How Republicans Quietly Hijacked the Justice Department to Swing Elections
The following is an excerpted chapter by Steve Rosenfeld from the new book "Loser Take All," edited by Mark Crispin Miller (Ig Publishing, 2008).
Jim Crow has returned to American elections, only in the twenty-first century, instead of men in white robes or a barrel-chested sheriff menacingly patrolling voting precincts, we are more likely to see a lawyer carrying a folder filled with briefing papers and proposed legislation about "voter fraud" and other measures to supposedly protect the sanctity of the vote.
Since the 2004 election, activist lawyers with ties to the Republican Party and its presidential campaigns, Republican legislators, and even the Supreme Court -- in a largely unnoticed ruling in 2006 -- have been aggressively regulating most aspects of the voting process. Collectively, these efforts are undoing the gains of the civil rights era that brought voting rights to minorities and the poor, groups that tend to support Democrats.
In addition, the Department of Justice (DOJ), which for decades had fought to ensure that all eligible citizens could vote, now encourages states to take steps in the opposite direction. Political appointees who advocate for stringent requirements before ballots are cast and votes are counted have driven much of the DOJ's Voting Section's recent agenda. As a result, the Department has pushed states to purge voter lists, and to adopt newly restrictive voter ID and provisional ballot laws. In addition, during most of George W. Bush's tenure, the DOJ has stopped enforcing federal laws designed to aid registration, such as the requirement that state welfare offices offer public aid recipients the opportunity to register to vote.
The Department's political appointees have also pressured federal prosecutors to pursue "voter fraud" cases against the Bush administration's perceived opponents, such as ACORN (Association of Community Organizations for Reform Now), which conduct mass registration drives among populations that tend to vote Democratic. Two former federal prosecutors have said they believe that they lost their positions for refusing to pursue these cases.
The proponents of this renewed impetus to police voters comes from a powerful and well-connected wing of the Republican Party that believes steps are needed to protect elections from Democratic-leaning groups that are fabricating voter registrations en masse and impersonating voters. Royal Masset, the former political director of the Republican Party of Texas, said in 2007 that is an "article of religious faith that voter fraud is causing us to lose elections." While Masset himself didn't agree with that assertion, he did believe "that requiring photo IDs could cause enough of a drop off in legitimate Democratic voting to add 3 percent to the Republican vote."
While voter fraud and voter suppression have a long history in American politics, registration abuses and instances of people voting more than once are rare today, as federal officials convicted only twenty-four people of illegal voting between 2002 and 2005. Moreover, modern voter fraud, when it occurs, has involved partisans from both parties, although it is rarely on a scale that overturns elections. In contrast, new voter registration restrictions, such as requiring voters to show a government-issued photo ID, are of a scale that can affect election outcomes.
The Brennan Center for Justice at New York University Law School has found that 25% of adult African-Americans, 15% of adults earning below $35,000 annually, and 18% of seniors over sixty-five do not possess government-issued photo ID. While various studies -- such as a 2006 Election Assistance Commission report by Tova Andrea Wang and Job Serebrov, and a 2007 study by Lorraine Minnite of Barnard College -- have found modern claims of a voter fraud "crisis" to be unfounded, that has not stopped states from adopting remedies that impose burdens across their electorate and on voter registration organizations. "Across the country, voter identification laws have become a partisan mess," Loyola University Law Professor Richard Hasen said in an Oct. 24, 2006 Slate.com column, speaking of one such remedy. "Republican-dominated legislatures have been enacting voter identification laws in the name of preventing fraud, and Democrats have opposed such laws in the name of protecting potentially disenfranchised voters." Hasen was commenting on a little-noticed 2006 Supreme Court ruling, Purcell v. Gonzales, which upheld Arizona's new voter ID law. The court unanimously affirmed the state's 2004 law, writing that, "Voter fraud drives honest citizens out of the democratic process and breeds distrust of our government. Voters who fear their legitimate votes will be outweighed by fraudulent ones will feel disenfranchised."
Hasen said that while the ruling "seem[ed] reasonable enough" at first glance, it actually was deeply troubling, as the Court never investigated if there was evidence of widespread voter fraud, and never examined "how onerous are such [voter ID] laws." Instead, it adopted the Republican rhetoric on the issue "without any proof whatsoever." Hasen then quoted Harvard University History Professor Alexander Keyssar on the Court's rationale. "FEEL disenfranchised? Is that the same as 'being disenfranchised?' So if I might 'feel' disenfranchised, I have a right to make it harder for you to vote? What on Earth is going on here?"
What on Earth is going on here?
