “turned off” young a way of life. Voting must be seen as harnessing their resources and talents difference. youth are not seeking to know more concerns and causes creates a form of Canadians may not simply be going part of that lifestyle. together to create a new norm for civic about the political system. The result paralysis, causing young people to feel through a life cycle phase that will participation. Ideas for engaging young is that young adults are to a great there is too much to deal with and not improve as they get older, pay taxes Behaviour change occurs not because voters: A social marketing extent “tuned out” of politics and enough time to do anything of real and become more rooted in the people suddenly understand more Because of the disconnection between perspective government, making the relevance of value.5 community. Troubling evidence, about an issue, but because they how young people perceive voting and voting a difficult proposition to sell. highlighted by leading academics want to see themselves differently other civic activities, the creation of Increasing youth voter turnout requires Globalization has also created a (Jon Pammett and Lawrence LeDuc, in relation to it. When Canadians this norm must be linked to the under- a conscious and deliberate approach to Lack of trust and confidence world where commercial brands and Brenda O’Neill, André Blais and began recycling in the late 1980s and lying value of voting. Voting is not creating social change. From a social Other reasons for low voter turnout marketed lifestyles tend to dominate others), seems to show a “genera- early 1990s, it was not because they seen as part of the same spectrum of marketing perspective, a voter outreach reflect the “turned off” arguments often the minds of young adults. Corporations tional” effect. Young adults today are suddenly understood more about the activities as volunteering, protesting, program would involve the following cited in the media. It is claimed that spend more money to shape attitudes not showing signs of becoming more effects of waste. People began to giving money to charities or signing four elements: knowledge generation and young people are not interested in and behaviours than governments; as a likely to vote as they age and are, in recycle because a social dynamic petitions. Young people do not value understanding, social climate-setting politics and government because they result, young people have grown up in fact, voting less than their grand- was created, in which the Blue Box the act of voting as an opportunity or activities, education and outreach, and distrust politicians and the political a marketing-driven, consumer culture, parents did when they were the became the visual badge of being a a tool to express and assert their voices. policy initiatives.

32 Electoral Insight July 2003 33 Lack of political and civic knowledge system, and do not believe that their where the relevance of government is same age. If this holds true, the lack right-minded citizen. People felt good For whom one votes, or whether One of the key drivers of low youth votes will make a difference. For marginalized. Molson, Labatt, Roots, of interest in voting today will affect about contributing positively to the one’s preferred candidate is elected, voter turnout is lack of political and example, in national focus groups con- Tim Horton’s and Canadian Tire are Canadian democracy for generations environment and nobody wanted to is secondary to the act of expression, civic knowledge. Several studies have ducted for Communication Canada in all helping to define what it means to come. be the only one in the neighbour- much in the same way that the act of pointed to young people’s low levels of 2001, the common lament from young to be Canadian. If this situation hood who was not recycling. protest is as or more important than awareness about government, politics, Canadians was the lack of political continues to hold, why should young Reversing the trend the outcome. history and current events.3 A survey leadership to inspire and help youth to adults bother to vote, when consumer Voter participation requires the in 2000 conducted by the Institute for believe there is something and someone decisions define the values landscape? The solution to reversing the “genera- creation of a new social norm, so Voting also lacks a personal connection Research on Public Policy found that worth voting for. Recent government While this may be overstated, govern- tional effect” lies with engaging my that young people see value in voting because most young Canadians are over 50 percent of young adults do not scandals surrounding improper contract- ments need to become more effective Air Canada seatmate and others like and wear their participation in the not aware of and have never met the follow politics closely.4 ing and misuse of money have only at marketing and communications him. Selling voter participation to political process as a badge of their people who represent them at the helped fuel this perception. The lack of aimed at young people. Recent find- young people requires a different frame identity. municipal, provincial and federal What has led to this lack of civic knowl- interest is also generated by a perception ings show that 62 percent of young of reference. It is about hearts, not levels. Elected officials are a mystery edge among young people? Schools that government does not understand adults do not believe that the federal minds. It is about a new way of Creating this new civic norm is a to young people. There is little under- have not focused enough attention young people’s needs and interests. government does a good job communi- approaching the problem. Small, challenge, given that young Canadians standing of what they do, why they do This was confirmed cating to them.6 incremental steps will not suffice. are not a homogenous group and efforts it and how government works. Part of by Communication Large-scale behaviour change is needed. aimed at increasing voter participation the reason for this is that, by and large, Political parties and elected officials have Canada’s Listening to Transitional stage of life Rational arguments that highlight the tend to occur only at election time. elected officials do not reach out to not made major efforts to engage young Canadians: Focus on Young adults are also naturally less importance of exercising one’s demo- Election-driven efforts are likely to young people and if they do, it is people in meaningful and ongoing dialogue. Young Adults report inclined to vote during the transitional cratic rights will not carry the same motivate only those who are already usually at election time – a very (2002), which indi- stage of life between the ages of 18 weight as values-based arguments and interested, and may breed cynicism transparent gesture from the stand- cated that 70 percent and 24. They are busy finding a job, initiatives that speak directly to young among those who are not. The election point of the young electorate. and importance on civics education in of young adults do not believe that the enrolling in university or college, period is too short the curriculum. Government depart- federal government understands what moving out of their parents’ houses, a time to persuade If, as a society, we are interested in ments and agencies have not had the is desirable to them. travelling, getting married, buying Voter participation requires the creation of young Canadians encouraging greater voter turnout necessary financial support to mount their first homes and having children. a new social norm, so that young people see that voting is a among young Canadians, efforts have wide-ranging multimedia campaigns Globalization They are in a highly mobile, turbulent value in voting and wear their participation worthwhile thing to be made by all sectors and in a way between elections to promote the Globalization has also widened the phase, dealing with the tension of to do. This is why that is relevant to youth. Young importance of voter/civic engagement. gap between young people and politi- expressing their individuality, while in the political process as a badge of their the time between people must be encouraged, exposed Political parties and elected officials cal institutions, negatively affecting also wanting to fit in and conform. identity. elections counts to and persuaded toward a different have not made major efforts to engage voter turnout. In a multimedia Politics and voting fall low on the most. That is when approach – one in which they are young people in meaningful and ongoing universe where information is so priority list of “to-dos”. political parties, aware of all the tools of civic engage- dialogue. Parents are not discussing prevalent, many young adults are people’s sense of self and identity. government departments and agencies, ment at their disposal, and believe politics and civic engagement as much becoming “over-informed and under- Generational effect Participatory democracy must become non-profits and corporations should be that utilizing these tools can make a as is perhaps necessary. And, finally, engaged”. The multiplicity of issues, “Tuned out” and “turned off” young a way of life. Voting must be seen as harnessing their resources and talents difference. youth are not seeking to know more concerns and causes creates a form of Canadians may not simply be going part of that lifestyle. together to create a new norm for civic about the political system. The result paralysis, causing young people to feel through a life cycle phase that will participation. Ideas for engaging young is that young adults are to a great there is too much to deal with and not improve as they get older, pay taxes Behaviour change occurs not because voters: A social marketing extent “tuned out” of politics and enough time to do anything of real and become more rooted in the people suddenly understand more Because of the disconnection between perspective government, making the relevance of value.5 community. Troubling evidence, about an issue, but because they how young people perceive voting and voting a difficult proposition to sell. highlighted by leading academics want to see themselves differently other civic activities, the creation of Increasing youth voter turnout requires Globalization has also created a (Jon Pammett and Lawrence LeDuc, in relation to it. When Canadians this norm must be linked to the under- a conscious and deliberate approach to Lack of trust and confidence world where commercial brands and Brenda O’Neill, André Blais and began recycling in the late 1980s and lying value of voting. Voting is not creating social change. From a social Other reasons for low voter turnout marketed lifestyles tend to dominate others), seems to show a “genera- early 1990s, it was not because they seen as part of the same spectrum of marketing perspective, a voter outreach reflect the “turned off” arguments often the minds of young adults. Corporations tional” effect. Young adults today are suddenly understood more about the activities as volunteering, protesting, program would involve the following cited in the media. It is claimed that spend more money to shape attitudes not showing signs of becoming more effects of waste. People began to giving money to charities or signing four elements: knowledge generation and young people are not interested in and behaviours than governments; as a likely to vote as they age and are, in recycle because a social dynamic petitions. Young people do not value understanding, social climate-setting politics and government because they result, young people have grown up in fact, voting less than their grand- was created, in which the Blue Box the act of voting as an opportunity or activities, education and outreach, and distrust politicians and the political a marketing-driven, consumer culture, parents did when they were the became the visual badge of being a a tool to express and assert their voices. policy initiatives.

