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ExecutiveSummary
Theriggedsystemofredistrictingiscorruptingthespiritandrealityofrepresentative democracyinNewYork.Ithasbecomeaformofcollusionbetweenthetwoparties, drawingsafedistrictsthatprotectincumbentsandlimitvoterchoicebyeffectively endingcompetitiveelections.Thisinturnforcespowerinourpoliticstothemargins, givingdisproportionateinfluencetospecialinterests.Anindependentredistricting commissionwouldempowerpeopletochoosetheirpoliticians,ratherthanviceversa. Noelectionreformwoulddomoretohealtheharshbutartificialpolarizationofour politicswhileaddingrealaccountabilitytoAlbany.Itisareformthatcouldopenthe doortoallothers.Anditisanideawhosetimehascome. Withthereleaseof2010censusdatatoNewYorkearlierthisyear,theredistricting processisfullyunderwaytodrawlegislativedistrictsintimeforthe2012elections undertheoldsystemofpartisangerrymandering,evenasthepubliccallsforchangesto createafairandimpartialprocess. Theredistrictingprocessisakeydeterminantforhoweverycitizenandcommunitywill berepresentedatthestateandfederallevelsofgovernmentforthenexttenyears. Publicsupportforreformisstrongerandbroaderthaneverbefore,asexemplifiedby ReShapeNY,astatewidecampaignforredistrictingreformledbygoodgovernment groupsCitizensUnion,NewYorkPublicInterestGroup(NYPIRG)andLeagueofWomen VotersofNewYorkCity.ReShapeNYiscomprisedofacoalitionof37organizations fromacrossthestate,includingcivicgroups,issueadvocacyorganizations,unionsand businessgroupsunitedinthegoaltoreformourstatesredistrictingprocess.Public approvalforindependentredistrictingisalsoatanalltimehigh:76percentofvoters supportanindependentcommissionthatremovessomeoralloftheresponsibilityfor drawinglinesfromthelegislature(48percentsupportafullindependentcommission and28percentageanindependentcommissionwithsomelegislativeinput).1 Thecampaignsgoalissimple:creationofanindependentcommissiontodrawstate legislativeandcongressionaldistrictboundariesaccordingtofairandobjectivecriteria whileallowingforrobustpublicinputintotheprocess.ThemembersofReShapeNY, likeNewYorkersacrossthestate,havejoinedincallingforlegislativeactionbeforethe 2012electionstocreateanewredistrictingparadigm.

QuinnipiacUniversityPollingInstitute,KeepRace,JobProtectionOutOfRedistricting,NewYorkState VotersTellQuinnipiacUniversityPoll;CuomoShouldVetoLawmakers'Lines,VotersSay,October26, 2011.Availableat:http://www.quinnipiac.edu/x1318.xml?ReleaseID=1667

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A. THENEEDFORASPECIALLEGISLATIVESESSIONTOPASS REDISTRICTINGREFORM
OneofthemostproductiveNewYorkStatelegislativesessioninyearsoccurredin2011, owingtotheleadershipofGovernorAndrewCuomo,SenateMajorityLeaderDean Skelos,AssemblySpeakerSheldonSilverandtheother210membersofthestate legislature.Leftonthetable,however,wasthecreationofanewimpartialredistricting processthatwouldendtheriggedpracticeofpartisangerrymanderingandusherina morerepresentativeandresponsiveerainstategovernment. ThestatelegislatureneedstoreturntoAlbanyinaspecialsessiontopasslegislation whichendsthepoliticalmanipulationforpartisanadvantageofthedrawingofdistrict linesandestablishesanindependentredistrictingcommissiontodrawlinesbeforethe 2012elections.Thepoliticallybalancedandimpartialcommissionwouldusefairand sensiblecriteriaandbeguidedbyclearguidelinesindrawingthemapstoensurethe processservesallNewYorkersandtheircommunitiesratherthanpreservestheAlbany statusquo. Though184ofthe212statelegislatorscosponsoredorpledgedtosupportsuch legislation,nobillpassedduringthelegislativesession.Thisinactionrevealstheworst tendenciesinAlbanytheinabilityoflegislatorstoworktogetherandforgesolutions thatthepublicdemandsandsupports.Nonetheless,redistrictingmustbereformed, andthepowermustshiftbacktothevoters,whoshouldpicktheirelectedofficialsat thepolls,ratherthanlegislatorspickingtheirvotersinhandcarved,safedistricts. GovernorCuomohaspubliclyandrepeatedlyreiteratedhispledgetovetolinesthatare notdrawninanindependentornonpartisanmannerfollowinghisintroductionofa programbilltoreformredistrictinginFebruary.Further,hedoesnotbelievethatthe currentbodyresponsiblefordrawinglinestheLegislativeTaskForceonDemographic ResearchandReapportionment(LATFOR)canbenonpartisan.2Twentyfourmembers oftheSenateDemocraticConferencehavecommittedtonotoverridetheGovernors veto3ifanindependentprocessisnotputintoplace,resultingintheredistricting processpossiblybeingthrowntothecourts.Thelegislature,therefore,faces considerableoppositiontotheprocessitiscurrentlyconductingtodrawlinesunderthe oldsystem.
Vielkind,Jimmy.Cuomo:ImstillvetoingLATFORslines.CapitolConfidential,TimesUnion.July6, 2011.Availableat:http://blog.timesunion.com/capitol/archives/73902/cuomoimstillvetoinglatfors lines/ 3 Reisman,Nick.SenateDemocratsToCuomo:GetOutYourVetoPen.CapitalTonight.April6,2011. Availableat:http://www.capitaltonight.com/2011/04/senatedemocratstocuomogetoutyourveto pen/
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WemustgetbeyondtheshorttermthinkinginAlbanythatneverseesbeyondthe horizonofthenextelection.Insteadofdoingwhatisrightandbeneficialforboth partiesinthelongrun,whatevertheirpoliticalfortunestoday,ourelectedleadersseem tothinkthatmajoritiescannotbebuiltthroughpoliciesthatareappealingtoNew Yorkersbutratherrequiretheelectoralinsurancepolicyofgerrymandering.The resultinglowvoterturnoutisnotsurprisinginapoliticalclimatelackingcompetitive electionswherevotersseenorealchoiceofcandidates,andmeaningfuldiscussionof publicpolicyandrealdebateonissuestakeabackseattopartisaninterests. Timeisrunningoutforreform,butwithpublicandlegislativesupportforreformatits strongestindecades,reformisstillnecessaryandpossiblethisyear.Thisisaonceina decadeopportunity.Timemustnotrunoutbeforevotersseethekindofreformthat theyneedanddeserve.Redistrictingreformcannotwaituntilnextyear,andNew Yorkersdeservefarbetterthanhavingreformpostponedyetanotherdecade.

B. THEREPORTSMAJORFINDINGS
Thisreportrevealshowthestatesredistrictingprocesscontributestouncompetitive elections,unaccountablepublicofficials,unsolvedpublicpolicyissues,andastate legislaturethatdoesnotreflectthediversityofNewYorkState.Asummaryofthe majorfindingsisprovidedbelow.

