"VW-m', 10‘ -— .— 145 030 HTHS . “SURVEY OF THE CHARACTER. EFFECTIVENESS AND COST OF THE PRlMARY LAW OF MICHIGAN THESIS FOR THE DEGREE OF M. A. V jcssie M. Hunter 193? '. I) an“: «I; ' u—n. -, null) ‘ \ n) Imzufiu ‘ * ' 4 _ - A—- .‘ A-‘m “ \. ,o ‘ IL — gaming II I” ‘ ‘5' :I ‘ ,. . - T.:‘ , T .. = ‘ 1 ‘ . . [.4. . 1‘ . .. r “I. ’ ‘.' .* ' x a: . .. I‘ T . l~“ T 1 1 . n V . »- o a i .1 " I“ ‘ ii “I : ‘ -E .m 13‘ a 4 l . lL-.-LI§.] | . W . .-r. -_~ fRM THE LIBRARY OF EDWARD HILDRETH RYDER lll/I/W/I/ll/I ///I/////I////I/I//I///I/////I/I//////II//////I 3 1293 104 59 1569 r V r‘ ‘7 (IL/ugl‘YI'ASL‘ (1’6 {0 MSU LIBRARIES -_ RETURNING MATERIALS: Place in book drop to remove this checkout from your record. FINES wiII be charged if book is returned after the date stamped below. A Survey of The Character, Effectiveness and Cost of the Primary Law of Michigan Jess ie 11. Hunter Submitted in partial fulfillment of the requirements for the degree of master of Arts in the Graduate School of llichigan State College of Agriculture and Applied Science. Approved for the Department of HieEEE:;;P.Po 00 0.00.000 00W000[:O{00‘z?’.000 icel Science: 00000000000000 ~ '1 I d I i ! Acknowledgment The writer wishes to acknowledge her indebtedness to Dean E. H. Ryder and.Profeesor J. T. Caewell under‘ehoee direction this study has been made. She wished also to express her appreciation to the County Clerks er the State of Iichigan who contributed valuable data for this survey. aOUTLINEi I. Introduction. A. Need for a primary nominating system. 1. Defects in the convention system. B. Inception of the primary law. 1. Crawford County, Penn. 2. Gradual growth of the movements. 11. Agitation for the Primary System in Iichigan. A. Governor Fred M.‘Warner: advocate. B. The Concurrent Resolutiono-State 'Legislature passed in 1907. C. Passage of the present primary law in 1909. III. Character of the Prinary‘Law. A. landatory Direct Primary; 1. Exceptions: a. State officers except Governor, Lieutenant Governor nominated by the Convention. 2. Townships use Caucus System or making nominations. IV. Effectiveness. A. l. Permits small town citizen to hold office. 2. Permits peepls a voice in putting peeple on the ticket. 34‘ 1... .k. I." B. Defects. 1. Party Responsibility weakened. 2. Minority Candidates. 3. Small Vote Cast. V. Remedial Legislation. A. Attempt to curb long ballots in large cities. B. Mandatory clause changed 1931. C. Corrupt Practices Act. VI. Costs. A. Convention system. B. Primary system. 1. State. 2. County. 3. Township. 4. Individual. 1!. 5F: . £5.19. Q.» - I. 1!. ”Toward the close of the nineteenth century the peeple became discouraged and dissatisfied.with the convention plan of making nominations sepecially, for local offices, and an agitation for the direct primary began.”1 This agitation seemed to be wide spread over the United States and it did not cease until nearly every state had adOpted some form of the direct primary system of nominations. There were of course serious defects and discrepancies under the convention plan, and various reports of graft and corruption were not uncommon. “It was believed the convention system was admirably adapted to management by the 'invisible government' of the industrial political magnate: cases of bribery, deadlock, bargaining, trading offices, factional struggles, all said or pointed to the fact that the convention was too remote from the peeple, and its Judgments did not fairly represent the rank and file of the party.“2 The Primary Law was not a product of the twentieth cen- tpry, for as early‘as 1860, the Republican party of Crawford __ 1. L. T. Beman, “The Primary,“ p. 74 2. The Annals of the American Academy of Political and Social Science, Vol, CVI, p. l. C may hll‘uIH.‘ i. .I . AV County, Pennsylvania, less than six years after its or- ganization, inaugurated the plan known as the Crawford County direct primary system.3 "In nominating candidates for the various county offices, it clearly is, or ought to be, the object to arrive as nearly as possible at the wishes of the majority; or at least a plurality of the Republican voters.“‘ Two Opportunities have been given the peOple of Crawford County to return to the convention or delegate system, and they have emphatically shown their choice for the primary system. This law had its merits and defects; but it did discourage buying votes, machinery government and 10g rolling. From the inception of the first primary law, the system gradually soread throughout the United States until by 1900 there were many states, especially in the southern part of our country which had adapted the direct primary system in place of the old convention plan of making nominations.5 Agitation for Adeption of the Primary System Fred M.‘Warner, governor of Michigan from 1904 to 1910 was an ardent supporter of the primary law. He was elected under the convention system but he had conferred with ardent supporters of the new law in other states, and was convinced of its efficacy. Governor“Warnerdid not, however, favor 3, lichigan Political ASsociation, Vol, V1, p. 32. 