32 Electoral Insight July 2003 33 Knowledge generation should also be attempted. None of turnout. Voter education materials wide-ranging form will help to generate and understanding these initiatives may ultimately be tailored to youth organizations should awareness of the world and community, Reaching young Canadians requires successful, but there is no way of be developed for their use when hosting and help to connect civic engagement

a deep understanding of their attitudes knowing unless governments and conferences and running programs. with voting in municipal, provincial Photo: Getty Images and behaviours. Since they are not a political parties are willing to take and federal elections. homogenous group, segmentation is some risks. Elected officials and their political key. What motivates a young parties need to become more proactive Policy initiatives Aboriginal person in rural Saskatchewan Social climate-setting in their outreach toward young people Increasing youth voter participation is different from what motivates a Rock the Vote in the United States is as well. They need to recognize that also requires changes in policy to bring middle-class youth from Toronto. a good example of creating the right engaging youth on issues of mutual about the desired social change. There Understanding the difference is social climate around youth voter concern (violence, substance abuse, has been discussion over the past necessary if voter outreach efforts are participation. Through the use of The Web site of the Rock the Vote organization skill development, etc.) can be very 20 years of reducing the voting age to to be successful in different parts of music and pop culture, the campaign (in the United States) is located at useful in the development of programs 16 as an incentive to encourage more the country. has been able to generate a climate www.rockthevote.org/index2.html. and policies that affect their lives. young Canadians to engage in the where voting is perceived as something Canadian corporations also have an political process. Many have argued If young people are old enough to obtain Risk taking is also necessary to better that “cool” people do. Participaction is government or corporations for this important role to play, given their that if young people are responsible a driver’s licence, are they also old enough understand what might work with another example of a social climate- type of social message. No national strong “brand relationships” with enough to drive a car at 16, they should to vote? young people. While there have been setting campaign that did an excellent non-profit organization exists solely to young people. Labatt, VIA Rail, Roots be allowed to vote. Exploring this many studies on participation rates job of raising Canadians’ awareness of promote voter participation among and Bell are only some of the Canadian issue, as well as others related to voter and momentum is created. To ensure and the reasons for low voter turnout, the need to be more active. Canadian youth, and one should be corporations whose young adult focus registration and on-line voting, are that the proper range and level of activ- very little has been done to test inno- created. and community initiatives should be worthwhile endeavours that will gener- ity are taking place, leadership must be vative techniques to improve voter We need nothing short of a Participaction leveraged to promote voter participa- ate dialogue and debate among young seized by an organization that is willing participation. Easing access to partici- campaign for youth voter turnout. There are limits to social climate-setting, tion and generate greater momentum. people. to develop a coordinated plan to incor- pation through on-line registration and Creating the right climate, in which however. It cannot, on its own, sustain porate the ideas and resources of players electronic voting may improve partici- Canadian youth value the act of voting, attitudinal and behavioural shifts Classrooms are the other obvious Conclusion from the public, private and non-profit pation rates. Placing polling booths in requires the creation of a new societal without local, community-based place to engage young people in voter sectors. Achieving greater civic and areas and at events where young people norm. How this is accomplished is programs to bring the ideas and values participation. To do so, however, To increase youth voter turnout, all four political engagement among young are likely to be – universities, shopping critical. Motherhood statements about to life. Participaction ultimately failed requires new civic materials that elements of the social change dynamic people requires a social marketing malls, YMCAs, community centres and the importance of voting are not because it did not have the proper promote interactive, engaging, experi- outlined above need to happen in an orientation, if we truly want to reverse concerts – may help improve voter acceptable. Rather, breakthrough programs on the ground. ential learning. Guest speakers, field integrated and integrating manner. the generational effect and forge a more participation. And efforts by political advertising and programming are nec- trips, simulation games, films, debates However, it is essential to create the participatory democracy in which voting parties to communicate with young essary to create an energy and momen- Education and outreach and hands-on projects that expose proper social climate to ensure that is a habit among the grandchildren of voters through text messaging, e-mail tum with which various segments of The greatest untapped resource for young people to issues and politics in a other activities are properly supported the MuchMusic generation. campaigns and face-to-face meetings the youth population can identify. The engaging young people in the political message needs to be process is young people. Thousands of NOTES sent throughout the youth organizations exist throughout Policy Matters year and during the country to influence change at the 1. Jean-Pierre Kingsley, keynote address to Vol. 2, No. 5 (October 4. Paul Howe and David Northrup, Symposium on Electoral Participation in 2001); and André Blais, Elisabeth “Strengthening Canadian Democracy: non-election years. local, provincial and national levels. Canada, Carleton University, Ottawa, Gidengil, Richard Nadeau and Neil The Views of Canadians,” Institute for It also should come Each of these organizations has a con- March 21, 2003. The full text is available Nevitte, Anatomy of a Liberal Victory: Research on Public Policy (2000). Photo: Photo: Nicholas Sales from an entity at stituency of young Canadians that it at www.elections.ca under Media: Special Making Sense of the 2000 Canadian Election 5. D-Code and the Canadian Centre for arm’s length from reaches and with whom it interacts on Events. (Peterborough, Ontario: Broadview Press, Social Entrepreneurship, “Social Vision: 2002), chapter 3. government. Young a frequent basis. Yet very few efforts 2. See Jon H. Pammett and Lawrence LeDuc, Young Adult Perspectives on Social and people have to have been made by government depart- “Explaining the Turnout Decline in 3. See Blais, Gidengil, Nadeau and Nevitte Civic Responsibility” (April 2001). believe in the ments and agencies to engage these Canadian Federal Elections: A New (2002); Paul Howe, “Where have all the 6. Communication Canada, “Listening to authors of the mes- groups and use them as vehicles to Survey of Non-voters” [on-line research voters gone?” Inroads Vol. 12 (winter/ Canadians: Focus on Young Adults” report], Elections Canada (March 2003), spring 2003); and the Centre for Research sage, and currently disseminate information and resources (January 2002). available at www.elections.ca under and Information on Canada (CRIC), non-profit organiza- that promote voter engagement. Youth Placing polling booths in areas and at events where young people Electoral Law & Policy; Brenda O’Neill, “Voter Participation in Canada: Is are likely to be – universities, shopping malls, YMCAs, community tions have more round tables should be created to “Generational Patterns in the Political Canadian Democracy in Crisis?” CRIC centres and concerts – may help improve voter participation. acceptability than explore better ways to improve voter Opinions and Behaviours of Canadians,” Paper #3 (October 2001).

