In the practice session of a recent caucus/parliamentary law
training I lead, the students ran into the issue of how to deal
with more than two candidates nominated for an office, none of whom
had majority support. It isn't an uncommon problem, but it can
be tricky for first time chairs to facilitate and, often, for
participants to understand how to navigate for their best-
possible outcome.
My typical training day usually has
a lecture in the morning, videos from actual caucuses during
and after lunch (good and bad examples), followed by practice
sessions in the afternoon. My own first caucus
experiences were a bit less gentle: a small number of us taught
ourselves and then were tossed in the deep end, sink or swim. I
try to give my students a few more tools to work with than I
had myself.
In any case, in the practice session at a recent class, I
dealt playing cards to divide people up in support for different
candidates (each suit represented a candidate). They had to come
up with their own strategy. True to life, they did not
necessarily know how many supporters they truly had until the
caucus started. In any case, in this particular run, the
chair vote went smoothly: the very first candidate got a
majority on the first vote and I, dutifully, passed the gavel to
the winner.
The new chair took nominations for secretary. There were four
or five, but two withdrew from the nomination. This left three
nominees, and, as it happened, none of them initially had a
majority to support them.
Setting the Scene
In order to
protect the innocent, let's call the
three candidates John Smith (JS) , Pierre-Claude Wagonschlaus
III (PCW3), and Sally Fletcher (SF). The chair started off from
the beginning with a rising vote (as I recommend in caucuses).
In the first round of voting, the ayes looked like this(*):
- JS
- 13
- PCW3
- 12
- SF
- 2
The number of eligible voters is 28, but the chair is not
voting. With or without the Chair, a majority is 14 or more and
no one has it. Under Robert's Rules of Order (and most
parliamentary systems), 50% + 1 is required to elect, not merely
having the highest number of votes in a round (a 'plurality').
So, now what?
Sometimes, sets of rules for an event specify that a candidate
receiving the least votes in a round drops away. The current
2024 rules published by the Missouri Republican State Committee
(MRSC) has such a rule for other votes further into the
process, but is silent on this topic. The MRSC document also
forbids any local rule modifications and, at this point in the
process, it is too early for a caucus (or convention) to pass
its own standing rules. It is not a serious issue, however.
The MRSC states that the latest
edition of Roberts' Rules of Order applies where it does not
conflict the the MRSC document. In 2024, that would be the 12th
edition of Roberts' Rules of Order, Newly Revised (RONR12). If
you still have the 11th edition (RONR11), don't worry, the
following process has not changed. Be aware, however, that
RONR11 is cited by either page number or section, whereas
RONR12 is cited only by section (because page numbers do not
match between the printed and online editions).
What does Robert's Rules say?
OK, so what does RONR12 say to do with the 'extra'
candidates? Nothing.
Let's explain.
When repeated balloting for an office is necessary, individuals
are never removed from candidacy on the next ballot unless they
voluntarily withdraw-- which they are not obligated to do. The
candidate in lowest place may be a "dark horse" on whom all
factions prefer to agree.
[RONR11 pp 441, RONR12 §46:31]
(Be aware of the note on the bottom of the page regarding
special rules and dropping candidates.)
This process flows from the fact that parliamentary law is
designed to move forward the business of the majority while
protecting the rights of the minority. Members have a right to
nominate candidates and ought not have that arbitrarily taken
away. Where there is no clear majority, Robert's Rules is
designed to develop consensus for action.
So, the idea is for the Chair to simply represent the same set
of candidates for a vote. The members of the assembly know what
the count was and are free to change their votes. The candidates
can make the same choice by choosing to drop out of contention
and endorse another. But it does not simply have to repeat the
same vote over and over. Various motions may be made to affect
the voting process, including:
- reopen nominations and suggest a compromise
candidate.
- vote by ballot if it is felt that members might be more
free to change votes if they were private.
These are incidental motions (requires a second, no debate,
majority vote [RONR11 pp 283, RONR12
§30]. Finally. a short recess may be requested for
the candidates or their supporters to make a deal (privileged
motion, requires a second, not debatable, majority
vote [RONR11 pp 231, RONR12
§20]). The overarching principle is for the
Chair to facilitate the process of reaching consensus
without imposing their own will by arbitrarily removing
candidates from consideration. As we will discuss below, these
situations arise for different reasons and sometimes will
resolve surprisingly quickly. Other times, it may be a long
process.
Something else to be aware of is that members may change their
votes even within the same round. This is perhaps best
illustrated if we consider what might have happened if they had been
nominated in a different order:
- SF
- 2
- PCW3
- 12
- JS
- 15
Here, two voters for SF and PCW3, realizing that they have
lost, transfer their votes. With 15 votes, JS ends the round
with a majority and is elected. The fact that 2+12+15 adds up to
more of the total available votes does not matter. It ought be
clear, however, that order of nomination does matter
for these reasons [cf RONR12
§38-39, RONR11 pp 443 par 1-10]. If the
vote is conducted by ballot, this cannot happen, because each
ballot may only contain one name.