4. Ibid. 5. Ibid, p. 35. a mandatory primary law aw was later passed by the state legislature in 1909.6 In a public statement Governor‘larner said. “Personally I believe a primary law should be passed by the next legislature....l very greatly doubt whether Michigan needs such an extreme mandatory direct voting law as some peeple are urging...If the politics of a country have been debauched by the use of money or patronage, or in any other way, a stringent law should be enacted to take care of the case. But I believe that in a large majority of cases the politics are practically clean, and I do not believe that such counties should be compelled against their will to make an entire change in their manner of making nominations, simply because a change is needed in other counties.“7 At this time, Governor“Warner made a survey of the states which had passed primary laws, and there were only four states having mandatory systems, namely: Minnesota, Florida, Missis- sippi, and Texas. ‘We, with the four others took the most radical course and adapted the mandatory type of the primary law.8 In the 1907 legislature, Concurrent Resolution was passed to submit to a vote of the people the question of nomination of United States Senator, Governor, and Lieutenant Governor by QLrect vote of the_glrectors. 6. Ibid, p. 40 7. Fred W. Warner, " Nominations of Candidates by Direct Vote,“ page 8. Ibid. ”Resolved by the Senate, the House of Representatives concurring: That there shall be submitted to the people of the state of Michigan at the election to be held on the seven- teentn day of September; nineteen hundred seven, for choosing delegates to the Constitutional Convention, the question of nomination by direct vote of the qualified electors of the states, of United States Senators, Governor, Lieutenant Gover- nor, the candidate of any one party receiving the highest num- ber of votes of such party for either said offices to be the candidate of such party for such office, and the Secretary of State is hereby required to certify the lane to the clerks of the several counties of theIState and give notice of the same to the sheriffs of the counties of the state and the sheriffs of the several counties of this state shall be required to give notice of.the same to the several townships and wards in said states, in the manner required by law, and the said queso tion shall be printed upon a separate ballot to use at said election."9 This Resolution for the primary law was not inclusive enough, since it did not include the county officials or the members of the state legislature. In 1909 our present primary law was introduced which repealed all previous activities in Athat respect. ’ 9. Compiled.Laws 1907, p. 526. (5) £133 PrimarLliaw Nominations shall be made by direct vote of the party. " Primary is definite as used in the act and shall be construed to mean an election for the purpose or deciding by a ballot who shall be the nominees of the political parties for the offices named in this act or for the election by ballot of delegate. to political conventions."10 The offices herein stated shall be nominated by the direct primary: Governor, Lieutenant Governor, United States Senators md Congressmen, members of the state legislature, and all county officials shall be chosen by direct ballot or vote of the people.11 The remaining state officers are elected as before by the convention system. These offices might Just as well be appointive offices since the duties of each office are prescribed by law. The peOple have very little voice in the nomination of these officials, but probably our high degree of individualism would not permit the deviation from our democra~ tic policies. . The townships are permitted to use the caucus system of making nominations for local offices under our present primary law. The caucus system is generally used throughout theEState with very little eXpense to the townships. Thus the law left us with both the primary system and the convention system of making nominations, so we have ample Opportunity to study the merits and defects of each eystem. 10. Public Acts 1909, p. 515. 11. Ibid, p. 520. Effectiveness of the Primary Law The advocates of the Primary Law extol the democratic features Of the law; in thatcitizens from small towns may become office holders as well as the citizens of the large metrOpolis. The following list of our Governors since the passage Of the primary law in 1909 will show some from smaller towns as well as the larger cities: Governor Fred M. Warner, Farmington " “ Chase S. Osborn, Sault Ste. Marie “ “ Albert E. Sleeper, Bad Axe " “ Woodbridge N. Ferris, Big Rapids " “ Alexander Groesbeck, Detroit “ “ Fred Green, Ionia " " ‘Wilbur Brucker, Saginaw Lieutenant“ “ Buren Dickinson, Charlotte There have been several attempts to prove that the primary tended to place on the ticket candidates of higher or lower calibre than did the convention system of nomination, but as far as I know there have been no real tangible results from these investigations since a candidate's worth is largely a matter of personal Opinion. - Their environment may have had little to dO‘With the success or failure of administration, since all Of them must have had interests outside of their own city in order to be well enough known throughout the state to win the election. Defects of the Primary Law The Primary Law is criticised because it encourages lack Of party responsibility. This criticism is rather difficult to prove since there have always been insurgent candidates under the Old convention plan, and we still have disgruntled factors in every party. As to whether there are more cases of irresponsibility under the Primary System is a debatable question. “It is true that in many cases candidates have made announcements of personal platforms or pledges which cover their aims in general. These pledges however, do not bind the party. They Offer only personal and not party responsio bility in a system Of party government.