1. COMPETITIONATTHEPOLLSISHISTORICALLYLOW a. Thereelectionrateforincumbentsfrom2002to2010wasastunning96 percentwithonly38incumbentsin941racesrunningforreelectionlosing theirseats,consideringbothprimaryandgeneralelections. b. In2006,astriking100percentoftheincumbentsthatranforreelection werevictorious. c. Between1968and2010,competitioninNewYorkStatelegislativegeneral electioncontestsdiminishedgreatly,withtheaveragemarginofvictory increasingfrom33percentto51percent.Analltimelowin competitivenesswasreachedin2004,withtheaveragemarginofvictoryat 63percent. d. Between2002and2010,93percentofincumbentswoninracesthatwere eitheruncompetitiveoruncontested.Uncompetitiveraceswerewonby marginsof10percentormore.Theaveragemarginofvictoryneared61 percent.Eveninracesforopenseatsinwhichtherewasnoincumbent running,whichaccountedfor35percentofallracesduringthattimeperiod, theaveragemarginofvictorywas42percent.

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2. THENUMBEROFUNCONTESTEDELECTIONSHASINCREASED,LEAVINGVOTERS FEWCHOICESATTHEPOLLS a. Thenumberofuncontestedstategeneralelectionlegislativeraces(inwhich thereisnoopponentornomajorpartychallenger)increasedfrom1percent in1968to19percentofallseatsin2010. b. AssemblyDemocratsandSenateRepublicanshavefewercontested electionsthantheirminoritypartycolleaguesineachhouse,inspiteofthe largerenrollmentofDemocratsstatewide.IntheAssembly,Democratshad nomajorpartyopponentorwerewhollyunopposedin340racesbetween 1968and2010,whereasRepublicanswereunopposedinonly243races.In theSenate,thereversebreakdownoccurs165Republicanssawnosuch oppositionfrom1968to2010,whileDemocratswereunopposedinonly129 races.Onlywithlegislativedistrictsdrawntoweedoutcompetitionacross theaislewouldoneseesuchanadvantageforthepartyinpowerineach house. c. NewYorkhadthefourthworstvoterturnoutinthenationin2010,with only34.9percentofeligiblevotersvotingfortheirgovernor,thestates highestoffice,likelyinpartduetothelackofrealchoicesatthepolls. 3. THESTATELEGISLATUREDOESNOTREFLECTTHEDIVERSITYOFNEWYORK STATE a. InNewYork,minorityrepresentationintheStateLegislaturein2011is25 percent,wellunderthenearly42percentofminoritiesthatmadeupthe statesentirepopulationin2010.Womenarealsounderrepresented, demonstratinghowgerrymanderinghasbeenusedtokeepincumbents(who havehistoricallybeenwhitemales)inpowerattheexpenseofequal representation. Latinosmakeup17.6percentofthestatespopulation,yetonlyhold about9percent(19)ofseatsinthestatelegislaturein2011. AsiansAmericansmakeupover7percentofthestatespopulation, yettheyhold,andhaveonlyeverheldoneseat(0.47percent)inthe statelegislature. NewYorkranks31stinthenationintermsoftherepresentationof womeninitslegislatureat22.6percentofseats. 4. FRAGMENTATIONOFDISTRICTSCREATESVOTERCONFUSIONANDUNEQUAL TREATMENTOFCOMMUNITIESINEACHHOUSEOFTHELEGISLATURE a. Thelackofcollaborationbetweenbothhousesofthelegislatureindrawing lineshasledtoacomplexwebofsenateandassemblydistrictsoverlaying eachother. AllofNewYorkCityssenatedistrictscontainpartsof4ormore assemblydistricts,andoverhalfofthemcontain6ormoreassembly districts.

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Assemblydistrictsaresimilarlydiluted,withoverhalfcontaining3or moresenatedistrictsinNewYorkCity. b. With150assemblydistrictsand62senatedistricts,thereisnoneedtohave morethanthreeassemblydistrictsinagivensenatedistrict.Thecurrent fragmentationcreatesconfusionforvotersandresultsincollusionrather thancooperationamongthehousesinthelegislaturetorepresentnatural andconsistentcommunitiesofinterest,essentiallytreatingthesame communitiesdifferentlyineachhouse. c. Assemblydistrictsandtoalesserdegreesenatedistrictsoftencrossthe sametwocountyborders.Populationvariancesofcountiesmightrequire thatonedistrictconnecttoanothercounty,butthereisnoneedforacounty tobeparceledbetweensomanydistricts,crossingthesamecountylines morethanonce. Eighteenassemblydistrictscrossthesametwocountylinescrossed byanotherdistrict.TheErieNiagaracountyborderiscrossedby threedifferentdistricts.TheRocklandOrange,PutnamWestchester, JeffersonSt.Lawrence,DutchessUlster,BroomeChenango,and AlbanyRensselaercountybordersareallcrossedbytwodifferent districts.Fourassemblydistrictsdistricts106,107,108and127 evencrossthesamecountybordersasotherdistrictsintwoseparate instances. Sixsenatedistrictscrossthesametwocountylinescrossedby anotherdistrict.TwodistrictscrosstheBronxWestchestercounty linewhileanothertwodistrictscrosstheBronxNewYorkcountyline, therebyjoiningBronxresidentsindistrictsfromanothercountyin fourinstances.TwodistrictsalsocrosstheNassauSuffolkborderin thesenate. 5. REDISTRICTINGISCONDUCTEDTO,ABOVEALLELSE,BENEFITTHEPARTIESIN POWERINEACHHOUSE a. Inthepastthreeredistrictingcycles,DemocratsintheAssemblygained10 seatsin1982,6seatsin1992and4seatsin2002. b. DespitetherelativegrowthinDemocraticregistration,SenateRepublicans havemostlypreservedexistingmajoritiesinthepastthreeredistricting cyclesandevengainedtwoseatsin2002foratotalof38memberstaking officein2003. c. Communitieswiththesamedemographicsmayalsohavedifferentpolitical partyrepresentationbasedsimplyonthecollusionbetweenthetwo housesandtheresultingwayinwhichlinesaredrawn. Rochesteranditsenvironsareaperfectcaseinpoint.Thesame metropolitanregionhasvastlydifferentpoliticalrepresentationin eachhouse.IntheAssembly,theareaisrepresentedby3 Democrats;intheSenate,theareaisrepresentedby3Republicans. Thisowesinlargeparttohowthecityisdividedintodistricts.