34 Electoral Insight July 2003 35 Knowledge generation should also be attempted. None of turnout. Voter education materials wide-ranging form will help to generate and understanding these initiatives may ultimately be tailored to youth organizations should awareness of the world and community, Reaching young Canadians requires successful, but there is no way of be developed for their use when hosting and help to connect civic engagement

34 Electoral Insight July 2003 35 Youth Participation in Elections

used by either side, to support or This same ambivalence is found today the zeal of youth with excessive high oppose lowering the voting age. In in newspaper articles, on Internet sites spirits and an inexperience that calls the end, the historical analysis reveals on democracy, and in Parliament.7 For for the greatest caution. The young that the observed changes result some, the enthusiasm and zeal of the are simply “not ready” to vote! The primarily from political will, usually “young” would justify lowering the reversibility of the arguments tends to How Old Is Old Enough to Vote? within Parliament, and with no real voting age to the benefit of society as a show the strictly political – although public debate. whole; others, on the contrary, associate not partisan8 – nature of the decisions about lowering the voting age. Politics Youth Participation in Society may not be typically irrational, but Table 1: Opinions on the Right to Vote at 16 Years of Age it implies choices sometimes made (percentages)1 more or less independently of public Raymond Hudon Right to vote at 16 1990 survey 1998 survey opinion. Professor, Department of Political Science, Université Laval Agree 44.0 45.5 Disagree 53.6 54.5 There are, in fact, objective reasons for Bernard Fournier N 832 847 lowering the voting age today. Here is Assistant Professor, Department of Political Science, Memorial University of Newfoundland 1 The total for the 1990 survey does not equal 100%, because 2.4% of the subjects did not answer what those most concerned think. this question. In all the other tables, however, the distributions are based on the number of answers actually recorded. Only the results of those respondents who said they agreed with the question or statement are reported there. “Am I ready to vote?”

According to a reductionist definition, a democratic society exercise our civil rights by voting. After noting that the Although the question did not take is a society that has its citizens participate in major collec- decisions are not made on the basis of absolute and purely Table 2: Right to Vote at 16 quite this form, this was, for all practical tive decisions by granting the right to vote. Based on this rational criteria, we bring into the discussion those most Opinions by Level of Education purposes, what the students of two perspective, young electors, who are supposed to be less immediately concerned, young people between 16 and 18. (percentages) Quebec cities surveyed in 1990 and likely to show up at the polling station, have regularly been We do so using the results of two surveys, conducted in 1990 Right to 1990 survey 1998 survey 1998 (see Methodological Note) had to 3 the subject of a whole range of questions. We are interested and 1998. Although they cannot be used to determine vote at 16 Secondary IV Secondary V Secondary IV Secondary V ask themselves. Their answers follow, here in a specific aspect of the general problem: allowing definitive positions, the observations made shed some light Agree 49.7 40.9 47.3 43.4 cross-referenced to certain factors that 16-year-olds to vote. and provide at least some food for thought. N 384 428 427 410 illuminate them from a variety of angles. We will comment on them For over a decade, the subject has surfaced and resurfaced, Age, a socio-historical construct briefly, before concluding with some without, however, leading to any change in the rules. In Table 3: Right to Vote at 16 general thoughts on the political 1990, the Royal Commission on Electoral Reform and Party Age is a socio-historical construct, the variants of which Opinions by Degree of Interest in Politics participation of young people. Financing (Lortie Commission) studied the question and are a function of the times and social contexts. The changes (percentages) 1 commissioned specific research. At the final stage of writing in the voting age illustrate this well. 1990 survey 1998 survey Table 1 shows that, in both 1990 their report, the members of the Commission decided against Right to and 1998, a majority of the students vote at 16 A lot/ Little/ A lot/ Little/ proposing that the voting age be lowered. In the years that In Canada, electoral rights have evolved considerably since Somewhat Not at all Somewhat Not at all surveyed were against giving the vote followed, the question was raised again, occasionally sus- the establishment of the first modern electoral system.4 The Agree 46.5 43.951.3 41.5 to 16-year-olds. Reflecting the received taining somewhat limited debate.2 Just recently, Quebec’s progress seems less obvious in the case of the threshold for N 355 456 343 491 wisdom that young women are less Estates General on the Reform of Democratic Institutions the age of majority: set at 21 at the time of Confederation, interested in politics, the female stu- considered the idea of lowering the voting age, but dismissed it has been changed only once at the federal level, in 1970.5 dents were more categorically against it: 58 percent of the participants opposed it. However, during The disappearance of the poll tax, the abolition of discrim- Table 4: Right to Vote at 16 the idea than their male counterparts, its most recent policy conference, in March 2003, the Parti ination based on sex or racial origin and the lowering of Opinions by Perceived Importance of Voting with the gap even growing from Québécois included in its program a referendum on the the age of majority all reflect a desire to expand the recog- (percentages)1 1990 to 1998. In fact, the idea gained advisability of giving the vote to 16- and 17-year-olds. nition of citizen authority. You have to vote to make politics conform to your ideas a favourable majority among the boys Right to (going from 47.0 percent to 51.9 per- vote at 16 Agree completely/ Disagree completely/ This is not, of course, a burning issue; but it is not out of Have the changes been rational? Were they, for example, Somewhat Somewhat cent), while the opposition among the realm of possibility either. Given the circumstances, it brought about by some positive change in civil or criminal Agree 45.5 41.5 the girls gained a few points (from is worth putting this subject in perspective by recalling law producing a review of the right to vote? To take one case, N 726 82 57.3 percent to 59.3 percent). It can 6 some of the milestones that have marked the debates and a study of the French parliamentary debates shows both 1 This question was asked only in 1990. also be seen that opposition to the the changes made to the age at which we are entitled to that the same arguments recur and that they can easily be idea increases with age (Table 2),

