Understanding Redistricting, Part 1

It matters how you draw the lines

Dante Atkins of Daily Kos has a very useful article on the importance of redistricting for progressives.

In most states, the decennial maps for congressional districts are redrawn and approved by state legislatures. Why does this matter? Because partisan state legislatures are likely to divvy up the districts in a way that benefits their party. How does this work in practice? At its most elementary, let's hypothesize a state with a population of nine people: five Democrats and four Republicans. And from those nine people, the Census Bureau required creating three districts with an equal number of people. If the state legislature were controlled by Democrats, they might make a map that carves the state in a way that has a majority of Democratic seats. But if Republicans were to control the legislature—something that happens from time to time in Democratic-voting states such as Minnesota—they just might pass a map with different districts that gives the GOP a majority of the seats. 

The 2010 elections will have long-lasting consequences for control of the House of Representatives. The problem isn't just that Republicans won so many seats; the larger problem is that they won them at exactly the right time. Incumbent representatives are hard to defeat, but unseating freshmen is generally an easier task. Unfortunately, having a wave election in a redistricting year allows the new majority party to take advantage of the redistricting process to shore up vulnerable members, usually by taking some friendlier territory from a safer, better-known incumbent—serving essentially to "lock in" that majority for the rest of the decade. In addition, less scrupulous legislators can use the redistricting process to consolidate the districts of opponents to force their members into either retirement or a bruising primary fight and removing them from their seats regardless—a process playing out right now to eliminate Democratic seats in states like North Carolina and Michigan. The GOP has also shown its willingness to use redistricting to ward off potential political disadvantages at the state legislative level as well: for example, Wisconsin Republicans are redrawing the state senate lines in a hurry before the recall elections, even though doing so right now would create a bureaucratic nightmare. Clearly, the GOP is willing to use redistricting as a political weapon in spite of any resulting collateral damage.

While most states have this concern, California no longer does. In 2008, voters passed Proposition 11, which created a so-called Citizens Redistricting Commission that removed the authority to draw legislative lines from the state legislature and put it into the hands of a supposedly non-partisan commission (in 2010, a second proposition was passed that put the authority to draw boundaries for congressional districts as well into the hands of this same body). The Democratic Party opposed this measure for obvious reasons: As Democrats have a substantial majority of seats, they control the redistricting process and could use it to maximize Democratic seats while ensuring no contentious primary battles among the state's delegation. (Full disclosure: I serve on the executive board of the California Democratic Party.)Furthermore, the commission's mandated structure is hardly representative of California's population: despite the fact that California is an overwhelmingly Democratic state, the commission is required to have an equal number of Democrats and Republicans serving, with absolutely no guarantee of geographic or ethnic diversity.

The commission has had other problems, such as missed deadlines and cancellation of draft maps—and right now, the current maps are likely to face suits, especially from organizations in the Latino community who feel that the maps dilute their community's voting power and are thus illegal under the Voting Rights Act. Nevertheless, among Democrats the mood of uncertainty at the congressional level has yielded to a cautious optimism, as the commission's draft maps (should they hold) will likely result in Democratic gains of multiple seats, and defeat or retirement of several longtime Republican members.