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6. THEPOPULATIONDEVIATIONALLOWANCELEAVESGREATDISPARITIESIN REPRESENTATION a. NewYorkscurrentpracticeofa10percentdeviationinpopulationsize fromthelargesttosmallestdistrictinthestatelegislature(+/5percent) allowsadifferenceofover30,000peopleamongsenatedistrictsand 12,600amongassemblydistricts. Iflegislativelinesweredrawnfairly,thesizeofdistrictsthroughoutthestate wouldberoughlyequal.Indeed,federallawrequiresthatU.S.congressional districtsbeasnearlyequalinpopulationaspossible,allowingadifferenceof nomorethanoneperson.The10percentdeviationhasallowedforlarge populationgapsbetweendistrictsandthusdisparitiesinrepresentationfrom onecommunitytoanother.Whilethedeviationhasbeenusedincertain districtstocomplywithsegmentsofthestateconstitutionandtheVoting RightsAct,itmoreoftenthannothasbeenusedforthepurposeofpolitical manipulationandpartisanadvantage. 46percentofassemblydistrictsand30percentofsenatedistricts werebetween3and5percentfromtheaveragedistrictsizein2002. Fewerthan12percentofassemblydistrictsand17percentof senatedistrictswerewithin1percentoftheaveragedistrictsizein 2002. b. Thepopulationdeviationhasprovidedthelegislatureitsgreatesttoolfor partisangerrymanderingbyinflatingcertainregionsofthestateover others.AssemblydistrictshavebeenunderpopulatedinNewYorkCityto allowforgreaterDemocraticrepresentation,andoverpopulatedinupstate NewYorkandonLongIslandtominimizeRepublicanrepresentation.The reversehasoccurredinthestatesenatetomaximizeRepublican representationintypicallyRepublicanleaningareassuchasupstateNew York. EverydistrictinLongIslandintheAssemblywasoverpopulatedby nearly4percent,whileinNewYorkCity,districtswere underpopulatedbyasmuchas4percent(exceptfortheboroughof Manhattan,whichwasoverpopulatedbyaboutonly1percent). IntheSenate,alldistrictsinNewYorkCitywereoverpopulated,the highestbeing4percentinQueens,whileinthe36districtsoutsideof NewYorkCity,32ofthesedistrictswereunderpopulated(only4 districtsoutsideofNewYorkCitywereoverpopulated,allintheNew YorkCitymetropolitanregioninWestchester,RocklandandOrange Counties).

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c. Thereisnowbasedon2010censusdata,aswingof26percentbetween thelargestandsmallestassemblydistrict,adifferenceofnearly40,000 people.Inthesenate,thereisnowaswingof25percentbetweenthe largestandsmallestdistricts,adifferenceofover75,000people.Dueto shiftsinpopulation,manydistrictsoncewithinthe5percentallowancein 2010arewelloverthemaximumdeviationallowed,pointingtotheneedfor tighterdeviationstohelppreventthedisparitiesinrepresentationasthe yearsadvanceaftereachredistrictingcycle.Whileredistrictingeveryten yearsrecalibratesdistrictsizetoreflectpopulationshifts,drawingdistricts closetothe10percentmarginshowshowquicklyitcangobeyondthat acceptableallowance. Overonethirdofcurrentassemblyseats52of150afterthe2010 censusarenowabovethe5percentdeviationfromtheaverage districtsize. Similarly,overonethirdofcurrentsenateseats22of62after the2010censusarenowabovethe5percentdeviation.

C. RIGGINGTHESYSTEM:HOWNEWYORKSLINESARECURRENTLY DRAWN
Redistrictingistheprocessthatoccurstoredrawstatelegislativeandcongressional districtlinesinordertomaintainequitablypopulatedelectoraldistricts.Populations arenotstatic,andovertimeelectoraldistrictsnolongerrepresentthepopulations livingwithinthem.Redistrictingwasdesignedtoprotectthebalanceofpoweramong electoraldistrictsandamongstates,andensurethatthepublicisproportionallyand fairlyrepresented.Insteadredistrictinghasbecomeagrabforinstitutionalpowerby thosewhocontroltheredistrictingprocessinmanycases,asinNewYork,the legislatorsthemselves. InNewYorkincumbentlegislatorscurrentlygettodecidehowtheywanttheirown electoraldistrictsdrawn,andwhichvoterswillresideintheirdistricts.Thisessentially entrenchestheirpower,allowinglegislatorstochoosetheirvotersbeforevoterschoose them.Toensuretheredistrictingprocessdoesnotweakenthedemocraticprocess, CitizensUnionhaslongcalledforreformandatthiscrucialtimecallsforreformbefore thelinesarepermanentlydrawnforthenext10years,startingwiththe2012elections. Redistrictingthatisunderwaythisyearwillgreatlyinfluencewhoiselectedand,by extension,majorpolicydecisionsforthenextdecade.CitizensUnionbelievesthat controloftheredistrictingprocessmustberemovedfromthedirectcontrolofthe legislatorswhohaveselfinterestinthedrawingoflinesandplacedintothehandsof anindependentandimpartialredistrictingcommissionguidedbyclearandconsistent guidelinestoensureafairpracticethatisaccountableandindependentofpoliticalself interest.

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TheLegislativeTaskForceonDemographicResearchandReapportionment(LATFOR)is currentlychargedwiththeresponsibilityofprovidingtechnicalplansforthe reapportionmentofstatesenate,assemblyandcongressionaldistricts,whicharethen approvedvialegislationbythefulllegislatureandsignedintolawbythegovernor.The appointmentprocessformembersofLATFORisinherentlyflawed,withlegislators sittingontheappointmentcommissionitselfandthushavingdirectcontroloverthe drawingofdistrictlines.Evenworse,themajoritypartiesofeachhouseeachappoint twomemberstoLATFOR,whiletheminoritypartieseachappointonemember.This hasledtothemajoritypartiesineachhouseessentiallydrawingtheirownlines,turning ablindeyetotheotherhousewheretheotherpartyiscurrentlyinthemajority. InadditiontocontrollingthemembershipofLATFOR,legislatorsinthemajoritiesof eachhouseuseseveraltoolstoretainandextendtheirgriponpower.Therulesfor drawinglinesarebothcomplicatedandtoolaxinNewYork.Theprimaryfederalrules thatthestatelegislaturefollowsinredistrictingarethosedeterminedbytheVoting RightsActwhichprotectstherightofminoritycitizenstoelectarepresentativewho willprotecttheirinterestsandbyseveralUnitedStatesSupremeCourtdecisions.U.S. SupremeCourtprecedentrequiresthatstatelegislativedistrictsarethesamesize withinatotal10percentdeviationandcongressionaldistrictsarenearlymathematically equalunlessthereissomelegitimateobjectivethatwillbeobstructedbythisrule.The leewayallowedforthesizeofstatelegislativedistricts,inadditiontotechniquessuchas splittingcommunities,drawingchallengersoutofdistricts,anddrawingpartisandistricts thatservetomarginalizetheminoritypartyofeachdistrict,allresultinpartisan gerrymanderingthathasinhibitedtheabilityofthelegislaturetoproperlyservethe public.