36 Electoral Insight July 2003 37 Youth Participation in Elections

36 Electoral Insight July 2003 37 although the gap seems to narrow relatively limited political significance, It is logical to think that a greater demonstrate to defend their ideas,” you resistant to giving 16-year-olds the vote; vote to 16-year-olds (Table 9). It is over time: while 2.4 percent fewer it is reasonable to think that these interest in politics or a sense that one have a different attitude to lowering this particular position is particularly more surprising that a majority, although Secondary IV students supported initial results become more meaningful is more affected by government decisions the voting age (Table 6). The same conspicuous since there is majority a smaller majority, of the much larger the idea in 1998, 2.5 percent more when the opinions are cross-referenced would make one more receptive to the trends are evident when the opinions support for the idea among those who group declaring itself in favour of Secondary V students did. Of with other factors. proposal to give 16-year-olds the vote. are linked to the contrast between feel that a good citizen need not obey change still oppose the idea. And indeed, although a majority still citizens as people who feel it is more the law when it seems unjust (Table 8). opposed the suggestion, those who were important to assert their rights, or In closing, there are two paradoxical Table 5: Right to Vote at 16 very or somewhat interested in politics people who feel it is more important In the same vein, it would seem only results that we cannot leave unremarked. Opinions by Partisan Affinity were less opposed than those who to fulfill their duties (Table 7). Finally, logical that a significant proportion of In 1990, participation in at least one (percentages) were slightly or not at all interested the partisans of order, who want a good those in favour of the general status association reduced the opposition to 1990 survey 1998 survey Right to (Table 3). Between 1990 and 1998, citizen to “respect the law under any quo (“Our society does not need major lowering the voting age (Table 10). vote at 16 Close to Not close to Close to Not close to however, the difference increased; circumstances,” are proportionally more changes”) would oppose giving the What is surprising is that, in 1998, a party a party a party a party those most interested agreed with the opposition was highest among those Agree 56.3 41.1 52.5 42.5 idea by a slight majority, while those who do participate. Another surprise: N 213 599 238 598 least interested were yet a bit more Table 9: Right to Vote at 16 proportionately more, and in some opposed. The partisans and opponents Opinions by Attitude to Change cases a majority, of those people (percentages)1 of the vote for 16-year-olds could also with less confidence in a series of Table 6: Right to Vote at 16 be classified depending on whether 1990 survey 1998 survey “institutions” (school, church, Opinions by Conception of a Good Citizen they felt affected (very often or often) Right to Our society does not Our society does not bureaucracy, politicians and media) (percentages) need major changes need major changes or not (not very often or never) by vote at 16 accept the idea of 16-year-olds voting. 1990 survey 1998 survey Agree Disagree Agree completely/ Disagree somewhat/ government decisions. Somewhat Completely One notable exception is the case of Right to Good citizens… Good citizens… political parties in the 1990 survey vote at 16 Agree 34.3 46.3 40.2 46.8 mind their demonstrate mind their demonstrate Another aspect of the resistance to the (Table 11). own business for their ideas own business for their ideas N 108 697 169 666 vote for 16-year-olds is that there is a Agree 38.3 47.4 35.4 47.7 1 majority opposed, even among those The choice of responses is different in 1990 (agree and disagree) and 1998 (agree completely/ Conclusion N214597161673 somewhat and disagree somewhat/completely). who feel that voting is important to “make politics conform to your ideas” To sum up, the results presented (Table 4). In reality, the most decisive will undoubtedly feed the opposition Table 7: Right to Vote at 16 Table 10: Right to Vote at 16 Opinions by the Relation Between Rights and Duties factor in determining support for or Opinions by Participation in an Association to giving 16-year-olds the vote. Thus, of a Good Citizen opposition to lowering the voting age (percentages) it is worth noting that even a majority (percentages) is the degree of attachment to a political 1990 survey 1998 survey of those 16 to 18 do not want the vote party, although this effect became less Right to for those under 18. It should also be 1990 survey 1998 survey vote at 16 Not involved Involved in Not involved Involved in pronounced between 1990 and 1998 in any at least one in any at least one noted that there is a connection Right to Good citizens… Good citizens… vote at 16 (Table 5). The latter observation is no Agree 40.5 47.8 47.7 44.4 between political involvement, assert their fulfill their assert their fulfill their rights duties rights duties doubt related to other data reported in N 304 508 258 579 certain conceptions of citizenship, Agree 46.8 41.8 47.4 39.0 Table 11: confidence in various “insti- and openness to such an idea. N 547 263 620 210 tutions,” particularly the Church and political parties, diminished somewhat Table 11: Right to Vote at 16 between 1990 and 1998; in contrast, it Opinions by Amount of Confidence in… (percentages)1 Table 8: Right to Vote at 16 is interesting to note that confidence in Opinions by Attitude to the Law elected officials increased by 2.7 percent. Right School Church Bureaucracy Media Politicians Parties Survey (percentages) to vote Some Not Some Not Some Not Some Not Some Not Some Not at 16 much much much much much much 1990 survey 1998 survey Openness to the idea of 16-year-olds 1990 Agree 41.6 61.6 41.8 49.7 42.4 50.6 44.9 45.2 41.7 47.2 45.9 44.6 Right to A good citizen… A good citizen… voting also varies with one’s idea of what vote at 16 makes a “good citizen.” Depending on N 671 138 488 320 536 269483 325 345 458 283 522 respects need not respect respects need not respect the law an unjust law the law an unjust law whether you think ideal citizens are 1998 Agree 41.2 60.1 37.8 50.7 41.6 48.8 44.9 45.8 44.4 46.0 41.0 53.6 Agree 43.0 53.4 38.952.0 people who “mind their own business N 638 193 341 491 387 443 356 476 243 589 144 690 N 646 163 422 415 without making a fuss,” or people who 1 The options available to the respondents were some confidence or not much confidence. “are prepared to get involved and

38 Electoral Insight July 2003 39 although the gap seems to narrow relatively limited political significance, It is logical to think that a greater demonstrate to defend their ideas,” you resistant to giving 16-year-olds the vote; vote to 16-year-olds (Table 9). It is over time: while 2.4 percent fewer it is reasonable to think that these interest in politics or a sense that one have a different attitude to lowering this particular position is particularly more surprising that a majority, although Secondary IV students supported initial results become more meaningful is more affected by government decisions the voting age (Table 6). The same conspicuous since there is majority a smaller majority, of the much larger the idea in 1998, 2.5 percent more when the opinions are cross-referenced would make one more receptive to the trends are evident when the opinions support for the idea among those who group declaring itself in favour of Secondary V students did. Of with other factors. proposal to give 16-year-olds the vote. are linked to the contrast between feel that a good citizen need not obey change still oppose the idea. And indeed, although a majority still citizens as people who feel it is more the law when it seems unjust (Table 8). opposed the suggestion, those who were important to assert their rights, or In closing, there are two paradoxical Table 5: Right to Vote at 16 very or somewhat interested in politics people who feel it is more important In the same vein, it would seem only results that we cannot leave unremarked. Opinions by Partisan Affinity were less opposed than those who to fulfill their duties (Table 7). Finally, logical that a significant proportion of In 1990, participation in at least one (percentages) were slightly or not at all interested the partisans of order, who want a good those in favour of the general status association reduced the opposition to 1990 survey 1998 survey Right to (Table 3). Between 1990 and 1998, citizen to “respect the law under any quo (“Our society does not need major lowering the voting age (Table 10). vote at 16 Close to Not close to Close to Not close to however, the difference increased; circumstances,” are proportionally more changes”) would oppose giving the What is surprising is that, in 1998, a party a party a party a party those most interested agreed with the opposition was highest among those Agree 56.3 41.1 52.5 42.5 idea by a slight majority, while those who do participate. Another surprise: N 213 599 238 598 least interested were yet a bit more Table 9: Right to Vote at 16 proportionately more, and in some opposed. The partisans and opponents Opinions by Attitude to Change cases a majority, of those people (percentages)1 of the vote for 16-year-olds could also with less confidence in a series of Table 6: Right to Vote at 16 be classified depending on whether 1990 survey 1998 survey “institutions” (school, church, Opinions by Conception of a Good Citizen they felt affected (very often or often) Right to Our society does not Our society does not bureaucracy, politicians and media) (percentages) need major changes need major changes or not (not very often or never) by vote at 16 accept the idea of 16-year-olds voting. 1990 survey 1998 survey Agree Disagree Agree completely/ Disagree somewhat/ government decisions. Somewhat Completely One notable exception is the case of Right to Good citizens… Good citizens… political parties in the 1990 survey vote at 16 Agree 34.3 46.3 40.2 46.8 mind their demonstrate mind their demonstrate Another aspect of the resistance to the (Table 11). own business for their ideas own business for their ideas N 108 697 169 666 vote for 16-year-olds is that there is a Agree 38.3 47.4 35.4 47.7 1 majority opposed, even among those The choice of responses is different in 1990 (agree and disagree) and 1998 (agree completely/ Conclusion N214597161673 somewhat and disagree somewhat/completely). who feel that voting is important to “make politics conform to your ideas” To sum up, the results presented (Table 4). In reality, the most decisive will undoubtedly feed the opposition Table 7: Right to Vote at 16 Table 10: Right to Vote at 16 Opinions by the Relation Between Rights and Duties factor in determining support for or Opinions by Participation in an Association to giving 16-year-olds the vote. Thus, of a Good Citizen opposition to lowering the voting age (percentages) it is worth noting that even a majority (percentages) is the degree of attachment to a political 1990 survey 1998 survey of those 16 to 18 do not want the vote party, although this effect became less Right to for those under 18. It should also be 1990 survey 1998 survey vote at 16 Not involved Involved in Not involved Involved in pronounced between 1990 and 1998 in any at least one in any at least one noted that there is a connection Right to Good citizens… Good citizens… vote at 16 (Table 5). The latter observation is no Agree 40.5 47.8 47.7 44.4 between political involvement, assert their fulfill their assert their fulfill their rights duties rights duties doubt related to other data reported in N 304 508 258 579 certain conceptions of citizenship, Agree 46.8 41.8 47.4 39.0 Table 11: confidence in various “insti- and openness to such an idea. N 547 263 620 210 tutions,” particularly the Church and political parties, diminished somewhat Table 11: Right to Vote at 16 between 1990 and 1998; in contrast, it Opinions by Amount of Confidence in… (percentages)1 Table 8: Right to Vote at 16 is interesting to note that confidence in Opinions by Attitude to the Law elected officials increased by 2.7 percent. Right School Church Bureaucracy Media Politicians Parties Survey (percentages) to vote Some Not Some Not Some Not Some Not Some Not Some Not at 16 much much much much much much 1990 survey 1998 survey Openness to the idea of 16-year-olds 1990 Agree 41.6 61.6 41.8 49.7 42.4 50.6 44.9 45.2 41.7 47.2 45.9 44.6 Right to A good citizen… A good citizen… voting also varies with one’s idea of what vote at 16 makes a “good citizen.” Depending on N 671 138 488 320 536 269483 325 345 458 283 522 respects need not respect respects need not respect the law an unjust law the law an unjust law whether you think ideal citizens are 1998 Agree 41.2 60.1 37.8 50.7 41.6 48.8 44.9 45.8 44.4 46.0 41.0 53.6 Agree 43.0 53.4 38.952.0 people who “mind their own business N 638 193 341 491 387 443 356 476 243 589 144 690 N 646 163 422 415 without making a fuss,” or people who 1 The options available to the respondents were some confidence or not much confidence. “are prepared to get involved and

