City of Culver City, California
Agenda Item Report
Meeting Date: 04/13/15 Item Number: A-5
CITY COUNCIL AGENDA ITEM: Discussion of Authorizing the Conduct of Municipal
(City) Elections Wholly by Mail.
Contact Person/Department
Martin R. Cole, Assistant City
Manager/City Clerk
Phone Number: 310-253-5851
Fiscal Impact: Yes [X] No [] General Fund: Yes [X] No []
Public Hearing: [] Action Item: [X] Attachments: [X]
Commission Action Required: Yes [] No [X] Date: _______________
Public Notification: Meetings and Agendas – City Council (03/13/15 and 04/08/15)
Department Approval:
Martin R. Cole (04/08/15)
City Attorney Approval:
Carol Schwab (by H. Baker) (04/08/15)
Chief Financial Officer Approval:
Jeff Muir (04/08/15)
City Manager Approval:
John M. Nachbar (04/08/15)
RECOMMENDATION:
Staff recommends the City Council discuss authorizing the conduct of municipal (City)
elections wholly by mail and direct the City Manager and/or City Attorney as deemed
appropriate.
BACKGROUND:
At the General Municipal Election held on April 11, 2006, the voters of Culver City approved
Measure V, a measure placed before the voters by the City Council. Approval of Measure
V enacted a significantly revised and updated City Charter. Section 1505 of the City
Charter provides: “The City Council may, by ordinance, authorize the conduct of elections
wholly by mail, under which all votes shall be cast in the manner of absentee ballots.”
At a recent City Council Meeting, the City Council directed the City Manager to place the
discussion of this subject on an upcoming agenda.
DISCUSSION:
Vote-by-Mail (VBM), which had been previously known as Absentee Ballots, has been
used by an increasing percentage of voters for some time. On a statewide basis, VBM
ballots comprised 27% of total ballots cast in 2002 to just over 50% in 2012. For Culver
City, at the General Municipal Election held on April 8, 2014, 63.03% of all ballots cast
were VBM. Of the City’s 13 voting precincts, VBM ballots comprised over 50% of all
ballots cast in 12 of those precincts. This represents a record high percentage of VBM
ballots casts and continues an upward trend in the use of VBM ballots in Culver City’s
municipal elections that began over a decade ago. City of Culver City, California
Agenda Item Report
Experiences in Other Vote-by-Mail Jurisdictions
Limited California Experience
There are certain, somewhat limited examples of the use of VBM ballots in California. The
rural and sparsely populated Counties of Sierra (population 3,047) and Alpine (population
1,159) conduct all of their elections using VBM. However, due to the small population, it is
difficult to draw meaningful conclusions from analysis of the elections data available from
those counties. Under Proposition 218, VBM processes are required for benefit
assessment districts (which processes have been utilized in Culver City when
appropriate). However, such benefit assessment VBM processes are based upon
property ownership (as opposed to residency) and, in Culver City, generally impact a small
number of property owners. Again, it is difficult to draw meaningful conclusions from
benefit assessment district VBM “elections” when making a comparison to general (and
special) municipal elections where residency (and other applicable voter registration
requirements) determine who is eligible to vote.
State of Oregon
The State of Oregon (population 609,000) has a significant history of conducting VBM
elections. In that state, VBM was first approved on a limited basis by the State Legislature
in 1981. In 1987, it was made a permanent feature of some elections. Then, in 2000, the
voters of Oregon approved a ballot measure by over 70% to make Oregon the first all VBM
state.
The Oregon Secretary of State’s Office provides turnout and cost information for various
elections in that State since 1992. Generally, from a turnout and cost perspective, this
data does not show an identifiable trend. For example, the following table shows the
turnout and costs (both per voter and per ballot) for presidential elections in Oregon since
1992:
Election Year Turnout % Cost per Voter Cost per Ballot
1992 84.28 $1.62 $1.92
1996 71.38 $1.72 $2.42
2000* 79.82 $1.82 $2.29
2004* 86.02 $1.91 $2.22
2008* 85.64 $2.22 $2.59
2012* 82.16 $1.88 $2.28
* All VBM Elections
City of Culver City, California
Agenda Item Report
State of Washington
Beginning in 2005, counties in Washington State were authorized to conduct elections via
VBM (and by 2008, 2/3rds of the counties in Washington State had enacted all VBM
elections). In 2011, the Governor of Washington signed a bill that required all of
Washington’s 39 counties to conduct elections by mail (38 of 39 counties were already
conducting all VBM elections at the time this bill was signed). The table below provides
presidential election turnout data as supplied by the Secretary of State’s Office:
Election Date Turnout %
1992 82.60
1996 74.52
2000 75.46
2004 82.23
2008 84.61
2012* 81.25
* All VBM Elections
Note: voter turnout is the percentage of ballots cast divided by registered voters.