D. THEHARMFULEFFECTSOFGERRYMANDERING
NewYorksGerrymanderedAffectedLegislature Untilmostrecentlyin2011,NewYorksstatelegislaturehashistoricallyfailedtosolve pressingissuesinatimelymanner.Themuchmalignedbodygainedadegreeof credibilitythefirsthalfofthisyear,passinganontimebudgetanddemonstratingit couldforgecompromisesonintractableissueslikeethicsreformandmarriageequality. ItappearedthatundertheleadershipofGovernorCuomo,functionalgovernmentwas notonlypossiblebutdoable.Yetoldhabitsdiehard,andthestatelegislatureissowing theseedsoffuturedysfunctionbymaintainingthecurrentsystemofpartisan gerrymandering. Historicpolicygridlockhasresultedinalackoflegislativeactiononanumberofissues importanttoNewYorkers,perhapsmostnotablythealmostalwayslatepassageofthe statebudgetoverthepasttwodecades.Otherhistoricinactionordelaysincludesthe longtermfailuretoconsolidateandmakemoreefficientgovernmententitieslike

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schooldistrictsandpublicauthorities,andprovidemandatereliefforlocalities.Issues likeRockefellerDrugLawreform,highpropertytaxes,andaffordablehousinghave takenyearstoaddressinspiteofbroadpublicsupportforchange. Issuesofpoliticalreformhaveseenparticularstagnationinspiteofoverwhelmingpublic support.Thoughthestatelegislatureandgovernordeservecreditforthepassageof ethicslegislationwhichforthefirsttimeprovidesalevelofindependentoversightover thelegislatureandincreaseddisclosureofoutsidebusinessdealings,campaignfinance reformandredistrictingreformhavefailedtobeaddressed.NewYorknowhasthe highestspendinglimitsforcandidatesofthe45statesinthenationthathavelimits, allowingcontributionsofover$100,000topartycommittees.4Similarly,whilestates suchasCaliforniaandArizonahaveseenthecreationofindependentredistricting commissions,NewYorklagsbehindinremovingtheconflictofinterestinherentin legislatorsdrawingtheirownseats. Thelackofactionontheseimportantissuesislargelyduetotheincreasedpolarization ofdistrictsandthecreationofsafeseatsinwhichlegislatorsdonotfacemuch competitionatthepolls,amajorresultofpartisangerrymandering.Thelevelof partisanbickeringreachedanewlowinthesummerof2009whentheNewYorkState Senateenteredintoamonthlongdeadlock,therootcauseofwhichcanbetracedto thelastroundofredistrictingthatcreatedanevennumberofseatsinthestatesenate. Thelackofoutcomeshasledtoincreasedscrutinyofthestatelegislatureandits politicalprocesses.Dubbedthemostdysfunctionallegislatureinthenation,theNew YorkStatelegislaturehaslongbeencriticizedforitslackoftransparency,accountability andadherencetobasicnotionsofademocraticprocess.5 Voterstooareunsatisfiedwiththestatelegislature,withanOctober2011Quinnipiac pollfindingthat63percentofvotersdisapproveofthejobthelegislatureisdoing.6The lowopinionofstategovernmentcontributestothedisenchantmentofNewYorkers whowouldturnoutorchoosenottoatthepollsonElectionDay. ThePartisanDivide NewYorkhadthelongestrunningpoliticalpartysplitbetweenhousesofthelegislature inthenation,startingin1974withtheSenateunderRepublicancontrolandthe AssemblyunderDemocraticcontrolfordecades.ThischangedbrieflyinJanuary2009
Katz,Celeste.NYPIRG:NewYorkOnTrackToBeFirstStateWithContributionLimitOver$100,000, DailyPolitics.January21,2011.Availableat: http://www.nydailynews.com/blogs/dailypolitics/2011/01/nypirgnewyorkontracktobefirststate withcontributionlimitover100000 5 TheBrennanCenterhasissuedseveralreportsonthedysfunctionalnatureoftheNewYorkState Legislature,thefirstbeingTheNewYorkStateLegislativeProcess:AnEvaluationandBlueprintforReform in2004. 6 QuinnipiacUniversityPollingInstitute,KeepRace,JobProtectionOutOfRedistricting,NewYorkState VotersTellQuinnipiacUniversityPoll;CuomoShouldVetoLawmakers'Lines,VotersSay.October26, 2011.Availableat:http://www.quinnipiac.edu/x1318.xml?ReleaseID=1667
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whenthelegislaturewassworninandDemocratscontrolledbothhouses.Asaresultof the2010GeneralElection,RepublicanshaveregainedcontroloftheSenateand DemocratscontinuetoholdalargemajorityintheAssembly,meaningthatthereisa returntothestatusquothatexistedbetween1974and2008.Thislongstanding partisandividecanbeattributedto,amongotherthings,thelackofcompetitive electionsandthefactthatbothpartiesinpowerusetheredistrictingprocesstoensure thattheirmembersareprotectedfromseriouscompetition.