"These things have become partisan," Democratic California Representative Juanita Millender-McDonald replied at a March 2005 congressional field hearing when asked why she and others in Congress had come to Ohio to investigate the 2004 election. "Images are so critical, especially when the stakes are high and stakes are high in presidential elections," the now-deceased congresswoman continued, referring to the lingering memory of thousands of African-Americans waiting for hours outside in a cold rain to vote the previous November in Ohio's inner cities. Many elected Democrats and voting rights attorneys saw the delays as intentional voter suppression resulting from partisan election administration. To some, it stirred memories of the segregated south.
Cleveland Democratic Congresswoman Stephanie Tubbs Jones, who six weeks earlier had stood with California Democratic Senator Barbara Boxer to contest Ohio's 2004 Electoral College votes, was also present at the hearing, and had several testy exchanges with Ohio's Republican Secretary of State Kenneth Blackwell over his administration of the election. One particular exchange concerned how Blackwell had spent millions of dollars for advertisements that neglected to tell Ohioans where else they could go to vote if they were delayed at their own polling place -- a small but telling example of election administration with partisan implications:
Ms. Tubbs Jones: In this ad you said, "Vote your precinct," but you never told them that if they couldn't vote in precinct, they could go to the Board of Elections and vote. Did you, sir?
Secretary Blackwell: I sure didn't.
Ms. Tubbs Jones: Excuse me?
Secretary Blackwell: Can't you hear? I said I sure didn't.
But while Democrats like Tubbs Jones were looking back at 2004, Republicans were looking ahead at shaping the future electorate to their advantage. The hearing was notable because it signaled the start of a renewed Republican campaign to highlight "voter fraud" as an issue needing legislative redress. The assertions and responses that unfolded that day would be heard in many states in 2005 and 2006 as GOP-majority legislatures "dealt" with the issue. Ohio Republican Representative Kevin DeWine spoke of a proposed voter ID law -- which would later pass -- and suggested that the Legislature's concern was not whether the law would pass, but how tough it should be. The state also added strict new rules for mass voter registration drives early in 2005, which were overturned in federal court in February 2008, and later passed a bill facilitating Election Day challenges to individual voters. Ohio Republican State Senator Jeff Jacobson said that these laws were needed to stop "fraudulent registrations" because national groups "are paid to come in and end up registering Mickey Mouse .... The millions of dollars that poured in, in an attempt to influence Ohio, is not normal."
What Jacobson said was true, though lacking in context. Groups like ACORN and Americans Coming Together had registered millions of new voters in battleground states before the 2004 election, and some of ACORN's staff -- i.e. temporary workers -- had filed a handful of registration forms with fabricated names. ACORN discovered the error, alerted the authorities and prosecutions ensued. While those mistakes were cited by politicians like Jacobson as evidence of a national voter fraud crisis, others, such as Norman Robbins, a Case Western University professor and co-coordinator of the Greater Cleveland Voter Coalition, urged the House panel to look at the facts and keep the issue in perspective:
"We desperately need research on all of the issues raised today," he said. "For instance, what are the real causes and effects of the long lines? How many voters were actually disenfranchised? How long did they take to vote? That would be one set of questions. Does showing an ID increase the reliability of the vote or does it disenfranchise people? Those are answerable questions. How many people truly have been convicted of election fraud? What do we really know about this in terms of cases and conditions."
To answer those questions, the committee chairman, Republican Bob Ney -- who has since been convicted and jailed on bribery charges -- turned to a long-time Republican operative, Mark "Thor" Hearne, who introduced himself as an "advocate of voter rights and an attorney experienced in election law." Hearne, a lawyer based in St. Louis, certainly was experienced. In 2000, he had worked for the Bush campaign in Florida during the presidential recount. He was also the Vice President of Election Education for the Republican National Lawyers Association, which helps the party train partisan poll monitors. In 2004, he became counsel to the Bush-Cheney campaign, where he "worked with White House presidential advisor Karl Rove and the Republican National Committee to identify potential voting fraud in battleground states ... and oversaw more than 65 different lawsuits that concerned the outcome of the election."8 After 2004, "with encouragement from Rove and the White House, Hearne founded the American Center for Voting Rights (ACVR), which represented itself as a nonpartisan watchdog group looking for voting fraud." The group would go on to urge federal and state officials to prosecute voter fraud, adopt tougher voter ID laws and purge voter rolls. It would also file legal briefs in voter ID cases, urging tighter regulations.
Hearne presented the panel with a report suggesting that fraudulent registrations were threatening U.S. elections. The report listed problems in Ohio cities with sizeable African-American populations -- the state's Democratic strongholds. Nationally, ACVR would use the same approach to identify other voter fraud "hot spots."