“12 3. s. Riley, Republican Of Ingham County says. "The office seeking candidate pledges nothing. He vouches for his own competency and integrity and is responsible only to self. Where the man seeks the office and not the office the man is not good business for the tax payer.“13 There is another criticism of the Primary Law, the minority candidate, which is present in both the densely pOp- ulated areas as well as in Sparsely pOpulated district;. The following table shows the minority candidate in these counties; 12. Stuart Lewis, “Party Principles and Practical Politics.“ 1 p. 195; 13. Lansing State Journal. April 11, 1932. Iosco Jackson Keweenaw Iontmorency Cheboygan Iron Lake Ingham Oakland Baton Barry Mackinaw Kalksska Crawford Ionia Alcona Genesee Delta C1 in ton 381188 lmmet Gratiot Branch Cass Pepulation 7.517 92,304 5,076 2,814 11,502 20,805 4,066 116,586 211,257 31,728 20,928 8,783 3.799 3.097 35,093 4,989 211,641 32,280 24,174 9,168 15,109 30,252 23.950 20,888 1928 2 HOUOHOWOOOOOOHJPU‘PUPOHH O NOOOOOOOOOOOOOOOOOOOOOO Total 28 ID (8) Republican Democratic Iosco Jackson leweenaw lontmorency Cheboygan Iron Lake Ingham Oakland Baton Barry Iackinaw lalkaska Crawford Ionia Alcona Genesee Delta Clinton Baraga Emmet Gratiot Branch Case 14. Questionnaires 1930 2.922211% 7.517 92.304 5.076 2,814 11,502 20,805 4,066 116,586 211,257 31,728 20,928 8,783 3.799 3.097 35,093 4,989 211,641 32,280 24,174 9,168 15,109 30,252 23,950 20,888 0 4 O OO¢HHOOUOOOOOOJP¢U1HWOO Republican Democratic O sent to County Cle‘rkl. 30 GOOOOOOHHOOOOOOOONOOOOON .\ 4-.—-—.-— There is no record of the number of minority candidates in the townships since the township use the caucus system to nominate their ticket. Usually there is a very small number out at the caucuses and very little interest shown unless there is some flagrant misuse of funds by an office holder and the party doesn't wish his name to appear on the ticket. In some of these counties there was no use Of holding a primary, since there were few office seekers. The following table shows the number of offices in the primary election where there was Just one candidate for the Office: 1928 {Opulation Republican Democratic Icsco 7,517 4 No ticket Jackson 92,304 2 2 Keweenaw 5,076 4 NO ticket Iontmorency 2,814 8 “ “ Cheboygan 11,502 1 2~ Iron 20,805 3 1 Lake 4,066 4 NO ticket Ingham 116,586 0 1 Oakland 211,257 5 8 Baton 31,728 7 6 Barry 20,928 3 2 lackinaw 8,783 5 4 Ialkaska 3,799 1 No ticket I. Crawford Ionia Alcona Genesee Delta Clinton Baraga Emmet Gratict Branch Cass ‘ Ioscc Jackson [eweenaw Iontmorency Cheboygan Iron Lake Ingham Oakland Eaton Barry lackinaw 1928 POpulatiqp 3,097 35,093 4,989 211,641 32,280 24,174 9,168 15,109 30,252 23,950 20,888 Total 1930 Population 7.517 92.304 5.076 2, 814 11.502 20,805 4,066 116,586 211,257 31,728 20,928 8,783 (11) 4 NOGUNQUN W No NO NO Republican Democratip 9 7 5 1 . 4 NO ticket 2 6 2 NO ticket 1 3 2 4 1 O 6 8 2 1 2 4 83 60 Republican Democratic ticket 6 ticket N ticket H UkU‘QN u...,__o—-_..—. u‘-..‘ ’0 1930 POpulation Reppblican Democratic Kalkaska 3,799 2 NO ticket Crawford 3,097 9 6 Ionia 35,093 0 4 Ala) na 4, 989 4 NO ticket Genesee 211,641 2 5 Delta 32,280 2 0 Clinton 24,174 0 4 Baraga 9,168 5 No ticket Emmet 15,109 1 3 Gratict 30,252 0 0 Branch 23,950 1 4 Case 20,888 0 0 Total 62 58 15 These results would tend to show thatin the smaller counties where the pOpulation is scattering and largely rural that there is less attention paid to the primary election, and it would also tend to indicate that a mandatory primary was really unnecessary in the less densely pOpulated counties. These figures show a sharp contrast to the vote cast for state representatives in Detroit in 1930 where it is impossible to divide the city into untis comparable to counties. There were 113 candidates in the field, and only seventeen to be elected or nominated. The following figures show the vote for representatives in the_1928 Primary Elgctiopp;_ 15. -Questionnaires sent to County Clerks. . | Il||llllll1|‘.'l 72,495 54.558 44,027 38,842 32,120 28,530 25.590 22,633 21,441 19,481 18,871 17,974 17,595 16,192 15,434 14,277 13.798 13.091 12,581 12,058 11,668 11,233 10,461 9,496 9,204 8,457 7,321 6,058 3,810 587 69,112 48,685 42,975 36,117 31,401 26,617 25,075 22,512 20,953 19,159 18,825 17,812 17,015 16,188 15,256 14,260 13,592 12,999 12,416 11,916 11,685 11,078 9,866 9,327 8,927 8,141 7,230 5,674 1,974 435 65,645 47,132 42,938 32,653 31,317 26,553 23,188 22,401 20,882 19,115 18,401 17,791 16,941 15,693 14,933 14,038 13,579 12,947 12,291 11, 866 11.570 10,942 9,845 . 