E. SOLUTIONSTOGERRYMANDERING:CITIZENSUNIONS RECOMMENDATIONS
The2010Censushasbeenconductedandthepoliticalramificationsofthenew legislativedistrictsthatwillbedrawnin20112012areenormous.FortheU.S.Houseof Representatives,NewYorkwilllosetwocongressionalseats,asitdidnotgrowin populationattherateofotherstatessuchasTexasandFlorida.Asidefromthepolitics ofredistricting,theStateLegislaturefacesincreasingpublicdissatisfactionwiththe functioningofstategovernment.Votersarealsodisappointedwiththelegislatureslack ofactionthusfaronredistrictingreformachiefcampaignpromisefromthe2010 electionsand48percentofvotersstatetheywouldfeelbetrayedthelegislaturewere toapprovedistrictlinesthesameoldwayandnotputinplaceanindependent commissionfor2012.7Publicoutcryforreform,combinedwiththerecentstridesstates likeCaliforniaandFloridahavemadetowardsinstitutingredistrictingreforms,arewhy CitizensUnionbelievesthatwemustseizethemomenttoensuretherightsofNew Yorkersarefinallyprotected. Thoughourpreferredapproachofconstitutionalchangestotheredistrictingprocessis nolongeraviableoptionbeforethe2012elections,statutoryreformsremainpossible beforelinesaredrawn.Whodrawsthelines,whatrulesdeterminehowlinesare drawn,theamountofpublicinputandtheapprovalprocessareallimportantfactorsin consideringanewredistrictingsystemforNewYork.Whileseveralmodelsexistfor eachofthesefactorsandareexploredinthisreport,itisclearthatamoreindependent processisneededinNewYork. Onelegislativeproposal,sponsoredbythenAssemblymemberMichaelGianarisand SenatorDavidValesky,sawadvancementinbothhousesin2010,passingtheSenate ElectionsandGovernmentalOperationsCommittees,andtheAssemblyGovernmental OperationsCommittee.Thelegislation(A.3432/S.2543)hasbeenreintroducedin2011 bynowSenatorMichaelGianarisandAssemblymemberHakeemJeffries,andhasthe supportofmorethanamajorityofmembersoftheAssemblyandstrongsupportamong DemocratsintheSenate.
QuinnipiacUniversityPollingInstitute,StormSurgeTakesCuomoApprovalToAllTimeHigh,Quinnipiac UniversityPollFinds;VotersWantGovToSpeakUpOnRedistricting.September20,2011.Availableat: http://www.quinnipiac.edu/x1318.xml?ReleaseID=1647
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Mostnotablyin2011,GovernorAndrewCuomohasputforthaprogrambill(S. 3419/A.5388)forredistrictingreformthatincorporatesmanyoftheelementsofthe Gianarislegislation.ItissponsoredbySpeakerSheldonSilverintheAssemblyandhas beenputintotheRulesCommitteeintheSenate.Whilethemeasurehassecured overwhelmingsupportintheAssembly,with96cosponsors,itsdeliberateintroduction intotheRulesCommitteeintheSenate,whereitcannotbecosponsored,enabledthe Senatemajoritytoeffectivelystallitsmovementandpreventindicationsofsupportby rankandfilemembersofbothparties. Statutoryapproachestoredistrictingreformhavepredictablyseenresistance, particularlyfromtheSenateRepublicanMajoritywhichclaimsthatlegislation introducedbyGovernorCuomoisunconstitutional.Inresponse,CitizensUnionandthe leadersoftheReShapeNYcoalitionreleasedalegalmemowrittenprobonobythe prestigiousinternationallawfirmWeil,GotshalandMangesLLP8,whichconcludedthat theCuomoredistrictingreformbillisindeedconstitutional,aswellassimilarlegislation introducedbySenatorsGianarisandValesky,andAssemblymemberJeffries.The legislationisconsistentwiththelegislature'sabilitytodelegateitspowersina circumscribedmanneranddoesnotviolatetheseparationofpowersbetweendifferent branchesofgovernment. Inperhapsoneofthemorecynicalactsof2011,ameasuretoamendtheState ConstitutiontoaltertheredistrictingprocesswaspassedbytheStateSenateinMarch. Thelegislation(S.3331)wassponsoredbySenatorJohnBonacic,andwhileheraldedby theSenateRepublicanMajorityascreatingamoreindependentredistrictingprocess andabsolvingtheconferenceofitscommitmentstovoterstopassredistrictingreform, itwasopposedbyreformadvocatesasnotcontainingatrulyindependentcommission andnotbeingeffectiveuntil2022.Asaconstitutionalamendment,itcouldnothave takeneffectthisredistrictingcycle,andthereforewasdismissedbyNewYorkUprising (aPACfoundedbyformerMayorEdKochsupportingreforminAlbany)asnotsatisfying theircampaignpledge. CommonGroundforReform Whilethelegislaturehasyettocometoconsensusaroundthedetailsofredistricting reforminadvanceof2012,thereisbroadagreementontheprinciplesofchangeas seeninredistrictingreformbillssponsoredinthelegislaturethatduringthe2011 legislativesession,asmentionedpreviously.
WeilGotshalMemorandumtoCitizensUnion.Availableat: http://www.citizensunion.org/www/cu/site/hosting/Redistricting/WeilGotshal%20_Manges_memo_on_c onstitutionality_of_Cuomo_bill_FINAL.pdf
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Themajorredistrictingreformproposalsare: S.3419/A.5388(Cuomo/Silver) S.2543/A.3432(Gianaris/Jeffries) S.3331/A.5271(Bonacic/GalefpassedtheSenateonMarch14,2011witha voteof35to24,with3Senatorsabsentorexcused) S.660/A.5602(Valesky/Cahill) Allofthesebillspossessthefollowingcoreprinciples: 1) Legislatorsshouldnotdrawdistrictboundaries.Allfourproposalsrecognize theconflictofinterestthatoccurswhenlegislatorsdrawdistrictsforthevery officestheywillrunagainfor.Allfourproposalsputthedistrictdrawingpenin thehandsofnonlegislators. 2) Thosewithpoliticalinfluenceshouldbedisqualifiedfrombeingmembersof theindependentredistrictingcommission.Allfourproposalshaveprohibitions thatareaimedtopreventpoliticalinsiderstoocloselyaffiliatedwithlegislators andtherefore,alsohaveaconflictofinterest,fromdrawingmaps. 3) Majorityandminoritypartiesinbothhousesofthelegislatureshouldbe equallyrepresentedontheindependentcommission.Thebillsallreflectthe conclusionthatmajorityandminoritypartieshaveanequalstakeinafair redistrictingprocessandshouldthereforehaveequalrepresentationonany commissionthatdrawsthelines.Thiswillpreventmajorityparties,whether theyareDemocratsorRepublicans,fromusingredistrictingasapoliticalcudgel againsttheirminoritycolleaguesinthelegislature. 4) LessIncumbentProtection.Allproposalsseektopreventelectionswith preordainedoutcomesbyprohibitinglinesdrawntofavorordisfavorparticular incumbents,challengers,orparties. 5) Oneperson/OneVote,TheVotingRightsAct,Contiguity,andCompactnessare allcriteriaincommonfordrawingdistrictboundaries.Allproposals,in accordancewithfederallaw,identifyOneperson/OneVoteandtheVoting RightsActasbeingcriteriathatmustbefollowedinmakingmaps.Allproposals alsoincludecontiguityandcompactnessasgoalsindrawingdistrictboundaries. Giventhelackofactiontocreateanindependentredistrictingprocessfor2012,Citizens callsonthestatelegislaturetoreturninaspecialsessionthisfalltoenactstatutory redistrictingreformsandfulfilllegislatorscommitmentstovoters.

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CITIZENSUNIONRECOMMENDATIONS:ANewandImpartialApproach
GiventhestatelegislaturesauthorityundertheStateConstitutiontoapprovedistrict lines,theonlywaytoestablishanabsolutelyindependentredistrictingprocessis throughaconstitutionalamendment.Whilewestillsupportandpreferaconstitutional amendment,itistoolateforaconstitutionalamendmenttotakeeffectbeforethe2012 elections.Forthisredistrictingcycle,CitizensUnionhassupportedlegislationtocreate anindependentprocessthroughstatute,coupledwithpassageofaconstitutional amendmenttocreatepermanentreform. Withlittletimeremainingtoproposeandfinalizelinesfor2012,CitizensUnioncallson theGovernor,theStateSenate,andtheStateAssemblytoresolvetheimpasseon redistrictingandadoptatwostagedapproachinachievingredistrictingreform.The firststagewouldinvolveenactinglegislationthatcreatesalessthanidealreform approachfor2012,butonethatisconsistentwiththeprinciplesofcurrentreform proposalsputforwardbyGovernorCuomo,SenatorsGianarisandValesky,and AssemblymemberJeffries.Anindependentpanel,appointeddirectlyandequallybythe fourlegislativeleadersbutonwhichnolegislatorwouldserve,wouldinheritthework donetodatebyLATFORandbeguidedbyestablishedandagreeduponcriteria.The criteriawouldnotbeasstrongasoriginallyproposed,butsufficientlyclearsoasnotto continuetheriggedpracticeofpoliticalmanipulationinthedrawingoflinesforpartisan gain.Thisprocessandpanelwouldstillrecommendmapstothelegislature,which wouldhavethefinalsay. Inacceptingthislessthanidealapproach,CitizensUnionwouldinsistonitbeing coupledwithasecondstage.Thisyearsreformlightlegislativeapproachmustbe tiedtofirstpassageofamuchstrongerconstitutionalamendmentthatwouldbring wholesalechangetotheredistrictingprocessandcreateanewimpartialand independentprocessonepromisedtothevotersinthecampaignof2010. Werecognizethatastatutealonecannottaketheprocessentirelyoutofthehandsof thelegislature.Ourlongstandingproposal,therefore,isintendedtocreateadegreeof independenceby:establishinganindependentcommissionwithacertaindegreeof legislativeinput;givingthecommissionclearstandardstofollow;andrequiringthe legislaturetoactonitsplans,whilerecognizingthattheultimatedecisionstillremains withthelegislature,whichcanrejecttheindependentcommissionsrecommendations ifitsochooses.Aspreviouslymentioned,however,theGovernorhaspledgedtoveto anyredistrictingplanthatisnotindependent,sothereisgreateronusonthelegislature toacceptaplanthatisdrawnindependently. Withthegoalofestablishingafairsolutionthatwillputanendtopartisanmaneuvering andensurethatthepublicinterestisservedintheredistrictingprocess,CitizensUnion providesthefollowingrecommendationsandframeworkforcreatinganindependent commissionviastatuteorconstitutionalamendment.Ouridealsolutionisprovided

