The Role of Communities of Interest in Michigan's New Approach to Redistricting: Recommendations to the Michigan Independent Citizens Redistricting Commission

Executive Summary

In November 2018 Michigan voters approved a constitutional amendment that made major changes to legislative redistricting in the state. Among the changes was the addition of a set of redistricting criteria to be followed in drawing new districts for Congress, the State Senate, and the State House of Representatives. One of these criteria concerns "communities of interest" (COIs) and it is the focus of this report.

Section 13 (c) of the Amendment states:

Districts shall reflect the state's diverse population and communities of interest. Communities of interest may include, but shall not be limited to, populations that share cultural or historical characteristics or economic interests. Communities of interest do not include relationships with political parties, incumbents, or political candidates.

The COI criterion ranks high in the priority list of criteria, behind only compliance with federal law and a requirement that all districts be contiguous.

What is a Community of Interest?

Beyond the Amendment's broad definition, the Independent Citizens Redistricting Commission (ICRC) is responsible for determining the meaning and application of COI in Michigan's upcoming redistricting process. We suggest the following characteristics of a COI as a starting point for the ICRC's consideration:

• Communities of interest "may include, but shall not be limited to, populations that share cultural or historical characteristics or economic interests."
• A Community of Interest is associated with a contiguous area on a map.
• The common bonds associated with a Community of Interest are linked to a set of public policy issues that would be affected by legislation. These shared interests in legislation are likely to result in a desire to share the same legislative district in order to secure more effective representation.

COIs as Basic Building Blocks of Legislative Districts

The reasoning for COIs as one of the bases for redistricting is that it will lead to fairer and more effective representation. Most COIs will probably prefer to be kept intact in new districts rather than be split among several districts, since this will allow its members to elect representatives who will be attentive to their interests. Keeping a COI intact also promotes continuing interaction among community members so that they will be more active in the life of the communities in which they live.

Outreach to the Public

In order for the ICRC to use information about COIs in drawing maps, it will be important to hear from the broadest possible range of members of the public, especially those most familiar with their communities. The ICRC should consider an extensive outreach campaign that results in a large number of COIs participating in public hearings around the state and/or submitting written or digital information about themselves and how they would like to be treated in the design of new districts.

First Round of Public Hearings

The ICRC is committed by the Constitution to hold at least ten initial public hearings to gather public input about new districts. The Commission should consider locations around the state, being attentive to factors that will facilitate broad participation, as well as contingency plans based on the status of the coronavirus pandemic, including virtual opportunities for public input if in-person meetings are not possible.

Developing New Districts

Once the initial round of public hearings is underway, the ICRC will begin working with its staff and consultants on designing new congressional and state legislative districts. Once US Census data are released, Commissioners will develop districting plans using Census data, data on counties, cities, and townships, data on recent voting patterns, and other important statistical features of Michigan. After plans have been proposed for each legislative body, the Commission will publish the proposed plans and any data and supporting materials used to develop them.

Second Round of Public Hearings

The Amendment requires that the Commission hold at least five public hearings throughout the state for the purpose of soliciting comment from the public about the proposed plans.

Final Adoption of the Three Redistricting Plans

By November 1, 2021, the Commission will adopt new district maps for Congress, the State Senate, and the State House. Within 30 days of adopting a plan, the Commission will publish the plan and supporting materials. A plan will become law 60 days after its publication.