While a trend is not evident in these statistics, one firm conclusion can be drawn: the
average voter turnout in both the States of Oregon and Washington is higher than the
average voter turnout in the State of California (in the 2012 Statewide Presidential Primary
Election, voter turnout in California was 72.36%).
Other General Trends Associated with Vote-by-Mail Balloting
The University of California at Davis’ Center for Regional Change (Center) has provided
three “Issue Briefs” related to VBM Use. Their analysis of election data from California
yields some interesting perspectives. They are attached for the City Council’s information.
One comment I would provide is that if VBM is adopted in Culver City, its mandatory
nature would have different impacts that those conclusions drawn by the Center given the
voluntary nature of the current statewide system in California (where VBM is optional)
Recommendation from the Assistant City Manager/City Clerk
Section 1502 of the City Charter assigns the duties of Elections Official to the City Clerk.
Based upon my experience in administering four Culver City General Municipal Elections
and one Culver City Special Municipal Election, from an administration standpoint, I
recommend the City Council implement an all VBM system in Culver City. I wanted to
share the following thoughts with the City Council:
City of Culver City, California
Agenda Item Report
? The Percentage of Voters Voting at the Polls Continues to Decline: As the
percentage of Culver City voters opting for VBM increases, the number of voters
voting at the City’s 13 polling places declines. Given nationwide (as well as our
own Citywide) trends, it is expected the number of voters opting for VBM will
continue to increase (with those voting at the polls continuing to decline).
? Finding Polling Places is Becoming More Difficult: The City Clerk’s Office is
thankful for those homeowners and business owners who allow the City to use their
home/business as a polling place. As homeowners/businesses change ownership
or management, the continued availability of a particular location as a polling place
can change. This necessitates finding a suitable replacement polling place
(preferably one with sufficient parking, which is ADA compliant, and which is located
in the same precinct). When a change in polling place is needed, it can lead to
voter confusion for those voters who have voted at a particular polling place
(sometimes for decades).
? Finding Experienced Poll Workers Can be a Challenge: The City Clerk’s Office
is grateful to the approximately 50 persons who serve as poll workers in each of the
City’s municipal elections. They have a long day (polls open at 7:00 am and close
at 8:00 pm) for little pay. While polls are open, poll workers are required to be
aware of the many federal and state laws that govern the conduct of elections.
After the polls close, poll workers are required to “close-out” their polling place,
including preparing a number of documents which are an important part of the ballot
counting and certification process. As a result of demanding requirements, each
election year it has become more of a challenge to find volunteers to serve in this
capacity.
? Voter Turn-Out is Low: Mirroring a trend seen nation and statewide, voter turnout
in Culver City’s General Municipal Election in 2014 was 14.28%. As seen in the
States of Washington and Oregon, all VBM elections have a significantly higher
turn-out.
? Efficient Use of Resources: The average direct cost of a General Municipal
Election is $70,000 (with variations due to number of candidates/measures and
language translation requirements). Also, administering the City’s elections is a
very staff intensive endeavor (from November – April in an election cycle, the City
Clerk’s Office devotes upwards of 75% of its staff resources to administration of the
election). An all VBM election is more efficient to administer and would result in a
reduction in total costs (even though, as mentioned in the Fiscal Impact Section, it
is expected direct costs would increase in an all VBM election system).
? Ballot Counting Would Be Streamlined: As directed by the City Charter, in an all
VBM election “all votes shall be cast in the manner of absentee ballots.” Under
current state law, VBM ballots can be processed and prepared for counting 29 days
prior to Election Day. This allows the great majority of VBM ballots to be counted
after “close of polls” on Election Day. City of Culver City, California
Agenda Item Report
Proposed All VBM Procedures
Should the City Council determine to authorize the conduct of municipal (City) elections
wholly by mail, there would be some significant changes to the administration of the
election. They are summarized in the following table:
Task Current Process All VBM Process
Voters Opting
for Permanent
or “Single
Election” VBM
Status Mailed
a Ballot
Any voter may determine to
become a Permanent VBM
voter or may request a VBM
ballot for a single election.
The City Clerk’s Office mails
VBM ballots beginning 29
days prior to Election Day
and continues mailing VBM
ballots throughout the
election cycle for those who
request single election VBM
ballots.
All 26,372 (as of April, 2014)
registered voters would be mailed
a VBM ballot approximately 29
days prior to Election Day.
Voters who register during the
election cycle would receive a
VBM ballot from the City Clerk’s
Office (either in person or via
USPS).