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below,andwhilewerecognizethatthereisnotcurrentlytimeforafullindependent processtounfoldforthiscycle,particularlywithregardstoforminganindependent commissionthroughanominatingpool,weprovidetheframeworkbelowforanideal statutorysolutionorconstitutionalamendmentcreatinganindependentcommission. Thisproposalwouldbetruncatedforastatutorysolutionfor2012,consistentwiththe goalsofcreatingamoreindependentandfairprocess. 1. CreationofNominationsCommitteetoSelectPotentialCommission Members WhileCitizensUnionwouldpreferthatanindependentcommissionbegivenfull authorityovertheredistrictingprocesswithoutsignoffbythelegislature,wesupport avenuestoallowlegislativeinputandforthelegislaturetomakeappointmentstothe commission.Wealsorecognizethatthelegislatureisunlikelytopasslegislation amendingtheconstitutiontofullyremoveitsroleintheprocess. CitizensUnionbelievesanominationscommitteeshouldbeformedtoselectapoolof candidatesforappointmenttotheredistrictingcommission.Inordertoadvance neededreformbefore2012viastatute,however,thereisnolongertimefora nominationscommitteetobeformed.Thetwostepprocessofanominations committeeinaconstitutionalamendmentwouldbeusedtoprovideadegreeof separationfromtheelectedofficialswhosedistrictlineswillbedrawnbythe commission.Wealsosupportprohibitionsonmembershiponthecommissionand requiringconsultationwithorganizationsdevotedtoprotectingthevotingrightsof minoritiesandothervotersinordertoremovepotentialconflictsandensurediversity. Legislativerepresentationshouldbebalancedwithstatewiderepresentationthrough appointmentsbythegovernor,attorneygeneral,comptrollerandchiefjudge,for example,toenhanceindependenceandprovideforbroaderperspectiveofthe nominatingcommission. Thenominationscommitteewouldbecomposedofeightmembers,withthefollowing individualsappointingmembersofthecommission: thegovernor4members,2fromeachmajorparty; thetemporarypresidentofthesenate2members; thespeakeroftheassembly2members; theminorityleaderofthesenate2members;and theminorityleaderoftheassembly2members.

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Nomemberoftheappointednominationscommitteeshall: holdorhaveheldwithinthepreviousfouryearsanelectedgovernmentoffice oranyotherpartisanappointedgovernmentalorpoliticalpartyposition; beemployedorhavebeenemployedwithinthepreviousfouryearsinany otherpositionbytheUSCongress,theStateLegislature,ortheExecutive Chamber; beorhavebeenwithinthepreviousfouryearsaregisteredlobbyistinNew York; beaspouseoforrelatedtoanymemberoftheUSCongress,theState Legislature,ortheExecutiveChamber;or holdorhaveheldapositionwithinthepreviousfouryearsasasenior campaignstafferforcandidatesrunningforofficeinNewYorkStateforstate orfederaloffice,orforpoliticalcommitteesoperatinginNewYorkState. 2. SelectionofaNominationPool Thenominationscommitteewouldthenselectapoolofnominees,ornominations pool,whichwouldrepresentthediversityofthestatewithregardtorace,ethnicity, andgender;wouldincludepersonsfromeachregionofthestate(LongIsland,NewYork City,HudsonValley,Northern,Central,SouthernTier,andWestern);andwouldinclude atotalof40persons: 15enrolledDemocrats, 15enrolledRepublicans,and 10personsnotenrolledineitherparty Nomemberofthenominationspoolshall: holdorhaveheldwithinthepreviousfouryearsanelectedgovernmentoffice oranyotherpartisanappointedgovernmentalorpoliticalpartyposition; beemployedorhavebeenemployedwithinthepreviousfouryearsinany otherpositionbytheUSCongress,theStateLegislature,ortheExecutive Chamber; beorhavebeenwithinthepreviousfouryearsaregisteredlobbyistinNY; beaspouseoforrelatedtoanymemberoftheUSCongress,theState Legislature,ortheExecutiveChamber;or holdorhaveheldapositionwithinthepreviousfouryearsasasenior campaignstafferforcandidatesrunningforofficeinNewYorkStateforstate orfederaloffice,orforpoliticalcommitteesoperatinginNewYorkState.

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3. FormationoftheIndependentCitizensRedistrictingCommission Theredistrictingcommissionwouldconsistofatotalof11membersselectedfromthe nominationspool.Inastatutoryapproachfor2012,however,thereisnolongertime foranominationscommitteetoformandselectcandidates,soadifferentapproachwill beneededtoformasindependentcommissionasispossibleinthetimeallowed.Eight oftheseselectedmemberswouldbeappointedfromthenominationspoolbyeachof thelegislativeleadersasfollows: 2membersbythetemporarypresidentofthesenate; 2membersbythespeakeroftheassembly; 2membersbytheminorityleaderofthesenate;and 2membersbytheminorityleaderoftheassembly. These8memberswouldthenappoint3additionalmembersfromthenominationspool, 1ofwhomwouldserveaschairofthecommission,foratotalof11members. CitizensUnionbelievesthatthestructureasoutlinedabovewouldbeasignificant improvementfromthestatusquoinwhichtheminorpartiesineachhouseare marginalizedbyhavingfewerappointmentstotheredistrictingbody.Further consideration,however,shouldbegiventothepresenceofgubernatorialappointments ontheredistrictingcommissiontoprovideastatewideperspectiveandgreater independence.Werecognizethattheremaybelegislativeresistancetosuch appointments;however,giventhefulllegislaturesultimateapprovaloftheredistricting plansandabilitytoamendafinalplanunderthisproposal,thisresistancedoesnothave asoundbasis.Intheabsenceofanominationspool,whichprovidesalayerof separationbetweenthelegislatureanditsappointments,CitizensUnionbelieves gubernatorialappointmentswouldbeanimportantadditiontothosethatwouldbe madedirectlybythelegislativeleaders. Nomorethan4membersoftheredistrictingcommissionwouldbeenrolledinthesame politicalparty,andmemberswouldbeselectedtorepresentthediversityofthestateto theextentpracticable.Asthememberswouldbeselectedfromthenominationspool, theywouldbecomposedofregisteredvotersoftheStateofNewYorkwhodonothold, orhavenotheld,anelectiveoffice,apartypositionoranappointmenttoapartisan position;havenotbeenemployedasalobbyistwithinfouryearsofselectiontothe redistrictingcommission;arenotthespouseorrelativeofanelectedofficialinthestate legislativeorstateexecutivebranchortheU.S.Congress;andhavenotheldasenior positioninacampaignforastateorfederaloffice,orforpoliticalcommitteesoperating inNewYorkStateforthepreviousfouryears.