9.275 8,639 7,860 7,153 5.546 1,764 264 61,629 44,881 42,364 32,448 30,636 26,548 23,014 22,267 19,829 19,042 18,007 17,609 16.630 15,503 14,680 13,989 13,246 12,624 12,190 11,770 11,246 10, 914 6,660 9,221 8,472 7,489 6,977 2,968 1,171 2,416 (13) (I [0 I. Small Vote Cast The clerks in the various counties were unable to give the number Of registered voters in their county except in a few cases which shows that the number voting was much less in some counties than the elegible voting list: Delta County 1930 Registered Voters Highest Votes Cast 15,039 8,843 .............. ------O.--“----‘--------- -- Alcona County 1930 Registered'Voters Highest Votes Cast 2:345 1,247 Crawford County 1930 Registered.Voters Highest Votes Cast Baraga County 1930 Registered Voters Highest votes Cast Eaton County 1930 Registered Voters Highest Votes Cast 16. lichigan lanual 1931, p. 227. ~—~....e. *-' AO' -— om... _H_m.~. _-u_“_”—.vv~ -.--“— ~ .5 . -' * '- _ . .— —--—‘- ! -U—~-‘.--.—~-‘m.‘- ' \ -%-. '-_—~‘. (15) Lake County 1930 Registered Voters Highest Votes Cast 1,800 1,509 lontmorency County 1930 Registered Voters Highest Votes Cast 71.500 1,083 ' Jackson County 1930 Registered Voters Highest VOtes Cast 32.500 16.292 Iron County 1928 Registered Voters Highest Votes Cast Cass County 1930 Registered Voters Highest Votes Cast 11,000 2,406 Branch County 1930 Registered Voters Highest VOtes Cast 13,000 3,282 17 O--- ...... menu-OO-e-n-c-Cduano----u---------- ‘ Q 17. Questionnaires sent to County Clerks. bug—.- o—-. -_...>_ ~ ~ 7 " " -OI- - v -- . ,_ - e 1 ._.__ __ _ ‘ ‘ _ - ’ T n a -<- .. ""-’"—.A nun- _‘ _- . Vx' ‘ w s —_._. H... _ - g 77 ~ 7 . cg"... .‘ . - V, — .> I ( -—--—_-_' —n.—__. Q I. ‘- —-.‘_ up.— ..._.__.. n..~- (E6) Remedial'Legislgtion The legislature in 1931 attempted to curb the large number of office seekers in order to simplify the ballot for the voters by compelling each candidate to have a petition signed by two percent Of the voters or in lieu of that deposit $100.00 which shall be returned if he polls a vote to be nominated or if he polls a vote that falls in the list of like members that are nominated. The law applies only to cities where there are more than three candidates to be elected. The candidates may have to forfeit that much money, which is not a total loss since the publicity they receive undoubtedly helps them in a monetary way eventually. The legislature in 1931 passed a law which tends to nullify the mandatory clause in the 1909 primary law. nominations without the primary in case of no Opposition. If upon the eXpiration of the time for filing petitions in any primary election, it shall appear that as to any office or any party ticket there is no Opposition then the office with whom such petitions are filed shall certify to the prOper board of election commissioners the names of each candidate whose peti- tions have been prOperly filed and such candidate shall be the candidate for such political party for such office and shall be certified. As to such Offices there shall be no primary and such office shall be omitted from the primary ballot. The pro. visions of this section shall also apply where more than one candidate is to be nominated for any office and there are pg pgre candidates than there are persons to be nominated.“ 18. Compiled Laws, 1931 (17) “ There is no doubt that the primary system has not worked as well as its advocates prOphesied. In fact in many states, it has been worked until many less serious minded citizens declare for a return Of the convention without reservation.19 The Corrupt Practice Act was passed to put a check upon the amount each candidate could spend in any one campaign to get elected to office. The important provisions of the Cor- rupt Practice Act are as Follows: Section 1. NO eXpenses may be incurred and no money eXpended in respect of the management or conduct of any political campaign leading to the nomination or election of any candidate, except by the persons authorized under the pro- visions of this section. Every candidate, before making or authorizing any expend- itures in connection with his candidacy for the nomination, and also immediately after his nomination, must appoint an agent who shall thereafter be the only person authorized to incur expenses or disburse money for the purpose of promoting or procuring the nomination or election of such candidate. A candidate may name himself or some other person as agent, or he may designate a political committee to act as his agent, In case a committee is designated, only its treasurer may incur eXpenses or disburse money. A person other than the agent Of a candidate shall not incur any expenses in promoting orpprocuring either directly_ 19. National Municipal Review, Vol, XV. p. 529 (18( or indirectly the nomination or election of any candidate, unless he is authorized in writing to do so by the agent, which authorization shall state the maximum amount to be sO OXpOndOd. Any expenses authorized as aforesaid by the agent shall be duly returned as a part of the candidate's expenses and are included within the limitations set down in this act. In case a