38 Electoral Insight July 2003 39 On that basis, it would seem appropriate NOTES to concentrate on giving young people Youth in Canadian better preparation for exercising their 1. See Kathy Megyery, ed., Politics: Participation and Involvement, civil rights, rather than on whether to

Photo: Wayne Brown Photo: Wayne Research Studies of the Royal Commission give them the right to vote at 16 or 18. on Electoral Reform and Party Financing, This concern is all the more pressing Vol. 8 (Supply and Services Canada, given that, for some time now, there Toronto: Dundurn Press, 1991). seems to have been a disenchantment 2. For example, see Raymond Hudon, “Le droit de vote à 16 ans. Une décision pure- ment politique,” Le Soleil (May 31, 1996) … it would seem or “Evaluating the Pros and Cons. Are appropriate to concentrate 16-Year-Olds Ready to Vote?” Elections Today Vol. 6, No. 3 (Fall 1996). on giving young people 3. See the methodological note. better preparation for 4. See J. Patrick Boyer, Political Rights: exercising their civil rights, The Legal Framework of Elections in rather than on whether to Canada (Toronto: Butterworths, 1981), Every year, Chief Electoral Officer Jean-Pierre Kingsley meets with students attending the pp. 129–137. give them the right to vote Forum for Young Canadians, in Ottawa, to talk to them about the electoral process. 5. The right to vote at 18 was given in 1963 at 16 or 18. in Quebec and in 1971 in Ontario. The However, while citizen involvement Military Voters Act, 1917, which set out is not restricted to elections, these the conditions for Canadian military per- with politics. That being said, the remain crucial to the democratic sonnel to vote during a conflict, gave all issue should not be reduced simply to conduct of civic affairs. Democracy soldiers on active service the right to vote (http://www.archives.ca/05/0518/05180204/ the observed drop in voter turnout in is, of course, a hands-on affair, but 051802040102_e.html). However, in the past 12 to 15 years. This rather there is obviously no harm in support- 1993, Bill C-114 withdrew this right from misleading reading would result in ing it with philosophical principles soldiers under the age of 18. large part from a narrow conception and “theoretical” knowledge, with 6. Before the adoption of the current age of of citizen involvement, which is no an eye to producing better citizens majority of 18 in 1974, no less than a longer simply a question of voting. for tomorrow. dozen constitutions or acts changed the age of majority between 1791 and 1875, some lowering it and some raising it. Methodological Note 7. Peter Adams, Liberal Member of Parliament In May and June 1990, 832 students were surveyed in seven The composition of the sample is not random; the schools for Peterborough, Ontario, recently pre- schools in the cities of Québec and Lévis. The sample was were chosen to reflect the social and cultural diversity of the sented a private member’s bill proposing composed almost equally of boys and girls (52 percent and region being studied. The survey was given during class time that the voting age be lowered to 16 (Roy 48 percent), almost all between 16 and 18 (96 percent). A (generally a civics or history/geography class) and sometimes MacGregor, “At 16, teens are considered mature enough to drive, marry and work – little less than a third (31 percent) of the respondents had with the teacher present, which produced a very high so why not vote?” The Globe and Mail, been educated exclusively or primarily in private schools. response rate. March 4, 2003).

8. Although as Patrick Boyer (Political Rights, In 1998, at the same point in the school year as in 1990, The surveys were funded by various sources, including in p. 132) notes, such intentions can manifest the same schools took part in the survey – with the exception particular the Royal Commission on Electoral Reform and themselves. Thus, giving the right to vote of one private school, which was replaced by another private Party Financing (Lortie Commission) for the 1990 survey, to new categories of electors in 1917, in school. The survey was given to 847 students and, again, and the Fonds Gérard-Dion of the Université Laval for the the middle of a war, was essentially an slightly more were boys than girls (53 percent and 47 percent), 1998 survey. effort to get the Conservative government most between the ages of 16 and 18 (97 percent). Compared of the day re-elected. On the other hand, withdrawing the right to vote from soldiers to the sample for 1990, the new sample had slightly fewer under the age of 18 was primarily an effort to students from private schools (28 percent). standardize the electoral rights of all citizens.

40 Electoral Insight July 2003 41 On that basis, it would seem appropriate NOTES to concentrate on giving young people Youth in Canadian better preparation for exercising their 1. See Kathy Megyery, ed., Politics: Participation and Involvement, civil rights, rather than on whether to

40 Electoral Insight July 2003 41 Youth Participation in Elections

at the time of the change by coalitions of Social Democrats (Sozialdemokratische Partei