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4. EstablishingFairCriteriafortheDrawingofLines Justasimportantaswhoholdsthepenindrawingdistrictlinesaretherulesthatmust befollowedintheformationofdistricts.Thecurrentmapsofdistrictlinesaredrawn forpartisangoalsratherthanintheinterestsofthevotingpublic,andoftensplit communitiesandresultinvoterconfusion. CitizensUnionspecificallyrecommendsthatfourmainrequirementsbefollowedinthe drawingoflines,consistentwiththerequirementsoffederallaw,includingthefederal VotingRightsActof1965(totheextentthattheyareappliedviastatute,consistentwith theStateConstitution): (a) allcongressionaldistrictsshallbeasnearlyequalinpopulationasispracticable; (b) eachdistrictshallconsistofcontiguousterritory;nodistrictshallconsistofparts entirelyseparatedbytheterritoryofanotherdistrictofthesamebody,whether suchterritorybelandorwater,populatedorunpopulated.Apopulatedcensus blockshallnotbedividedbyadistrictboundary,unlessitcanbedetermined thatthepopulatedpartofsuchblockiswithinasingledistrict; (c) senate,assembly,orcongressionaldistrictsshallnotbeestablishedthatare intendedtoorresultinadenialorabridgementofminorityvotingrights includingtheopportunityofminorityvoterstoparticipateinthepoliticalprocess andtoelectthecandidatesoftheirchoice,includingbutnotlimitedtoinstances inwhichminoritypopulationsdonotcompriseamajorityofthedistrict;and (d) senate,assembly,orcongressionaldistrictsshallnotbedrawnwithanintentto favororopposeanypoliticalparty,anyincumbentfederalorstatelegislator,or anypreviousorpresumedcandidateforoffice. Inadditiontotherequiredprinciples(a),(b),(c)and(d)above,thefollowingprioritized principleswouldbeusedinthecreationofsenate,assembly,andcongressionaldistricts totheextentpracticable. (i) themostandleastpopuloussenatedistrictsshallnotexceedorbelower thanthemeanpopulationofallsenatedistrictsbymorethanonepercent, andthemostandleastpopulousassemblydistrictsshallnotexceedorbe lowerthanthemeanpopulationofallassemblydistrictsbymorethanone percent.Innoeventshallthecommissionadvantageanyregionofthestate overanyotherbycreatingmultipledistrictsthereinexceedingorlowerthan themeanpopulationbymorethanonepercent. (ii) asenate,assembly,orcongressionaldistrictshallunitecommunitiesdefined byactualsharedinterests,takingaccountofgeographic,social,economic, andotherfactorsthatindicatecommonalityofinterest,anddistrictsshallbe formedsoastopromotetheorderlyandefficientadministrationof elections.

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(iii) countiesshallnotbedividedintheformationofdistricts,excepttocreate districtswhollywithinacounty.Wheresuchdivisionofcountiesis unavoidable,morepopulouscountiesshallbedividedinpreferencetothe divisionoflesspopulouscounties.Totheextentpracticable,ifanyassembly districtoranysenatedistrictincludestheterritoryoftwocounties,thenno otherassemblydistrictorsenatedistrictshallincludeterritoryofbothofthe sametwocounties. (iv) countysubdivisionsshallnotbedividedintheformationofdistricts,except tocreatedistrictswhollywithinacountysubdivision.Forthepurposesofthis article,acountysubdivisionshallbeacity,exceptthecityofNewYork,a town,oranIndianreservationwhoseterritoryisexclusiveoftheterritoryof anycityortown.Countysubdivisionswithlargerpopulationsshallbedivided inpreferencetothedivisionofthosewithsmallerpopulations. (v) incorporatedvillagesshallnotbedividedintheformationofdistricts. (vi) thesenate,assembly,andcongressionaldistrictsshallbeascompactinform aspossible. Inpresentingitsplantothelegislatureandthepublic,thelegislatureshouldberequired tosubmitastandardizedscorecardindicatingcompliancewiththecriteriaand requirements,presentingtheplansscoreoneachoftheaforementionedprinciples. 5. CreatinganOpenandTransparentProcess Thecommissionshouldsubmitthefirstplantothelegislatureafterholdingrequired publichearingsthroughoutthestateinthefollowinglocations:Albany,Buffalo,Syracuse, Rochester,GlenCove,WhitePlains,andBronx,Kings,NewYork,QueensandRichmond Counties.Totheextentpracticable,meetingsshouldbewebcast. Regardingthematerialsusedforredistricting,thecommissionshouldmakeavailableto thepublicinprintformandinelectronicformontheinternet,usingthebestavailable technology,allredistrictingplans,relevantdataandwebbasedmapmakingsoftware usedtopreparesuchplans,informationonthemembersoftheredistricting commissionandallotherrelevantinformation.Thecommissionshouldberequiredto postplanssubmittedbythepubliconitswebsiteandconsiderpublicplansinthe formulationofitsplans. 6. EncouragingApprovaloftheIndependentPlan

CitizensUnionrecommendsthatthelegislaturehavetheopportunitytoprovide feedbackonuptotwoplanssubmittedbythecommission,andcanonlyamendathird planwithamendmentsthatmeetthestatutoryguidelinesestablished.Inaddition,the legislatureshouldbeconstrainedfrommakingamendmentsthataffectmorethan2 percentofthepopulationofanydistrict.Inastatutoryscheme,theabilitytocomment

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andamendtheplanisconsistentwiththestatelegislaturesauthorityundertheState Constitutiontoultimatelyapprovearedistrictingplan.Ideallyinaconstitutional amendment,theindependentcommissionsplanwouldnotrequirelegislativeapproval, butCitizensUnionrecognizesthatthestatelegislatureisunlikelytoapprovelegislation removingtheirroleintheapprovalprocess.Theprocesswouldworkasfollows: Thefirstplanwouldrequireavoteofthelegislaturewithoutamendments.Ifthe proposalisrejected,thecommissionwouldsubmitanamendedproposalafter hearingthereasonsgivenbythelegislatureregardingthefirstplansrejectionat apublichearing. Thesecondplan,again,wouldbevoteduponbythelegislaturewithout amendments.Ifthesecondproposalisalsorejected,thecommissionwould submitathirdplanfollowingasecondpublichearingatwhichthelegislature wouldtestify. Thethirdplanwouldbesubjecttothenormalamendmentprocesswithinthe establishedstatutoryguidelinesforredistricting,giventhelegislaturesultimate authorityoverredistrictingundertheStateConstitution. TheCourtofAppealsshouldbegivenoriginalandexclusivejurisdictionoverchallenges totheredistrictingplantopreventforumshoppingandtoallowfortheexpedited reviewofsuitsfrommembersofthepublic.