candidate appoints as his agent a committee which is also engaged in acting as agent for another candi- date Or candidates for any public office, said committee shall make a return for each candidate and shall allocate as accurate- ly as possible the Joint expenditures to the account of each candidate, in addition to listing the receipts and eXpenditures which are individual to each candidate. Section 1-2. No sums of money shall be paid and no ex- penses authorized or incurred by or on behalf of any candidate in excess Of the amount determined by multiplying by two cents the total number of votes cast at the last preceding presiden- tial election for the office of secretary of state in the state or political subdivision thereof in which he is a candidate for nomination: Provided that in no case shall a candidate be restricted to less than one hundred dollars in his campaign for nomination.. Providcd further that a candidate for a county, city, or district office shall in no case be permitted to spend a sum in excess of ten thousand dollars. The eXpenses of any candidate for election shall not exceed one-half of the sumper- pppted for that candidate in his cpppaign for nomination. 20 20. Compiled Laws 1929, p. 1276 (19) In many incidents the county clerks reported the the candidates did not file their campaign costs so there was no way to check up on them. The deputy secretary of state told me that the state department was not as particular as in the regular election about candidates filing their expense accounts. These expense accounts do not have to be kept on file only one, year anyway according to the 1929 Compiled.Laws,.Section 3311.21 2pc Cost of the Primary System The cost of theprimary is a potent question today since the tax payer is already burdened with excess costs of govern- ment, and wishes to eliminate unnecessary laws as well as Offices. The convention costs are not filed, and it is impossible to find out the amounts used in any campaign. The expenses of the convention were met by contributions by candidate and friends of the party. Estimates have been made which range from way above the cost of the primary to far below its cost and some .think that the convention cost and primary cost are about the same. The cost to the state for each primary election is a comppratively small amount since the counties have to bear the cost of printing the ballots, as well as distributing them to each precinct within the county. The deputy secretary of state, Mr. Brown, certifies that each primary election never costs the state more than $300.00. They furnish the seals for the ballot boxes, and that is all. Another cost is their postage which is a large item in their eXpense of the election. This total cost is a negligible amount pa compared to the cost in the counties in the followingtable: 21. Compiled Laws 1929, Section 3311. (20) POpulation Total Cost Branch 1928 23,950 8 1,368.42 1930 960.10 Gratict 1 928 30, 252 939.20 1930 627.15 Cass 1928 20,888 499.02 1930 576.33 Emmet 1928 15,109 768.57 1930 769.85 Clinton 1928 24,174 971.28 1930 945.33 Delta 1928 32, 280 858.39 1930 965.03 Genesee 1928 211,641 4,394.58 1930 764.45 Alcona 1928 4,989 540.88 1930 450.43 Wexford 1928 16.827 2,753.05 1930 2,169.55 Ionia 1928 35,093 2,140.92 1930 444.73 Crawford 1928 3,097 164.50 1930 167.50 ..—..u- ._—H_ ,aH--—-_- . _., ._ _-H, -- _ - ._.. .__. Vex -. ,- ... ._ -._. - - , _. .— 0 . . ,-- 2-.. __7 ,~_7‘,,._.__. _. F- , .._...-..,._..__..—_-- -..-..——-.-....H._._.-.~_.- , < I . i._____, a. I . g... . .._e.. -. fir» —_«*5-.-~-— - - .- 1 - ,~.-_.- —~* ,,._._., , svk ---, . , - . ‘4 _ k... . ‘45 —VD~_ ‘- _ 7‘.--..—.--- -.o-——- - i . . - . u—cs . . . --(I”._r *-—-- ——-«-—*' -7—0 . “hhn><> ‘r- ~- "-v—o-As -__. ‘—- .. , _‘, , I . . 0 .. a: H 2,. -- .. .. . 1 _... ,, “-— .— ._ v 0-. - ,_ 1 . -4 . - ,7 - - a _ n ~ . H .o. n— - »\ -- o _. . . . 2 O . ~, . __.-.-.- ---.-—., _,.. , .-.. I._-«_-.-- > ... *_~|-' ..—o--n ‘..,-,, . q.., -.-— «.. - . O . -P._._ ,, . .-.- , -.- -1... u - m.--- ..-.e-.-, --a_._ .,- , - e ._.. _-- , . . . r-,--.e..r.—- . . . . . e V, - < .. hhfi— ~x.‘-._1—_- —. -- > _. -.- . .u.. ._ .. —-.e..-u-v~ .2...‘. _-o— . __ _, 0 . I . x e ' . _ — .-. .-. - _ .-‘ __._~-‘__.-. ‘b- .1 _ .._-. H __....__.~. . 0- ,.-. v... . ”a .. Qua-.- .‘,,, *h . _ , , _ —._..__2-—._..1_.-b— ~...- *fi~~—‘_i— _‘,_ Populgpion Total Cost Kalkaska 1928 3,799 8 309.33 1930 358.17 Mackinaw 1928 8,783 243.55 1930 259.63 Baraga 1928 9,168 653.05 1930 643.13 Barry 1928 20,928 835.47 1930 670.27 Eaton 1928 31,728 840.82 1930 1,157.72 Oakland 1928 211,251 2,325.84 1930 2, 599.74 Ingham 1928 116,586 1,722.78 1930 1.771.92 Lake 1928 4,066 429.42 1930 369.07 Ioscc 1928 7,517 570.28 1930 489.27 0- ¢---- C-.--..-- -0- Co- -------- CCCCCCCC o aaaaaaaaaaaaaaaaaaa Montmorency 1928 2,814 189.10 1930 498.27 Ieweenaw 1928 5,076 280.72 1930 294.51 (21) a—~-—-.- ~9~ —. - , - -' _- - - . . "g ‘— - -. — - - \ u v- 4- . d. . ~ .. -- .\ ., —A s- - on g. -v a, . ~— —-.. '— ~- a. - , 4 .. o - - H -» ‘- . I .. - - ._. .- e-— H - s- A’ _ _ . c . 1,~_.~ - -. ., - .... -- 1. - .- c-oe— .- - .. .. ,. _.. .. p _ _. . 1-. , . . .-_— a. .- - ._-. , . - o - _ .,. - . .. . .. I . _ ... _Q. -. . . - ,. r‘—--‘—--- I ' v ‘l4~~~——"..