VOTING AND DEMOCRACY REVIEW The Newsletter of The Center for Voting and Democracy

Volume II, Number 4 "Making Your Vote Count" Fall 1994

U.S. House Elections: Dubious Democracy Lack of Choice, Low Participation Undercut Vote for Change

Forty years of one-party rule came What of 1994, then? Rushing to call Many defenders of winner-take-all to an end this year, when Republicans the election a major realignment, pundits voting might protest, but very few of gained a majority in the U.S. House of have failed to grasp the impact of the them have any real knowledge of PR or Representatives. Yet the vote for change rules of the game. New polls show that the range of ways it could be adopted. cannot disguise a fundamental truth: two-thirds of Americans expect little House elections are hardly democratic. change in and give a higher Dire warnings about Italy's experience Due to partisan gerrymandering and a favorability rating to a theoretical new with PR obscure PR's record of success. winner-take-all voting system, most party than to the Republican party. (see page four) voters lack real choices, leading directly 1994's vote for "let's-try-the-only-other- to an absurdly low voter turnout. option" is hardly a mandate. CV&D's Rob Richie makes the case for Democracy 2000: How to adoption of proportional representation. Change may happen, but it's a safe Get PR for Congress bet that it won't make most voters any The 1994 elections have resulted in happier. Their frustration with wage Congress in 1967 passed a statute Republicans gaining control of the U. S. stagnation, crime, bureaucracy and other (2 USCS 2c) that requires states to House of Representatives for the first problems demand far more complex use single-member districts. But time since 1954. But the great majority solutions than those in the Republicans' there is a long history of states using of Americans did not help bring about poll-driven "Contract with America." multi-member districts for their this change, either not voting for House delegations: Congress Republicans, voting in barely contested But as the technology for running required single-member districts first House races or simply not voting at all. winner-take-all campaigns becomes in 1842 (to allow for more political more sophisticated -- with focus groups, diversity within states), dropped the 1994 unofficial results show less than polling and opposition research -- requirement in 1852, restored it in 36% of eligible voters voted in House complex messages about truly new ideas 1862 and dropped it again in 1929. elections. Only 12% of seats changed are harder than ever to deliver in the Congress should give states the party, and most elections were won by "zero-sum" world of a two-party system. option to use PR in multi-member landslides (over 60%). The 67% 1994's campaigns were among the worst districts. Such an amendment to the "landslide index" for incumbents actually in history as far as personal attacks, 1967 law would be quite consistent was higher than in 1992, and 91% of all empty sloganeering and mirror-image with its original intent, which was to incumbents won re-election -- not too messages by both parties targeting the protect racial minorities by removing much lower than 1988's 98% rate. same group of "swing" voters. These the possibility of winner-take-all at- problems are all directly connected to large elections after passage of the Consistent for decades, such figures voters having only two credible choices. Voting Rights Act. are not targeted at Republicans. Their victory in fact was long overdue if our PR a Real Alternative Support for PR for Congress is system's defenders have any pretense of growing, with voices as diverse as sincerity in arguing our system promotes It's clearly time to take a hard look at Kevin Phillips, Eleanor Smeal, New regular changes in power. That the GOP our winner-take-all voting system. Its Yorker editors and Clarence Page had not won more than 44% of House survival is due far more to institutional urging its consideration. CV&D seats since 1958 despite often winning inertia than any reasoned support for its strongly recommends formation of the presidency had made such defenses use over proportional representation (PR) high-level, multi-partisan ridiculous: the reality is winner-take-all systems that maximize voters' ability to commissions at national and state easily can mean one-party domination. elect the candidates they like best. levels to review the full range of potential electoral reforms.