Deutschland) and Greens (Die Photo: Getty Images Grünen).6 In most European countries, Lowering the Voting Age the issue has found some support from progressive left-wing and liberal parties. The Social Democrat leaders in France European Debates and Experiences (Lionel Jospin of the Parti Socialist [PS]) and the Netherlands (Ad Melkert of the Partij van de Arbeid Kees Aarts [PvdA]) endorsed the idea of lowering University of Twente, The Netherlands the voting age at some point in their 2002 election campaigns, although the Charlotte van Hees issue did not make it into the formal Dutch Centre for Political Participation, The Netherlands party programs. In Britain and Flanders (Belgium) the issue has been put on the political agenda by the cabinet Westminster, home of the Parliament of the United Kingdom, in London. Democracy grows on contradictions, and one of these is literature, there appear to be only two such criteria about minister specifically responsible for about the question of who exactly belongs to the demos. which there is currently a global consensus. One of these youth affairs. In Britain, the Electoral Commission on the future of local democracy10 that On the one hand, general suffrage is seen as a defining is a minimum voting age of 18 years.3 is now reviewing the minimum voting the voting age should be reduced to 16. characteristic of democracy; on the other hand, suffrage In Flanders the liberal VLD age and will report to Parliament at never extends to all those who are ruled. Drawing the lines But is there really a consensus? If so, it is of a relatively (Vlaamse Liberale Partij), the green the beginning of 2004. The Electoral Why voting at 16? is also known as the problem of inclusiveness. recent date. The voting age has decreased steadily since Agalev (Anders Gaan Leven), and Commission is investigating the claim And why not? the expansion of suffrage in the older democracies in the the progressive splinter Spirit that lowering the voting age would Who should be excluded from taking part in elections? first decades of the 20th century. The Dutch case may (Sociaal-Progressief-Internationaal- help to re-engage young people in the The motives of supporters and oppo- This is one of the toughest questions of democratic theory. serve as an example. At the time of the introduction of Regionalistisch-Integraal-democratisch- political process, as well as the argu- nents of lowering the voting age are The Austrian economist Schumpeter argued long ago that, the modern Dutch electoral system, in 1917, the minimum Toekomstgericht) support the change.7 ments for keeping it as it stands. In the very similar in the various countries. precisely because there is no simple answer, “must we not voting age was 25. In 1946, it was lowered to 23 years. In The VLD, which is the second-largest meantime a large number of social and Their arguments can roughly be divided leave it to every populus to define himself?”1 This radical 1965, 21-year-olds were granted the vote, and in 1972, political organiza- into three categories: legal, political viewpoint is, however, not generally accepted. It is more 18-year-olds followed. It appears that similar developments tions, including and educational. common to try and pin down more or less universal criteria occurred in many Western democracies. In Britain, the Electoral Commission is now several parties, have for inclusion. Such criteria are at first necessarily abstract: reviewing the minimum voting age and will initiated a campaign Legal arguments for example, a voter should be able to “reason” about politics, Moreover, the apparent consensus is fragile. It holds at the called “Votes at 16”, Legally, young people come of age and to have political preferences. moment, with few exceptions,4 for elections of national report to Parliament at the beginning of 2004. aimed at influencing when they turn 18. Disregarding minor assemblies and presidents. But it has been the subject of public opinion and legal differences among the European Translated into political practice, it appears that a large renewed debate in recent years in a variety of countries, encouraging MPs to countries, this means that 18-year-olds variety of criteria are applied to make exclusion work. One and in some places the cracks are already visible, starting party in Flanders, has linked the issue actively support the measure.8 Among can be held fully responsible for their of these is a minimum voting age. The argument is that, with the rules for local elections. to its wish to abolish compulsory voting. the parties in favour are the Scottish actions, can stand trial in an adult lacking better indicators, a minimum age is a proxy for civic There is no political majority for and Welsh nationalist parties (Scottish court, can marry without parental maturity and, therefore, a qualification for full citizenship. Although the issue is not making headlines yet, calls to abolishing compulsory voting at National Party and Party of Wales), consent and can start their own Of course, this is a circular argument: full citizenship, in lower the voting age to 16 are on the public agenda in present. Also, lowering the voting age and the Liberal Democrats. The businesses. This is an argument against turn, determines the minimum age. But in political several European countries. In Germany, 6 of the 16 states5 for regional or federal elections requires latter’s party leader, Charles Kennedy, voting at 16. The counterargument is practice, the circularity is taken for granted.2 have, in the past seven years, actually lowered the active a constitutional amendment, and publicly advocated the measure in that many other legal rights and duties voting age for local elections to 16. In other countries, therefore political support from the February 2002.9 Individual Labour and are granted at 16, such as joining the Is there consensus on the minimum voting age? voting at 16 has, so far, merely been debated. Walloon provinces. All this is still far Conservative politicians have also military, buying alcohol, leaving school away, but following the German exam- expressed support. At the local level, and paying taxes. Supporters of voting The problem of inclusiveness is solved, in practice, by criteria There is a clear political dimension to lowering the voting ple, changes at the local level might the Commission on Local Governance at 16 have highlighted these inconsis- that usually differ among countries. According to recent age. All six German states mentioned above were governed be within reach. recently concluded in a major report tencies affecting young people’s rights

42 Electoral Insight July 2003 43 Youth Participation in Elections

at the time of the change by coalitions of Social Democrats (Sozialdemokratische Partei

42 Electoral Insight July 2003 43 and responsibilities at different ages. In green, and liberal parties, which in Meanwhile, it is interesting that many What can we learn from This developmental approach to voting a political act. Thus, after the 1999 some of the German states, e.g. Lower Europe have a relatively young young people, when asked in surveys research? might fit well with the educational argu- state election replaced the SPD- Saxony, it was the decisive argument electorate. for their opinion on lowering the voting ments for lowering the voting age that Greens coalition by a CDU-FDP for lowering the voting age at the local age, oppose it.14 They believe that they Traditionally, voting is regarded as a we referred to above. At age 16, most majority, the Hesse state government level. Educational arguments lack the political knowledge to vote. more or less purposeful vehicle for young persons still attend school. Civic renounced its 1998 decision to lower The two most frequently mentioned However, their support increases when expressing political preferences, which education classes, which are commonly the voting age to 16. But whatever The right to participate is implicitly arguments against lowering the voting they are asked if they think lowering is more easily used by those people required before age 18, may support the direction the reforms take, it is granted in Article 12 of the United age are that it will have a negative the voting age to 16 would be a good who have the relevant resources socialization into voting habits – together unlikely, just as it was in the 1970s, Nations Convention on the Rights of effect on voter turnout, and that young idea if their political knowledge were (notably education) at their disposal. with a competitive electoral contest.17 that they will be halted by national the Child, which all Western European people tend to vote for extremist improved. In Britain, since September borders. countries support. Article 12 states parties. Both arguments build on the 2002, civic education has been part of Although its importance for the The research in three German states that the right to express views freely in assumption that voting requires a civic the national curriculum for secondary individual decision to vote or not is on the turnout level of 16–18-year-olds all matters affecting the child is given maturity that is absent in the typical schools. The “Votes at 16” campaign unquestioned, this resource-oriented lends some support to this hypothesis. to every child who is capable of forming 16-year-old. used the launch of this subject to explanation alone accounts for only a In North Rhine-Westphalia, the turnout his or her views, the views of the child support its case. small fraction of the decision to vote among 16–21-year-olds18 was slightly being given due weight in accordance This reasoning has, however, also been or not (typically less than 10 percent). below the average for the whole elec- with his or her age and maturity. reversed. The turnout rate among What about voting for extreme, In the search for better explanations, torate, but clearly higher – by about Although not literally a “right to young people has always been relatively anti-system parties? Research in three one variable also appeared to be uni- 5 to 8 percent – than among those participate” in matters affecting the low, but lately it has been suggested German states that have recently formly relevant. This is the age of the aged 21–30. Similar results hold for child, it is often interpreted as such. that turnout no longer rises as younger lowered the voting age from 18 to 16 voter. Research suggests that people Lower Saxony, where 16–18-year-olds Consequently, it can be argued that generations age.12 Young people are shows that these new voters do vote become more inclined to vote when vote at a level comparable to 35–45- this treaty provides legal grounds for not attracted by election-related politi- in different patterns than older voters; they grow older, but that the relation- year-olds. Finally, a similar conclusion lowering the voting age. cal activities, and increasing numbers however a uniform trend is absent.15 can be drawn for the remain uninterested when they grow Electoral statistics from the 1999 local 1999 local elections Political arguments older. Schizzerotto and Gasperoni elections in North Rhine-Westphalia In most countries, lowering the voting in Saxony-Anhalt. Politicians and young people, it is describe this as a threat to show that the Greens and the liberal age involves a change to the constitution, often claimed, live in different worlds democracy: FDP (Freie demokratische Partei) are which cannot be accomplished quickly. If the developmental and speak different languages. Many more popular among young people, theory of turnout politicians regard young people as Limited political participation – at the expense of the SPD and CDU holds, these genera- objects of policy. Youth policies typi- voting, membership in political (Christlich demokratische Union ship reverses for the elderly. In addition tions of 16–18-year-olds in Germany cally focus on the (relatively few) parties, in youth associations Deutschlands). But in the 1996 to this life-cycle effect of age, a gener- are more likely to acquire the habit of young people who show deviant and organizations, ational explanation of turnout has also voting than their predecessors, who behaviour. Not surprisingly, young and representation often been suggested: younger genera- learned to vote only at age 18. This people feel excluded from the demo- in decision- Six German states have recently lowered tions vote less than older generations, may be a good sign for the future of cratic process.11 making bodies – the voting age from 18 to 16. even when they grow older. electoral democracy. is understood as It is argued that giving 16- and a major youth Recent publications have highlighted The future 17-year-olds the right to vote will problem in most Western Lower Saxony local elections, other age-related factors in the expla- provide political parties with an European countries … The surveys in the cities of Hannover nation of turnout. Plutzer (2002) Will other European countries follow incentive to make politics more declining political engagement and Braunschweig show that the presents and tests a “developmental the German example? Probably not in interesting, and to speak and write and traditional societal participa- CDU and Greens received more votes theory of turnout”, which emphasizes the short term. In most countries, low- in language that young people under- tion among youth is perceived as among the young. Finally, in the 1999 the habitual nature of voting and the ering the voting age involves a change stand. Skeptics hold that politicians a threat to the future of the Saxony-Anhalt local elections, the crucial role of childhood socialization to the constitution, which cannot be create the wish for voting rights, representative democracy ….13 differences in party preferences were into voting.16 Whether first-time voters accomplished quickly. Experiments at rather than respond to it. Politicians hardly noticeable. It is important to do actually cast a vote is, to a consider- the local level are more easily devel- are attracted by the advantages of a Therefore, it is argued, youth must note that in none of these states is able extent, dependent on their parents’ oped, and this seems to be the feasible new potential electorate. It is true get involved in electoral politics at there a strong tendency among the social and political resources; only later route in Flanders (Belgium) and that the supporters of voting at 16 a younger age – and granting them young to vote for parties of the in life are these resources replaced by Britain. Moreover, changing the are mainly found among left-wing, the right to vote might help. extreme left or right. acquired habits. rules of the political process is itself