—.~'I -h‘u—r—‘n p.-. .-> wul—Q.l—.—-~m .h’h‘~—. A's ' H“H-.—h~*v~ed-u—-_d~- H._»\ M- u<.-.H-..— vw. _ -—.b . up. 4 5 -s. . ~~-~- .-..-~ - .4 . ~.. .. g-e- a I .. _ .--._—.—..._..- _ c I C o —._ - , . “‘--— -. ~4---———-~*H“~-_-w~wfl~“. _.‘..l 5 V . \‘ 1, ,s ....O- .-. -- _._ . -——-. v.._..._—.H~-——‘_—....——~*~‘--I~I—~—W - r . ~n-V%H“-——u—-—b~~‘*w-‘.-*”—I-'n’*~-h~hfl~*~ .a_... .-< -57 ._---v-~—.->_.-.h- _ e-r --‘. “—fih-I. -.-¢~—o—o w . -,‘_.—-._—- _. ,~-——- u.-o-—-—--..e——._—.e—~._. -m--—o——~~-~~ (22) POpulation Total Cost Jackson 1928 92,304 8 2,832.42 1930 1,744.46 Cheboygan 1928 11,502 574.87 1930 596.76 Iron 1928 20,805 1,664.51 1930 499.97 Wayne 1928 1,888,946 8,000.00 1930 10,000.00 22 The total cost for 1928 primary election in a little less than one third Of the counties is approximately $27,000 while the cost for the 1930 primary is about $35,000 for the same numberof counties. Using $30,000 for an average the cost to the counties for the state as a whole would be 2pc Cost per vote in the Counties ggtal EXpense 8 540.88 450.43 Highest No. vopps cast 1928 Alcona 1,247 1930 1,666 Cost per vote 8 .440 .270 309.33 358.17 1928'Kalkaska 892 1930 588 1346 .609 ‘----- ------------—--------------------p----------- ---------- 22. Questionnaires sent to County Clerks. g 4 N‘~v- \ , .- I ._—-..- i.- __--'_...-—. no-‘ea_~~_ ._~'- -" 7 , ‘ .' y . ‘. O ---~--.~.-——~— ~¢—~—‘-—‘h~ \_ , .‘ I 0 . . VI .. _. _ - ' 0 ~ , a t g. . _‘-_ “N... _-&.-.-..-‘.sip. —.~—-‘—"‘H—"“ ._.-._—“~u~—" - - y, - *— —- n - -. .1 7 «- .... .. v -- p H -H . ’ ~ .. - ... _. — ..‘-"" °' ‘ " ' 1 .. - ,- .— a. -4“— _ _. -. , -- -.. _ .. ... ”3““...- .r.-”._.— Total EXpense 8 515.55 760 s .678 1930 472.e3 1,516 .311 1928 Barry 835.47 3,018 .276 1930 670.27 4,809 .139 1928 Eaton 840.82 5,162 .162 1930 .1,157 72 3 5.710 _ -..- .172 __ -- 1928 Lake 429.42 1,469 .292 1930 369.17 1, 513 .244 1928'Iron 1,664.51 6,980 .238 1930 1928 Ioscc 572.28 2,000 .286 1930 507.77 2,365 .214 Highest No. Votes Cast 1928 Mackinaw Cost per Vote 7, - 1 — .. 4.. -- ‘. «‘0 H... ,. ..—. - - _... --._ __-‘__...,_~_-.__.- ~~'~‘- MW -q «-1 e To. 0 0 ~_- ad...“ hw—‘H-T- ~““‘-— — .-—~-—-—._ e- . _, f_——.. -' .- ..——- m 1 —i ..___......_-—-~O- —u—~—. .--—H— { Q I H-n—u—u-v—o-e——-’—~ . ., _.. . ,-» H - _—-- ~’:h- u - - - .. --- s. .. 'L_h. , __ _ , ___ - .—-|~-—t—vr -—.-«- 1 ._ - — --e-. ' i H—-~.¢--—._—. -. (2416+ Total EXpense Highest No. VOtes Cast Cost per Vote 1928 Macomb 9 2,380.44 20,128 7 .113 1930 1,810.10 11,473 .157 1928 Keweenaw 280.72 1,548 .181 1930 1928 Jackson 2,832.42 12,770 .221 1930 1,744.46 16,771 .104 1928 Ionia 2,140.92 6,895 .310 1930 444.73 7,610 .058 1928 Crawford 164.50 787 .209 1930 . 167.50 773 .216 1928 Case 489.02 1,155 .423 1930 576.33 3,024 .1905 —_.-...._,_... -..«—_.._H—-—~.__—— -,__.____._.-_-__1 . .. . O . . 0 -_\ ,.._.,_____________‘_,-____-h.__., ____-~~-...a-O-I —v.-.-_‘.—.—-h—-——~—. u- *v—V-‘a—O”—--—- "*—.v—’.—-—-‘V‘H -. m—w‘fiu _ {V —_-—.. —.—¢.—-~‘~~p-a h-—.—p»—H—~—~-—nh—_—- -a d u -_, . ,a —u>-.'v —.—~ ~- «nu-"b-“ . -. «‘—. .. -—v~-——- —‘_ ._ .__--—- ~-o~ — h‘ ~_‘~‘--—- -~—-—~.&_._.-“__ -‘—-~_—.--_--_~__~~--- d . u—.—~_¢—--Iu—o...—-~ ~'—--—-.——"~r— -—-—-—-.~_—o—~un h”_.—-" - Q...— _—.c—-~._~ Total Exgeneo Highest No. Votes Cast Cost Per Vote 1928 Branch $1,358.42 3,094 6 .439 1930 960.10 3,288 .292 31928 Baraga 653.05 2,572 .253 1930 643.13 3,069 .209 1928 Clinton 2,785.96 2,056 .409 1930 .1,949.50 4,772 .198 1928 Delta 858.39 7.967 .107 1930 . 965.03 8, 843 .109 1928 Genesee 2,756.66 33,040 .083 1930 764.45 34,804 .022 1928 Oakland 5,325.84 45,840 .116 1930 2 ,393. 24 36,117 .064 . -- ._ ._. .. _. _ ._ .— —— -— >—- - 0 — - -- V.“ b —.—. .l. I—-‘ ~ ~ uh. .— ~—.-————-~—---.- _~........—._-...__._-— ' .——¢-—.av~u...—..q__~..., - r 1.. ~—&--—-—w——— _ Q - ”— -——-n _..-... -‘——~_.,_ v D .' , .., .-- --_ - .b‘. ~-—-~— r. . .| . _.._...—-_..- v-.‘—. _..-—‘—*H_——-—_- . psr~——».—.--c-_— -—-—._-. --.— n .0 u - p s .-- . .. .__..--‘,.__,_, ,_ ~~_-__.. . - . ,, h.._‘_...~_._-.._.«‘“-————_ u..—. —..—-., m ,— 1 - -7 —— ~ -, - 4- I ~ 5.. .-— _ 0- —v _ -—“-._.- Total ExQense nghest No. Votes Cast Cost_per Vote 1928 Ingham § 2,722.78 33.291 8.081 1930 2.772. 02 32, 759 .984 1928 Gratiot 837.20 5.459 .151 1930 627.55 6,946 1095 1928 Emmet 768.57 2,375 .323 1930 769.85 3, 593 .214 1928 Cheboygan 674.87 2,173 .310 1930 1928 Montmorency 189.10 527 .358 1930 162.50 1,083 .150 2313;133:115;i§"'"""""""""'”" """"" """""'""" 1928'Wayne 8', 000 Plus 350, 000 .02 1930 8,000'P1us 350,000 .02 23 23. Questionnaires sent to county clerks. - . W—-.“~..____,_ ~__.__.—___~—.__-._—o-—-- _..__ ~._..... .— . .. ,_.-_—— H_-‘— _¢ ~~ - 7 O I . o y - - “—WMHn- .‘_.-.u—a.~~—-.-.-.._—~~—._-.. 1 _ fl .- -- u .. -_.- 3 ha-* ._-.._.._- ~._.—...__.. I . ..a 0 O ‘5 . O ._._..._.—.———,,— v‘-h--- ._u—-— -~—.._-’ ~——.———-—.. _.-~_ . so-.. u... h—h—u n . o .- , . ‘ I v...- ——l—a———-—~—v —~-—§—-—.-fi—— v—- “~-—._.. v— _..—_.—'—~ _ . .‘_ ~u—-cq.——I—o—'-v-———-w—~— —'< ‘--_~.-..‘--. —.——--~‘_.-—-q—n—‘_-—-o —~—_~.-.o—-...._.._w—o—__~_~..~,___—.—~c———_—-~-.~~.—_-._.__.