A national pattern
Though the facts were slim, Republicans across the country acted as if a voter fraud crisis was rampant. As a result, Republican-controlled legislatures in Georgia, Indiana, Missouri, Pennsylvania and Wisconsin passed new voter ID requirements after the 2004 election, although gubernatorial vetoes or court orders nullified these laws in every state except for Indiana. (In January 2008, the Supreme Court heard a challenge to Indiana's voter ID law.) Meanwhile, two states with Republican-majority legislatures -- Florida and Ohio -- made voter registration drives more difficult by raising penalties for errors on registration forms, as well as shortening the timeline for organizers to submit these forms -- which prevents these groups from checking the registrations for accuracy and completeness. Litigation and court rulings reversed those laws before the 2006 election, but not before the League of Women Voters was forced to halt registration drives in Florida for the first time in the group's 75-year history. In Ohio, where ACORN was registering approximately 5,000 new voters per week, those efforts were suspended during the litigation, meaning an estimated 30,000 people were not given the opportunity to register.
Since 2004, five other states have imposed new restrictions on voter registration drives -- Colorado, Georgia, Maryland, New Mexico and Missouri -- according to research by Project Vote, which has worked with the Brennan Center for Justice to challenge these laws. To date, these laws still remain on the books in Missouri and New Mexico. "It's no secret who these restrictions affect," wrote Michael Slater, Project Vote's deputy director, in the October 2007 issue of The National Voter, a publication of the League of Women Voters. "In 2004, 15 percent of all African-American and Latino voters were registered to vote as a result of an organized drive; an African-American or Latino voter was 65 percent more likely to have been registered to vote by an organized drive than a White voter. In the final analysis, spurious allegations of voter fraud give rise to yet more roadblocks on the path to full participation in political life for historically disadvantaged Americans."
These state-level responses to voter fraud did not occur in a vacuum. Since the creation of the Civil Rights Division of the Justice Department a half-century ago, the federal government has had great power and influence over how states implement voting rights. But by early 2005, the same mindset shared by GOP legislators in Ohio and other states, and by vote fraud activists like Hearne, could also be found among the Bush administration's senior appointees overseeing voting rights at the DOJ.
Just four days before the 2004 election, the Department's civil rights chief, Assistant Attorney General Alex Acosta, wrote to a federal judge in Cincinnati who was deciding whether to allow the Ohio Republican Party to challenge the credentials of 23,000 mostly African-American voters. Acosta supported the voter challenges, saying an order to block them could undermine the enforcement of state and federal voting laws. The challenges, Acosta wrote, "help strike a balance between ballot access and ballot integrity." The voter challenges were allowed to go forward, although the final judicial ruling came too late for Ohio's Republican Party to deploy thousands of party members to local precincts to challenge voter credentials.
Another sign of the Department's shift from its historic mission of enfranchising voters to a new "selective enforcement" mindset could also be seen by 2005 when a coalition of voting rights groups failed to convince the Department to enforce the law that requiring states to offer welfare recipients the opportunity to register to vote. "In January 2005, we had a 10-year report, which documented the 59 percent decline [in registrations] from 1995 through 2004," said Scott Novakowski of the center-left think tank Demos. He added that many states, including Arizona, Connecticut, Florida, Massachusetts, Missouri, Montana, New Jersey, Pennsylvania and Tennessee, were ignoring the registration requirements for welfare recipients. "John Conyers [now the House Judiciary Committee chairman] and 29 other representatives asked Attorney General Alberto Gonzales to look into this, and there was no response."
The political stakes in registering low-income voters are enormous. The Election Assistance Commission's biennial voter registration report for 2005-2006 found that while 16.6 million new registration applications were received by state motor vehicles agencies, only 527,752 applications came from public assistance offices -- a 50 percent drop from 2003-2004. As a result, in early 2005, voting rights groups met with the DOJ's top Voting Section officials -- including Hans Von Spakovsky, counsel to the assistant attorney general overseeing the Voting Section, and Voting Section Chief Joseph Rich -- to discuss enforcing the public assistance requirement. Von Spakovsky, like ACVR's Hearne, had worked for Bush in Florida during the 2000 recount and was among a handful of GOP appointees who were established "vote fraud" activists.
Rich, a Civil Rights Division attorney for thirty-seven years, had been chief of the Voting Section for six years when he resigned in April 2005, citing politicization of voting rights enforcement. Rich recalled the meeting about the voter registration requirements, saying that Von Spakovsky -- who had become his de facto boss -- decided to ignore that part of the law, and instead focus on one line in the statute that allowed the Justice Department to pressure states to purge voter rolls. "Four months before I left, in 2005, Von Spakovsky held a meeting where he said he wanted to start an initiative for states we want to purge ... Their priority was to purge, not to register voters ... To me, it was a very clear view of the Republican agenda ... to make it harder to vote: purge voters and don't register voters."