CitizensUnionRecommendationsFor2012RedistrictingPlans
Regardlessofwhatentitywilldrawdistrictlinesforthe2012elections,CitizensUnion hasanumberofrecommendationsregardinghowthemapsshouldbedrawn.Through ourresearchofthecurrentprocess,wehaveidentifiedinstancesinwhichcommunities havebeensplitapartandcertaingroupshavebeenmarginalizedinordertoprotect incumbents.Themapsthatwillbedrawnwillhaveaprofoundimpactoncommunities throughoutthestate,andwebelievethatthestatemusttakeactiontoallowforfair representationforallNewYorkers.CitizensUnionsrecommendationsforthelines drawnin2012arelistedbelow. 1. GreaterOpportunitiesShouldbeGivenforMinoritiestoElectCandidatesof TheirChoice Thediversityofthestateisnotreflectedinourelectedrepresentation,asdiscussedin Section5bofthisreport.Takingintoconsiderationgrowingminoritypopulationsin NewYork,particularlyinNewYorkCityandLongIsland,werecommendthefollowing:

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NewYorkCity AsianAmericansshouldbegivengreateropportunitiestoelect candidatesoftheirchoiceintheCityofNewYorkthroughthecreation ofoneormoremajorityminoritydistrictsineachhouse.Theborough ofQueenshasonlyoneAsianAmericanstatelegislatorintheAssembly, andAsianAmericanshavenorepresentationintheSenate.Itshouldalso benotedthatAsianAmericansareadiversecommunity,andthatSouth AsianscommunitiesarealsogrowinginNewYorkCity. Flushing,Queens;Elmhurst,Queens;SunsetPark,Brooklyn;and DykerHeights,Brooklynareareasforpossibledistrictsgiven growingAsianAmericanpopulations. Latinosshouldbegivengreateropportunitiestoelectcandidatesof theirchoiceintheCityofNewYorkthroughthecreationofoneormore majorityminoritydistrictsineachhouse.Latinosholdonly19seatsin thestatelegislature(9percent),whilehaving17.6ofthestates population. WashingtonHeightsandInwood,Manhattan;aswellasJackson Heights,Queensareareasforpossibledistrictsgivengrowing Latinopopulations. LongIsland GrowingBlackandLatinocommunitiesinLongIslandshouldbegiven greateropportunitiestoelectcandidatesoftheirchoice,particularlyin theStateSenate,andconsiderationshouldbegiventothecreationof opportunitytoelectdistrictswherethesecommunitiesdonotcomprisea majorityofthedistrict. ThetownofHempsteadinNassauCountyandthetownsofIslip andBabyloninSuffolkCountyareareasforpossibledistricts, givengrowingminoritypopulations. 2. CitiesinUpstateNewYorkShouldNotBeCarvedUp UpstateNewYorksurbanareashavebeendividedupforpartisanadvantageinboth housesofthelegislature.Considerationshouldbegiventorespectingtheexisting politicalboundariesofcitiessothattheseurbancommunitiescanremainwholeand havemoreunifiedrepresentationinthestatelegislature.Theseincludebutarenot limitedtothecitiesofBuffalo,Rochester,Albany,Syracuse,SchenectadyandUtica. NewYorkscitiesshouldberepresentedbyasfewdistrictsasdictatedbythe population,totheextentthatitprotectstheunifiedvoiceofthesecommunities.

F. MAKINGREFORMAREALITY
NewYorkStateisinneedoffundamentalchangetothewayinwhichlegislativedistrict linesaredrawn.Decadesofgerrymanderinghaveresultedinpolarizeddiscussionand

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ontoomanyoccasionsalessthanfullyfunctionalstatelegislaturethatshieldsitself fromcompetitionandthereforefromaccountability.Nowisthetimetoendtheself interesteddrawingofdistrictlinesbylegislators,andcreateanindependent commissionaswellasclearandconsistentrulesforthedrawingoflines. UnprecedentedSupportforRedistrictingReform Thefutureofredistrictingreformisinthehandsofthestatelegislature,whomust approvelegislationtocreateamoreindependentprocess,andthegovernor,whowould signthelegislationintolaw.Thereisunprecedentedandhistoricsupportforcreating anindependentcommissiontodrawdistrictlines,withamajorityoflegislatorsinboth houses,184of212,includingamajorityofbothconferencesineachhouseofthe legislature,supportingthecreationofanindependentcommissiontodrawdistrictlines accordingtofairandobjectivecriteria,asstatedabove. Inadditiontotheunprecedentedleveloflegislativesupport,publicopinionpollsshow thehighesteverpublicsupportforindependentredistricting:77percentofvoters supportanindependentcommissiontodrawdistrictlines.Thevotersalsoagreethat GovernorCuomoshouldvetolinesthatarenotdrawnbyanindependentcommission, with49percentofthosepolledinagreementandonly30percentdisagreeing.9 Whilethelegislaturehasconductedpublichearingsthroughoutthestatewiththeintent tosolicitpublicinputonhowmapsshouldbedrawn,asignificantnumberofthose testifyinghavepointedtotheneedtochangetheprocessitself.AtLATFORhearings throughoutthestate,thepublichascontinuedtocallforanindependentcommission andafairprocess,includingmembersoftheReShapeNYcoalition.Thepublichas spokenloudandclearinfavorofreform,andwillcontinuetospeakinfavorofan independentcommissiontodrawstatelegislativeandcongressionaldistrictboundaries accordingtofairandobjectivecriteriawhileallowingforrobustpublicinputintothe process. Pressurehasalsobeenmountinginthemedia,withaneweditorialnearlyeverymonth thispastyearfromnewsoutletsthroughoutthestateaskingforanindependentprocess tobeputinplaceinadvanceof2012asLATFORhascontinueditsroadshowofpublic hearings. LegislatorsmusthonortheirwordandkeeptheircommitmentsbyreturningtoAlbany inaspeciallegislativesessiontofinallyendpartisangerrymanderingandenact redistrictingreform.NewYorkershavealreadywaitedformanydecadesfor redistrictingreform.Thefulfillmentofthatpromisecannotwaitanothertenyears.

QuinnipiacUniversityPollingInstitute,August11,2011NewYorkVotersBackFracking,Despite Concerns,QuinnipiacUniversityPollFinds;MoreWomenInGovernmentMeansFewerSexScandals. August11,2011.Availableat:http://www.quinnipiac.edu/x1318.xml?ReleaseID=1635