-. ._._._— a--- .qo._~~ -m— (27) The following graphs will show that there is no marked relationship between the costs in the counties of similiar size. These graphs do not include the cost to the precinct, but are merelycounty costs. Since the cost to the counties as a whole is about $100,000 and there are about 800,000 voters in Michigan the average cost would be about 3.12% per vote. From the graphs we can see that in the more densely populated areas that the costs are more nearly normal and follow out the average more closely. The less densely pOp- ulated districts are nearly all above the average or mediam. ation 1 ,000 “" 6 Counties with p0pu1ation from 1,000 to 5, MICHIGAN STATE COLLEGE 2,000 .» y >b—0— . IOH e O- 9 e e . O 9 o e O D oee+e¢e+noo+ QAOQQH 4H. o—Ageffe o¢-, 3 ,000 o O O O ~—¢ 4000900.. 0 '09. a... e o be—eaneo 9O 4 9 Ow. O 9 I e o 0‘ e e 0009000.. .§$... on- '0 069004994 .otoebcoq i o» .5 o 2 .'¢Qo¢50 a... .00 94—- 99»- 4 fovofk <4 00900 D * 'v'. .-++ 4.4.4 eofq 44— ¢. wouc-o o+1+4¢~4$v 0 1 ¢- a- L. .i é-e 6-4 99 .,,.. 7 4 5 A +4.47. 9 00 959044—4-4 e». ,.1.‘ v v 040»< 0‘ .«ev octee-»o«t> ', 9 0'0?! use w 00929.92, ‘vetooocf ‘ .000 ' 0 DEPARTMENT OF MATHEMATICS \‘7’ Boots 5 Counties with pooulation from 6,000 to 18,000 1.0“ f . - 1 V v VT I VYVVY '7 7 " Viv v v vr 1 V v v v v r w ._, vv v v v v 1 ‘ ‘rm;;I+I-I4‘L‘4E‘ee-§-¢‘ ,‘I—IeeoeeoI; 4—604944140'410 14I2014I'v-II 1:: «»Q—Oeuv»vo e e«4 —o.v¢ 1O 11 9410‘ oo‘e¢-o~‘1e 1 o 1 < 1.4111. - 1.14, g. 1 ,~....'.. 00161114 < '1-» 1 Q', o 70 ._ 1,0 >+40111 —. .’ J. 911.4 - 41¢-—e~- O'-" ..1,.....,,.... 1 1 1 1 .1 4. 1 1|. 1 44., ‘,.,. ., ... ,., . 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In ”IIHHHHL p I? II III—I LI IPH H» PFIII h DEPARTM ENT OF MATHEMATICS 77 um no 11:. 116-RRK m1 rue-I 111 9 ti on (35) In addition to the costs borne by the counties there is an eXpense to the various precincts within the county. These precincts have to bear the eXpense of five poll clerks and two gate keepers. The state law allows them $5.00 per day and any fraction over is counted as a half day. The two gate keepers @ 35.00---€$lo.00 Five poll clerks plus over time-- 37.50 Notices (Printing) --------------- 2.50 Making a grand total of ----------- -------3 50.00 for each pre- cinct. Heavily populated areas would perhaps run over that and in the smaller counties it would of course be less than $50.00 but at least $50.00 would be a safe average for the state. The following table shows the number of precincts and costs in a few of the counties: 1928 1930 No. Precincts Total:gost N0. Precincts Total Cost Branch 23 0 $50.00 a 1150 29<0s50.00 1450 Gratict 29 “ " 1450 29 “ “ 1450 Cass 21 3 “ 1050 21 i “ 1050 lhmet 22 3 5 1100 22 " I' 1100 Iron 23 " °‘ 1150 23 “ " 1150 Cheboygan 25 " “ 1250 25 “ ‘" 1250 Genesee 84 “ “ 4200 95 “ " 45500 Jackson 68 " " 3400 50 “ “ 2500 Ieweenaw 8 “ " 490 8 “ “ #00 Hontmorency 8 " “ 400 8 “ “ 400 Ioscc 22 “ “ 1100 19 " " 950 Lake 15 “ " 750 15 " “ 750 Ingham 63 “ “ 3150 65 “ “ 3250 _.~—«_—-—_. 1928 1950 No. Precincts Total Cost 1N0. Precincts Total Cost Oakland 61 0350.00 3 3050 61 0350.00 3050 Baton 26 “ “ 1300 26 “ “ 1300 Barry 25 " “ 1250 25 “ “ 1250 Baraga 11 “ " 550 11 “ “ 550 lakkinaw 21 " “ 1050 21 ” “ 1050 Ialkaska 12 “ “ 600 12 “ " 600 Crawford 6 “ “ 300 6 " “ 300 Ionia 27 “ “ 15505 27 “ “ 1550 wexford 21 “ “ 1050 21 “ '3 1050 Alcona 15 " “ 1750 15 " " 1750 Delta 31 " '3‘ 1550 31 “ " 1550 Clinton 20 " " 1000 20 “ " 1000 wayuo 933 " " 46,650 933 “ “ 46,650 ------ ------------- ------------------------------------------‘;Z- The totql cost to the precinct is less than one third of the counties in Michigan is about 081,000, making the total cost approximately for the state well over $243,000. Thus we have a three fold cost to consider in the primary system of making nominations; the state which is a small sum of about 8300.00; the cost of 850.00 to each township which si comparatively small to each one; but to the counties we have relatively high costs which make the primary cost to the counties alt0gether well over C100,000 each time a primary election is held. In addition to the above costs to the state as a whole we have the cost to the individual candidates. Only a few counties submitted the cost of the candidates since according to the 1929 compiled laws, section 2211, the counties are not requested to 24. Questionnaires sent to County Clerks. I —-.-——-— . _—-o ~—- —...~ (35) keep the files of the candidates eXpenses more than one year. The County Clerks also submitted the information that itwwas not unusual for a candidate not to file a report of his eXpenditures and the prosecuting attorney as a rule did not enforce the law. A county with a p0pu1ation of 116,586 submitted a rather complete report as to the eXpense of the candidates: Sheriff Clerk Treasurer Circuit Ct. Com'r Register of Deeds Coroners Sheriff Clerk Treasurer Register of Deeds Coroners 175.89 159.00 369094 266.70 prublican 2 19%8 Election 5 Total 3280.68 336.96 8 617.64 193.10 486.14 325.74 1,003.98 186.40 167.00 67.50 420.90 52.50 45.50 98.00 190.40 193.40 383.80 113.35 167.40 98.50 191.05 44.00 614.30 Republican 1930 Election 442.30 216.30 260.88 318.13 687.29 6. 140.20 1'%5050 573-23 7‘"-'- 749.12 206.80 258.20 81.05 705.05 221.45 172.19 295.27 342.03 6. 7. 