Voting and Democracy Review Fall 1994 Page 1 "Making your vote count"

Note from the Director The Center for Voting and Voting and Democracy Review now voting for its Community School Board Democracy (CV&D) serves as a will be produced four times a year, due to elections, and CV&D has organized two clearinghouse on voting systems that a sensible decision by The Center for meetings among civic and educational foster responsive governance, fair Voting and Democracy's new, highly- leaders to develop an education program representation and voter participation. qualified Board of Directors (see box to on the system before the 1996 elections. Voting and Democracy Review is right) to divert some of our resources to • CV&D members published a range published quarterly; subscriptions are $15. All rights reserved; no part may be several exciting projects. A survey of of books touching on PR, including Sam recent activities indicates how much we Smith's Shadows of Hope, Matthew reproduced or transmitted by any means without prior written permission from seek to do in this time of great Cossolotto's Almanac of European CV&D: 6905 Fifth St. NW, Suite 200, opportunity to pursue electoral fairness: Politics, Douglas Amy's Real Choices, Washington, DC 20012 (202) 882-7378. • Within hours of polls closing, New Voices, David Kairys' With Liberty CV&D released a report on the 1994 and Justice For Some, Wilma Rule and CV&D Board of Directors elections, analyzing the number of votes Joseph Zimmerman's Electoral Systems Matthew Cossolotto (President) Author, Almanac of European Politics cast for losing candidates, representation in Comparative Perspective and Lani Cynthia Terrell (Vice-President) of women, voter turnout and Guinier's Tyranny of the Majority, Campaign consultant (DC) uncompetitive House races. The report • We continue to edit our quarterly Howard Fain (Secreta ry) was cited in USA Today, featured in the column in the National Civic Review and President, Fair Ballot Alliance of Mass. Cleveland Plain Dealer and led to write articles for such publications as David Lampe: (Treasurer) Editor, National Civic Review (CO) several radio interviews. A longer report the newsletters of the Center for Carolyn Campbell will be released in January. Responsive Politics and Poverty and City council aide/Green Party leader (AZ) • The National Civic League has held Race Research and Action Council. Donna Edwards two meetings of a Voting Rights in • Many CV&D members have been Exec. Director, Center for New Democracy George Friday Local Governance Project Advisory active in their home areas. North Development, Piedmont P eace Project (NC) Committee to produce a comprehensive Carolina's Lee Mortimer served on a Lawrence Hansen handbook for communities on city-county merger task force and nearly Vice - President, Joyce Foundation (IL) compliance with the Voting Rights Act. I convinced fellow members to suggest Hendrik Hertzberg was asked to serve on the committee with preference voting. Pro-PR groups with Executive Editor, New Yorker magazine David Leslie leading voting rights experts to provide CV&D members in Washington, Civic leader, Cambridge (MA) expertise on modified at-large voting California and Massachusetts all filed George Pillsbury systems. CV&D Board member Ed Still press releases on the 1994 elections, Founder, Funding Exchange (MA) and I will co-author a chapter on these while CV&D members wrote pro-PR William Redpath Ballot Access Chair, Libertarian Party (VA) systems for the handbook. columns for publication in , Theresa Reed • Ed Still and University of Iowa, Montana, Missouri and more. Exec. Director, Part of the Solution (MA) law professor Pamela Karlan prepared an Wilma Rule • On a daily basis we respond to excellent amicus brief on behalf of information requests from professors, Adjunct professor, U. Nevada-Reno (CA) CV&D to file in a Maryland voting Marian Spencer city managers, state legislators, voting Former Cincinnati vice-mayor (OH) rights case in which a federal judge rights organizations and reformers. Edward Still imposed cumulative voting (see page 3). • Looking ahead to the next few Civil rights attorney (AL) • In , state leaders led by a months, we shortly will produce our CV&D Advisory Board former Member of Congress, filed an Voting and Democracy Report: 1995, John B. Anderson (National Chair) anti-gerrymandering suit against the release a graphics series explaining Douglas Amy Kathleen Barber state's 1992 redistricting plan. CV&D preference voting, present our Champion Theodore Berry John Brittain Advisory Board Chair John Anderson is of Democracy awards for 1994, hold Martha Burk Eugene Eidenberg co-counsel in the case, and CV&D was events in three cities and write requested James Elwood Jack Gargan consulted on the plaintiffs' suggestion for Dolores Huerta Mel King articles for several publications. Arthur Kinoy Arend Lijphart PR as an alternative approach. Yes, we've got a lot to do! We thank Michael Lind Manning Marable • The City of Cambridge gave you for your volunteer activity and Roxanne Qualls Michael Shuman CV&D a contract to prepare a study on financial assistance that makes our work James Skillen Eleanor Smeal computerizing its preference voting -- still done on a shoestring budget Maureen Smith Sam Smith Bobbie Sterne Velma Veloria system ballot count. Preliminary reaction despite growing prospects for assistance Tyrone Yates Joseph Zimmerman to the report has been quite favorable; from foundations – possible. CV&D answered questions about the CV&D National Director Robert Richie report at a well-attended public meeting. Rob Richie • New York City uses preference