44 Electoral Insight July 2003 45 and responsibilities at different ages. In green, and liberal parties, which in Meanwhile, it is interesting that many What can we learn from This developmental approach to voting a political act. Thus, after the 1999 some of the German states, e.g. Lower Europe have a relatively young young people, when asked in surveys research? might fit well with the educational argu- state election replaced the SPD- Saxony, it was the decisive argument electorate. for their opinion on lowering the voting ments for lowering the voting age that Greens coalition by a CDU-FDP for lowering the voting age at the local age, oppose it.14 They believe that they Traditionally, voting is regarded as a we referred to above. At age 16, most majority, the Hesse state government level. Educational arguments lack the political knowledge to vote. more or less purposeful vehicle for young persons still attend school. Civic renounced its 1998 decision to lower The two most frequently mentioned However, their support increases when expressing political preferences, which education classes, which are commonly the voting age to 16. But whatever The right to participate is implicitly arguments against lowering the voting they are asked if they think lowering is more easily used by those people required before age 18, may support the direction the reforms take, it is granted in Article 12 of the United age are that it will have a negative the voting age to 16 would be a good who have the relevant resources socialization into voting habits – together unlikely, just as it was in the 1970s, Nations Convention on the Rights of effect on voter turnout, and that young idea if their political knowledge were (notably education) at their disposal. with a competitive electoral contest.17 that they will be halted by national the Child, which all Western European people tend to vote for extremist improved. In Britain, since September borders. countries support. Article 12 states parties. Both arguments build on the 2002, civic education has been part of Although its importance for the The research in three German states that the right to express views freely in assumption that voting requires a civic the national curriculum for secondary individual decision to vote or not is on the turnout level of 16–18-year-olds all matters affecting the child is given maturity that is absent in the typical schools. The “Votes at 16” campaign unquestioned, this resource-oriented lends some support to this hypothesis. to every child who is capable of forming 16-year-old. used the launch of this subject to explanation alone accounts for only a In North Rhine-Westphalia, the turnout his or her views, the views of the child support its case. small fraction of the decision to vote among 16–21-year-olds18 was slightly being given due weight in accordance This reasoning has, however, also been or not (typically less than 10 percent). below the average for the whole elec- with his or her age and maturity. reversed. The turnout rate among What about voting for extreme, In the search for better explanations, torate, but clearly higher – by about Although not literally a “right to young people has always been relatively anti-system parties? Research in three one variable also appeared to be uni- 5 to 8 percent – than among those participate” in matters affecting the low, but lately it has been suggested German states that have recently formly relevant. This is the age of the aged 21–30. Similar results hold for child, it is often interpreted as such. that turnout no longer rises as younger lowered the voting age from 18 to 16 voter. Research suggests that people Lower Saxony, where 16–18-year-olds Consequently, it can be argued that generations age.12 Young people are shows that these new voters do vote become more inclined to vote when vote at a level comparable to 35–45- this treaty provides legal grounds for not attracted by election-related politi- in different patterns than older voters; they grow older, but that the relation- year-olds. Finally, a similar conclusion lowering the voting age. cal activities, and increasing numbers however a uniform trend is absent.15 can be drawn for the remain uninterested when they grow Electoral statistics from the 1999 local 1999 local elections Political arguments older. Schizzerotto and Gasperoni elections in North Rhine-Westphalia In most countries, lowering the voting in Saxony-Anhalt. Politicians and young people, it is describe this as a threat to show that the Greens and the liberal age involves a change to the constitution, often claimed, live in different worlds democracy: FDP (Freie demokratische Partei) are which cannot be accomplished quickly. If the developmental and speak different languages. Many more popular among young people, theory of turnout politicians regard young people as Limited political participation – at the expense of the SPD and CDU holds, these genera- objects of policy. Youth policies typi- voting, membership in political (Christlich demokratische Union ship reverses for the elderly. In addition tions of 16–18-year-olds in Germany cally focus on the (relatively few) parties, in youth associations Deutschlands). But in the 1996 to this life-cycle effect of age, a gener- are more likely to acquire the habit of young people who show deviant and organizations, ational explanation of turnout has also voting than their predecessors, who behaviour. Not surprisingly, young and representation often been suggested: younger genera- learned to vote only at age 18. This people feel excluded from the demo- in decision- Six German states have recently lowered tions vote less than older generations, may be a good sign for the future of cratic process.11 making bodies – the voting age from 18 to 16. even when they grow older. electoral democracy. is understood as It is argued that giving 16- and a major youth Recent publications have highlighted The future 17-year-olds the right to vote will problem in most Western Lower Saxony local elections, other age-related factors in the expla- provide political parties with an European countries … The surveys in the cities of Hannover nation of turnout. Plutzer (2002) Will other European countries follow incentive to make politics more declining political engagement and Braunschweig show that the presents and tests a “developmental the German example? Probably not in interesting, and to speak and write and traditional societal participa- CDU and Greens received more votes theory of turnout”, which emphasizes the short term. In most countries, low- in language that young people under- tion among youth is perceived as among the young. Finally, in the 1999 the habitual nature of voting and the ering the voting age involves a change stand. Skeptics hold that politicians a threat to the future of the Saxony-Anhalt local elections, the crucial role of childhood socialization to the constitution, which cannot be create the wish for voting rights, representative democracy ….13 differences in party preferences were into voting.16 Whether first-time voters accomplished quickly. Experiments at rather than respond to it. Politicians hardly noticeable. It is important to do actually cast a vote is, to a consider- the local level are more easily devel- are attracted by the advantages of a Therefore, it is argued, youth must note that in none of these states is able extent, dependent on their parents’ oped, and this seems to be the feasible new potential electorate. It is true get involved in electoral politics at there a strong tendency among the social and political resources; only later route in Flanders (Belgium) and that the supporters of voting at 16 a younger age – and granting them young to vote for parties of the in life are these resources replaced by Britain. Moreover, changing the are mainly found among left-wing, the right to vote might help. extreme left or right. acquired habits. rules of the political process is itself