560.12 377.95 131.60 278.78 2,606.73 377.36 Sheriff Register of Deeds Republican POpulation 31,728 1928 Election 85.05 30.00 85.05 30.00 _——‘—_._.- o E C 0 . I § 0 C . -~-—_u—-—_..u.-~__——- (36) POpulation 31,728 1928 Election Republican 1e 2e 3e 4e 5e T0133]. PrOSe Coroners 5.00 5.00 1930 Election Republican Sheriff165.11 53.50 218.61 0191‘: 6.00 6.00 Treasurer 49.43 103.44 152.87 Drain Com'r 50e28 80000 130e28 Register of Deeds 48.13 30.33 62.26 140.72 Prose . Atty. 45.95 245.22 291.17 Coroners 82.07 65.57 ‘ . 147.54 Republican Population 32,280 1928 Election Sheriff 77.00 77.00 Clerk 64.42 64.42 Judge of Probate 71 415.00 415.00 Pros. Atty. 128.00 128.00 1950 Election Republican Sheriff 49.10 160.30 157.95 84.84 242.70 6 7 8 27.25 31.55 128.80 882.49 Clerk 80.35 45.85 24.75 150.95 ~~ (37) Population 32,280 1930 Election Republican 1. 2. 3. 4. 5. Total Treasurer 23.90 95.25 8 119-15 Register of Deeds 67.20 78.50 38.70 174.40 Pros. Atty. 217. 65 167.10 384.75 POpulation 9,168 1930 Election Republican Sheriff 69.00 94.35 ‘128.00 49.75 341.10 Clerk .50 .50 Treasurer 65.00 98.00 154.00 POpulation 7,517 1930 Election Republican Sheriff 18.60 29.70 16.30 64.60 Clerk 26.65 17.40 38.05 Treasurer 11.95 11.95 Register of Deeds 12.25 17.70 29.95 Pros. Atty. 65. 24 29. 85 105.09 POpulation 30,252 1928 Election Republican Sheriff 36.25 36.25 Clerk 136.04 149.40 285.44 Treasurer 119.45 119.45 Judge at Probate 12.70 12.70 Register of Deeds 14.25 14.25 —._—.__.___._.—.4—...., .— .*—.--——- ‘—.—..- u— o 7 O ' O I . _~-~——.fi -—--———.~.—_ . O O O O .__.. 1. _1,-— _ C . ' 1 I _ , O . C - ,“I~~—‘--H .__. (38) Pros. Total Atty. 16.70. 16.70 1928 Election Population 30,252 Democratic 1e 2e 3e 4e 5e TOtal Sheriff 6.90 6.90 Circiut Ct.Com'r 12.50 12.50 Pros e Atty. 23 .00 23.00 1930 Election Republican Sheriff 93.85 93.85 Treasurer 107065 194e35 242e00 Drain Com‘r 133.10 44.35 93.60 271.05 Register of D09“ 54e50 54e50 Pros. Atty. 130.75 179.00 309.75 Democratic Sheriff 16.00 16.00 25 The above BXpOHSeS as filed by the candidates show that the eXpense to the candidate is much greater in the larger counties. Conclusion It is evident that we have few minority candidates in the sparsely pOpulated districts, but there are many offices in small counties for which thereis only one candidate running making a mandatory primary unnecessary in those counties. The small vote cast in some counties shows that the primary does not bring out a large vote. It tends to show a rather indifferent glectorate in many cases. 25. Questionnaires sent to County Clerks. (39) The state costs for each primary election held areonly about 8300.00. The cost to the counties is about $100,000. There were about 800,000 votes cast for governor in the last election, and the average cost per vote to the counties is about 3.12}. It is evident that the counties costs are much higher than this in most cases. However a few of the more densely pOpulated areas are below that cost. The cost to the precincts in one third of the counties is about $80,000, making the total approximate cost for the whole state $340,000. The average cost per vote for each is about 8.43. The State Law requires the two major parties to hold a primary election because they poll the major part of the vote cast for secretary of state at each election.. It is only fair that there should be some possible chance for the state to escape the eXpense of holding a primary election every two year. The ore-convention primary might solve this problem, because under that system a conven ion would be held first. At that time perhaps the whole ticket.could be nominated to the satisfaction of every one concerned. But, however, if there should be some disgruntled factions, who thought they didn't have a fair deal, a primary election could be held to nom- inate candidate for those offices over which therewas a difference of Opinion. This difference of cpinion might not ,occur*eyery year, but it it did, a primary election would probably not have to be held for only one or two contested offices, thus eliminating a large bulk of the eXpense to the state as a whole. We really have pre-primary agreements now only they are not under state control, and a primary election is mandatory for the two major parties, before each general election is held. The ore-convention primary system of making nominations would satisfy both the extreme conservatists or the convention advocates, and it would not entirely deprive the advocates of the primary law.from exercising the privilege of nominating candidates for the various offices. BIBLIOGRAPHY BOOKS: Beman; L. T., “The Primary" 1915 Lewis, Stuart, “Party Principles and Practical PolitiCS." 1928 Warner, Fred M., "Nomination of Candidates by Direct Vote.“ 1903 PERIODICALS: Richigan Political Association Vol. V1, p. 32. National Municipal Review Vol. XV, p. 29. The Annals of the American Academy of Political and Social Science Vol. CVI, p. 1. NEWSPAPER: Lansing State Journal, April 11, 1932 SOURCEEMATERIAL: Compiled Laws 1907 Compiled.Laws 1931 Compiled Laws 1928 Public Acts 1909 Questionnaires sent to each County Clerk throughout the State. [u HICHIGRN STRTE UNIV. LIBRRRIES I II III lllllllll ll 31293104591569