Ballot
Processing
The City Clerk’s Office may
being processing (preparing
returned, valid ballots for
counting) beginning 29 days
prior to Election Day. The
Elections Official appoints a
Canvassing Board that
prepares the ballots for
counting.
Same process. However, it is
expected under an all VBM ballot
election, more ballots would be
received earlier in the cycle and
would be processed and
available for counting after the
“close of polls” on Election Day
Ballot Delivery
to Elections
Official
Persons may vote in three
ways: (1) voting at the
polling place, (2) mailing a
VBM ballot, and (3) drop off
of VBM ballot at polling
places and City Hall
VBM ballots may be deposited
into the USPS or a bona fide
private mail delivery company for
delivery to the Elections Official
or dropped off at City Hall.
Ballot
Counting
After the close of polls on
Election Day (8:00 PM), the
VBM ballots processed and
deemed valid are counted in
the City Council Chambers
and precinct by precinct
results are announced. As
poll workers complete their
close-out process, ballots
cast at the 13 polling places
are returned to the City
After the “close of polls” on
Election Day (8:00 PM), all
processed, valid ballots are
counted and precinct by precinct
results are announced. SB 29
which became effective on
January 1, 2015, allows an
Elections Official to count a valid
VBM ballot if it is received by the
voter’s elections official via the
United States Postal Service or a City of Culver City, California
Agenda Item Report
Council Chambers where
they are processed and, if
valid, counted. VBM ballots
received at the polling places
and provisional ballots are
processed (such tasks take a
number of days). Valid VBM
and provisional ballots are
counted some days after
Election Day.
bona fide private mail delivery
company no later than three days
after Election Day. VBM ballots
received on or after Election Day
would be processed. Valid VBM
ballots are counted some days
after Election Day.
Certification of
Final Election
Results
The City Clerk canvasses
(verifies) the election results
and presents the final
election tally to the City
Council for certification. For
General Municipal Elections,
this occurs at the second
Regular Meeting of the City
Council in April.
Same process.
Next Steps
Should the City Council determine it wishes to authorize the conduct of municipal (City)
elections wholly by mail, then the City Attorney, in consultation with the Assistant City
Manager/City Clerk, would prepare a proposed Ordinance for consideration by the City
Council at the May 11, 2015 Regular Meeting. If introduced at that meeting, it would be
presented for second reading and adoption at the May 26, 2015 Regular Meeting. On
June 10, 2015 the Ordinance would become effective.
The City Clerk’s Office would request a $20,000 appropriation as part of the Fiscal Year
2015/2016 Budget to begin an extensive voter education effort to inform the community
about the change to an all VBM election beginning with the General Municipal Election to
be held on April 12, 2016.
FISCAL ANALYSIS:
As mentioned earlier in this report, the average cost for a General Municipal Election
(GME) is $70,000 (with variations for number of candidates/measures presented to the
voters and language translation requirements). Should the City Council ultimately
authorize the conduct of municipal (City) elections wholly by mail, I estimate the following
incremental fiscal impacts:
City of Culver City, California
Agenda Item Report
Direct Cost Item Notes Amount
Postage and Printing Mail a VBM to all 26,372
registered voters (vs.
approximately 2,500 VBM
ballots mailed in 2014 GME).
The costs for printing VBM
envelopes and ballots would
be offset by eliminating the
need for polling place ballots
and supplies.
+ $12,000
Poll Place and Poll
Worker Payments
Polling Places and Poll
Workers would no longer be
needed in an all VBM
election.
- $ 4,500
Signature
Verifications
Assumes a 50% increase in
Culver City’s voter turnout (to
approximately 20% of
registered voters)
+ $ 2,000
NET INCREMENTAL
CHANGE:
+ $9,500
To clarify, it is estimated the average VBM election would involve an increase of $9,500 in
direct costs (or a total of $70,000 + $9,500 = $79,500).
Also, the City Clerk’s Office would request a $20,000 one-time appropriation in the Fiscal
Year 2015/2016 Budget for the voter education effort.
It is important to remain aware of the anticipated reduction in the amount of staff time
needed to administer an all VBM election. While not a direct cost, I estimate the savings
of staff time to be 33% (from 75% of staff time to 50% of staff time during the November –
April election cycle).
ATTACHMENTS:
University of California, Davis – Center for Regional Change – Issue Briefs
MOTION:
That the City Council:
1. Discuss authorizing the conduct of municipal (City) elections wholly by mail; and,
2. Direct the City Manager and/or City Attorney as deemed appropriate.
MEETING DATE: April 13, 2015
AGENDA ITEM: Discussion of Authorizing the Conduct of Municipal (City)
Elections Wholly by Mail.
ATTACHMENTS
Pages
1. UC Davis Issue Briefs
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