Voting and Democracy Review Fall 1994 Page 2 "Making your vote count"

Voting System Reform Update Notable Quotes

Ø Seattle group starts PR campaign: leaders and the Durham Herald-Sun in "[A] far - reaching reform that Washington CPR is campaigning hard to supporting PR as part of a proposed city- deserves more attention is modifying adopt preference voting for Seattle city county merger. A task force voted by a our electoral system in the di rection of council elections. Signature-gathering one-vote margin not to recommend proportional representation with an has begun for a 1995 vote; the preference voting, but the plan may be eye to opening up the parties and campaign's advisory committee includes resurrected if merger plans continue. increasing voter participation.... a former president of the League of In , a St. Petersburg Times Americans should at least begin Women Voters, Seattle NOW, a retired editor has advocated cumulative voting thinking about how to modify our county commissioner and representatives for school board elections, while Miami system in a proportional direction." of the Libertarian Party and Rainbow Beach's Blue Ribbon Committee on Political commentator Kevin Phillips , Coalition. For information, write WCPR Diversity hosted CV&D's Rob Richie for in his 1994 book Arrogant Capital at: P.O. Box 20534, Seattle WA 98102. a well-received presentation on PR. "The system of proportional representation ensures that virtually Ø Ø Phillips, Jackson, ADA call for Courts send mixed messages on every constituency in the country will national commission to examine PR: voting rights: In June the Supreme have a hearing in the national and Creation of a national commission to Court upheld "majority minority" provincial legislatures." study proportional voting systems was districting in the Florida De Grandy v. Bishop Desmond Tutu, in 1994 book urged recently by Rev. Jesse Jackson in Johnson case, but put limits on how The Rainbo w People of God an address to the National Rainbow many such districts should be drawn. Coalition's annual conference, by Federal judges in North Carolina's "There is no issue that is more Americans for Democratic Action in a much-watched congressional districting sensitive to politicians of all colors and formal resolution and by Kevin Phillips case approved black majority districts, ideological persuasions than in his new book Arrogant Capital. but judges in Georgia, and redistricting. It will determine who Louisiana threw out similar districts. The wins and loses for eight years." Ø Maryland cumulative voting order Supreme Court likely will rule on these Ted Harrington, political science reversed on narrow grounds: The cases during its current term. chair, UNC - Charlotte, quot ed during Fourth Circuit Court reversed an historic Shaw v. Hunt trial, March 1994 order requiring Worcester County (MD) Ø German elections earn points for to implement cumulative voting shortly PR: October elections in Germany "Another change that could before a scheduled election. Citing showed the strength of its "mixed have a positive outcome [on voter Justice Clarence Thomas' opinion in the member PR" system. Helmut Kohl's turnout] is the addition of more 1994 Holder v. Hall case that described ruling coalition retained power and 80% political parties and modified at-large voting systems as of voters supported the major parties, but candidates....[T]he one way to assure viable options in voting rights cases, a the option to vote for other parties gave more diversity on the ballot is to three-judge panel described cumulative the system the flexibility to respond to change the electoral system and adopt voting as a legitimate remedy, but said pressures from the Green Party and proportional representation." the county should have more of an eastern Germans adapting to a new Seymour Lipset, 2/94 Insight article opportunity to choose a new system. economy. Neo-fascists were rejected. "Why Americans Refuse to Vote" Cumulative voting is gaining support The role of PR can be demonstrated elsewhere in Maryland. In Salisbury, by comparing district and PR elections. "There may have been a time when Republican city council member Bob Kohl's coalition won 67% of single- our interests were more or less tied to Caldwell's proposal to adopt cumulative member district seats with its 48.4% of our geography. But in the highly voting led to a request for CV&D's Rob the vote, but the PR seats allowed other mobile society that America has Richie to make a presentation to council parties to win their fair share. become, political viewpoint certainly members and community leaders. seems worth considering in drawing Ø Women fare well in PR elections in the boundaries of a district....One Ø PR plans draw attention in several Germany, Sweden: Women won 41% of interesting proposal would cut the communities: Leaders in several cities seats in Sweden's September elections Gordian knot by eliminating districts and counties now are talking about after women threatened to form a new altogether in favor of a proportional cumulative voting and preference voting. party if major parties did not nominate representation scheme." In Durham (NC), a Republican city more women. In Germany's election, William Raspberry, October 1994 council member and Democratic county women won 26% of seats, including 39% column in Washington Post commissioner joined many community of seats elected by PR.