44 Electoral Insight July 2003 45 Youth Participation in Elections

NOTES

1. Joseph Schumpeter, Capitalism, Socialism, 12. For an overview of arguments and evidence, and Democracy (London: Allen & Unwin, see Mark N. Franklin, The Dynamics of 1943, 1976 ed.), p. 245. Voter Turnout in Established Democracies since 1945 (Cambridge: Cambridge 2. Robert A. Dahl, Democracy and Its Critics University Press, forthcoming). Rush the Vote (New Haven: Yale U.P., 1989), p. 127. 13. A. Schizzerotto and G. Gasperoni (super- 3. The other is the exclusion from voting visors), Study on the State of Young People Wayne Brown rights of mentally deficient persons, see and Youth Policy in Europe (Milan: IARD, André Blais, Louis Massicotte, Antoine Managing Editor, Electoral Insight, Elections Canada 2001), pp. 1–17. Yoshinaka, “Deciding Who Has the Right to Vote: A Comparative Analysis of 14. Charlotte Van Hees and Heleen Snijders, Election Laws,” Electoral Studies Vol. 20 Drank, Brommer en dus ook stemmen!: (2001), pp. 41–62. Een onderzoek naar de haalbaarheid en Rush the Vote, an Ontario youth organization, is using wenselijkheid van het stemrecht voor zestien- music and entertainers to encourage young people “to get 4. The best-known exception is Brazil, with jarigen (Amsterdam: Instituut voor Publiek involved in the democratic process and to become better non-compulsory voting for 16–18-year-olds en Politiek, 2002); for Britain, see also (for 18–70-year-olds, voting is compulsory). informed about society’s issues.” Spotlight, the National Youth Agency brief- Brown Photo: Wayne Several Asian countries have a minimum ing paper, available at www.nya.org.uk/ voting age higher than 18 – see Blais, download-PDF/spotlight-5.pdf. The national Rush the Vote campaign was launched at an Massicotte and Yoshinaka, “Deciding April 6, 2003, block party in downtown Ottawa. It was Who Has the Right to Vote”. 15. The sources are: Statistisches Landesamt, timed to coincide with the annual Juno awards. This helped Nordrhein-Westfalen; Statistisches 5. These six German states are: Hesse, attract 17 solo artists and bands, who gave free performances Landesamt, Sachsen-Anhalt; Universität Saxony-Anhalt, Schleswig-Holstein, Hannover, Arbeitsgruppe Interdisziplinäre on a stage constructed in the middle of what is normally Lower Saxony, North Rhine-Westphalia, Sozialstrukturforschung. a busy street in the nation’s capital. “If you want a large Mecklenburg-West Pomerania. attendance, bring the music,” said Paul Green, Rush the 16. Eric Plutzer, “Becoming a Habitual Voter: 6. Manfred Schwarzmeier, “Kommunalwahl Vote’s executive director. “It is the tool by which kids really Inertia, Resources and Growth in Young At the April 6, 2003, Rush the Vote rally in Ottawa, young people ab 16 Jahren: Mehr als nur ein Adulthood,” American Political Science understand their world. Right or wrong, that is a fact. They voted in a mock referendum on whether the voting age should be Partizipationsplacebo?,” BJR- Review Vol. 96 (2002), pp. 41–56. take their cue from the leaders of the entertainment world, reduced to 16. Jugendnachrichten Januar/Februar (2002). not from social and political leaders. In music, they see a 17. Franklin shows that the context of their 7. Joël de Ceulaer, “Een verjongingskuur voor first election can leave a “footprint” in reflection of themselves.” The rally was also supported by Founded in 1997, Rush the Vote was inspired by the Rock de stem,” Knack Vol. 32 (November 27, the turnout levels of a generation of new the national MuchMusic television channel, the National the Vote campaigns in the United States and also evolved 2002), pp. 20–25. voters for many years. Mark N. Franklin, Capital Commission and three local radio stations. from the Universal Black Student Association (founded 8. See www.votesat16.org.uk. “Electoral Competitiveness and Turnout: because of an estimated 50 percent school dropout rate How Voters React to the Changing Several speakers encouraged young people to get involved among Black youth in Ontario), and from B.L.O.C.K. 9. Kennedy’s speech at Westminster Day, on Character of Elections,” paper presented in political and social causes and use their right to vote. Headz (Building Links on Community Korners). While February 5, 2002, reported by BBC News at Joint Sessions of Workshops of the on BBCi, can be found at news.bbc.co.uk/ European Consortium for Political Research, Meanwhile, many of those who attended marked ballots in a survey research indicates that only about 25 percent of 1/hi/uk_politics/1801693.stm. Edinburgh, March 28 – April 3, 2003. mock referendum on a question about whether the voting age Canada’s 18 to 24-year-olds voted at the 2000 federal should be lowered from 18 to 16. By an almost two to one vote election, Mr. Green believes the proportion of Black youth 10. Discussed in the briefing paper of the 18. The categorization of age results from count (304 to 171), they supported making such a change. who cast ballots was likely much lower. “Many feel they are National Youth Agency, Spotlight Issue 11 administrative rules. (January 2003); Commission on Local dealing with other day-to-day problems, including schools, Governance, Free to Differ: The Future for “Rush the Vote focuses not only on trying to get youth to the jobs, careers, the judicial system. Voting is on the back burner. Local Democracy (Local Government polls, but to simplify information; making it easier to under- We are trying to show them how everything is related.” Information Unit, 2002). stand,” says Mr. Green. “Many youth can’t see the difference 11. Marije Cornelissen, ‘De’ jongere bestaat between the various parties and candidates and what they Rush the Vote plans to hold another event during the next niet. Negatieve gevolgen van de beeldvorming stand for. The parties have not made it clear to them.” Ontario provincial election, in a further attempt to boost over jongeren (Utrecht: Landelijk Bureau youth voting. Its first major rally was held during the 1999 ter bestrijding van Rassendiscriminatie, Mr. Green also calls for the creation of a new national body Ontario election, and a Dunk the Vote event, involving 2000), p. 54; e.g. Children’s Rights Alliance for England, The REAL Democratic Deficit: with a strategy to mount a full-time effort solely devoted to basketball personalities, was held in 2000 at the University Why 16 and 17 Year-Olds Should Be Allowed informing young Canadians about the importance of voting of Toronto to encourage higher turnout in municipal to Vote (London: CRAE, 2000), p. 20. and encouraging them to do so. elections.

46 Electoral Insight July 2003 47 Youth Participation in Elections

NOTES

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48 Electoral Insight