If the two SF voters had immediately transferred their support to PCW3,
then the 12+2=14 votes would have constituted a majority. PCW3 would win
immediately and no vote would be needed for JS.
How It Came Out
So how did it come out in the actual class exercise? One of the members
called for a 2 minute recess (without objection), the candidates left
the room briefly, and two of them decided to drop out. The remaining
candidate, now unopposed, was elected by acclamation. Remember, that it is
important in any event of this kind to count every vote in an open and
transparent manner, but if an election or motions is truly unopposed it
requires no vote at all.
Chair: Without objection, we will have a 2 minute recess while
the candidates discuss...
JS and SF have informed me that they are withdrawing from the
contest. Seeing that we have only one candidate remaining, without
objection, we will elect PCW3 by acclamation.
Seeing no objection, PCW3 is elected Secretary.
Clearly, if there is objection, the vote must
be taken. It is possible, for instance, (though rather rare) for the
assembly to reject a single nomination, at which point, the only option
is to reopen nominations.
Why It May Happen
It may seem odd that you would end up with a large number of
options for secretary with no majority. If the Chair was elected
by a majority, why would the Secretary not follow as a matter of
course. There are several reasons this might happen, however. In
a caucus where the delegates to a higher level convention depend
on careful paperwork, it may be highly desirable for a faction
to try to elect a Secretary they know and trust, not just to be
honest but careful and thorough. The Secretary position might
also be used as a test vote where a faction does not wish to
contest the Chair vote. As I mention above, you do not know in
advance how many people will actually show up for a caucus and
how their support will be divided. A test vote acts as a
physical verification of the numbers for your group and can then
be used to determine overall strategy ("Do we introduce our own
slate?" "Do we try to introduce this platform amendment?"). In
this case, whether the election is actually won is not as
important as simply getting the firm count. If the election is
merely a test vote, it is common for a faction to withdraw their
candidate once it realizes it does not have a majority and will
not win.
When I talk about 'faction' here, most people think in terms of
candidate blocks. In the 2012 Lawrence County Republican Caucus,
for example, their were five candidate blocks who showed up, two
of which voted together. This left a four-way split of votes
with no majority and, eventually, a four-way split on the
delegate slate. The faction split does not have to be by
candidate, however, and in 2024, there is unlikely to be any
such split by presidential candidate. In some cases, this may
result in a rapid caucus with votes by acclamation as occurred
in Lawrence County in 2016. In other cases, local groups, such as a
grassroots coalition or a strong pro-life group, for example,
may wish to present their own Caucus officers and slates in order
to secure delegate representation, particularly if they want to
participate in platform debates or other Convention business at
higher levels of the process. If this occurs, Caucus Chairs and
group floor leaders ought to understand how to handle the votes
fairly and smoothly. The ultimate goal is to come together as a
party to win in November. Unnecessary strife detracts
from that goal.
Conclusion
If our goal is to avoid unnecessary strife which may hurt us in
November, it is worth spending the time to understand the rules
and the different scenarious we may encounter. Prior to 2008 in
Missouri, caucuses were rarely contested. This lead to waning
parliamentary skills which, in turn, lead to avoidable
conflict when participation dramatically increased and the
process suddenly became contested. Some of these events-- as I
show in my classes--- were ugly, others less so. The
presence of conflict itself is not the problem: the
entire purpose of a caucus/convention structure is to make
difficult decisions between competing interests. It is well
worth fighting over some of these things; we just need to be
able to get through it fairly and come together afterwards.
* Ayes and Nays
When I say I am listing just the ayes for each vote above, keep
in mind that when a voice vote, rising vote, show of hands,
etc., is called, the Chair calls for the ayes first and then the
nays, even in an election:
Chair: As many as are in favor of John Smith, please rise. [count]
You may be seated.
As many as are not in favor of John Smith, please rise.
[count]
There are 13 in favor, 14 opposed, and 1 abstention. John Smith does not
have a majority.
Now, as many as are in favor of...
This can seem odd to people. Why vote against a candidate
instead of simply voting for your chosen candidate? This is possible
when using a ballot vote because the voter can just list their choice
out of all possible choices. There is no need to count nays. With a voice
vote (see viva voce in Robert's Rules) or any other non-ballot
vote, the nays must be counted for a crucial reason: any member may
abstain from any vote. If a candidate must win by 50%+1 of votes
cast, then one must know how many votes are actually
cast in a given vote and separate it from the nays. In our
example, one vote, the Chair. abstained leaving 27 votes cast
each time and a majority of 14 or more. If even one other member
had abstained on any vote, the threshhold needed for majority
would have changed.
As noted in Robert's Rules, this means, effectively, that if
you want to vote for a later candidate, you must
vote against the earlier ones. A no vote must not be
taken, therefore, as any special animus toward a particular
candidate, but only that the member intends to hold their vote
for someone else (that round). The only other way to make the
math work is to count the abstentions and subtract them from the
seated total. I have seen a few Chairs specifically count
abstentions, but it is often done to check tally committee math
when the count seems off. I am not aware of any inherent
unfairness to counting abstentions.