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"Making Your Vote Count"

DUBIOUS DEMOCRACY (continued from page 1) Pork-fed deficits: With representation in Congress defined by where one lives more than what one thinks, Members are only in most democracies using it and overlook the many forms of PR acting rationally when seeking to obtain as many government that lie between the polar extremes of Italy's old form of PR and projects as they can for their districts. PR would result in more American winner-take-all voting. Members who could put national interests over local "pork."

Consider this example of a modest PR plan for North Congress looking like America: Our Congress has a lower Carolina. The 12 current single-member districts would be percentage of women than nearly every democracy with PR, few replaced by four districts electing three members. Candidates blue collar workers win office and racial and ethnic minorities would be elected by preference voting, in which voters rank are under-represented at every level of government. candidates in order of preference. Campaign costs easily could decrease, a "stable" 25% of the vote would be needed to win a Gerrymandering: Drawing winner-take-all districts inevitably seat and geographic interests still would be represented. locks many voters out of a chance to elect someone, and

computer technology allows selection of these "filler" voters More ambitious PR plans include preference voting in larger with increasing precision. PR frees voters to define their own districts or the adoption in a large state like California of a representation by electing candidates of their choice. German-style "mixed member proportional" system -- with half of seats elected from single-member districts and half from party lists to correct winner-take-all's inevitable distortions. State legislative elections allow for even more creative options. The Voting and Democracy Index

But it won't happen with continued short-sighted thinking F Percent of Americans who in 10/94 said their Member in by legislators and public interest leaders. The year 2000 may U.S. House of Representatives deserved re-election: 37%. seem far off, but the fight over redistricting -- and thus, control Percent House incumbents re-elected in 11/94: 91%. over most legislative seats until 2010 -- already has begun. Rather than buy into this elitist struggle fought behind closed F Percent of eligible voters who helped elect a Member of doors, we should demand that legislators in the new century give the House in 11/94: 23%. Percent Americans in 10/94 who the power to choose representatives back to the voters. could identify local House Member: 28%.

For those new to the case for PR, here are key arguments: F Voter turnout in House races in 1994: 37%. Percent House races won by "landslides"(over 60% of vote): 63%. Voter choice: Just as consumers demand more than two choices among products, voters deserve a full range of choices in F Percent of eligible voters who voted for Republican House legislative elections. Having to accept the "lesser of two evils" is candidates in 1994: 18%. Percent of Americans who said a recipe for voter alienation and candidate mediocrity. after the election that Republicans will do a better job running Congress than Democrats: 31%. Voter turnout: The fact that most democracies with PR have voter turnout far higher than the U.S. is only logical given that F Percent of women now in U.S. Congress: 11%. Percent PR provides voters with more choices and a better chance to women in seats in Germany's parliament elected in single- elect favorite choices. Low voter turnout undercuts the member districts: 13%. Percent of women in Germany in legitimacy of our representation and governance itself. seats elected by proportional representation: 39%.

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