Redistricting in Indiana

Indiana
General Information
Process:	Legislative authority (5-member commission if legislature fails to meet deadline
Deadline:	April 29, 2011 for legislature
Total Seats to be Drawn
Congress:	9
State Senate:	50
State House:	100
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Redistricting in Indiana is accomplished through both the General Assembly and a redistricting commission. Indiana gives its lawmakers the first chance in re-drawing legislative and congressional districts. If the General Assembly fails to enact a redistricting plan, a redistricting commission must draw the lines. Indiana is one of a few states to use a hybrid method of redistricting.

Process

In Indiana, the General Assembly has the authority in drawing legislative and congressional boundaries. The Senate Committee on Elections and the House Committee on Elections and Apportionment are tasked with redrawing the boundaries. However, lawmakers are on very tight deadlines for redistricting. If the deadline is not met, a special redistricting commission is formed. The five person commission consists of the House Speaker, Senate President, Committee Chairpersons of elections/redistricting committees in both houses, and an additional appointee by the Governor. The Governor has the power to veto any redistricting plan for any reason.

Leadership

2011

Redistricting Committee Members

Senate Committee:

• Sue Landske (R) Chair
• Connie Lawson (R)
• Ronnie Alting (R)
• Susan Glick (R)
• Randall Head (R)
• Brandt Hershman (R)
• Patricia L. Miller (R)
• Timothy Lanane (D)
• Jim Arnold (D)
• John Broden (D)

House Committee:

• Eric Allan Koch (R) Chair
• Kathy Kreag Richardson (R) Vice-Chair
• Robert Behning (R)
• Sue Ellspermann (R)
• Donald Lehe (R)
• Edmond Soliday (R)
• David Yarde, II (R)
• John Bartlett (D)
• Edward DeLaney (D)
• Phil GiaQuinta (D)

• David Niezgodski (D)
• Rochelle VanDenburgh (D)

Census results

When the Census figures were released on December 21, 2010, Indiana retained its current allotment of nine congressional districts. With Republicans winning control of six out nine of Indiana's congressional districts in 2010, Democrats raised concerns that congressional districts could be drawn to further benefit Republicans in the next decade.

Congressional maps

Figure 1: This map shows the Indiana Congressional Districts after the 2000 census.

Possible strategies

With Republicans holding strong majorities in the state legislature, redistricting is almost certain to favor the GOP. However, Gov. Mitch Daniels (R) has stated that he will veto maps that do not suite the state geographically, socially, and economically.

One redistricting strategy could keep Southern Indiana under GOP control while Northwest Indiana near the Illinois border could be made more competitive for Republican candidates. Democrats traditionally perform well near South Bend and Michigan City in Northwest Indiana.

Another possible plan includes moving residents from District 5, which showed strong growth in the 2010 census, to Districts 2 and 6. This would place more Republican voters in the District 2, which contains South Bend. It has also been suggested that District 2's Michigan City could be traded to District 1 in exchange for the district's Southern, strongly GOP counties. This would concentrate Democrats in the Democratic 1st District and dilute them in the 2nd. In either case, since District 2 representative Joe Donnelly (D) narrowly won the district in 2010, redistricting could mean a chance for a successful GOP challenge in 2012. Donnelly has said that he is awaiting the new map of his district before deciding whether to seek another office. Some have speculated that Donnelly may run for US Senate.

Congressional maps and the 2012 Gov. race

Democrat Congressman Joe Donnelly said that he may run for the Democrat nomination for Governor in 2012 if redistricting alters the make-up of his congressional district. The Congressman visited legislators in Indianapolis on January 12, 2011, in hopes that the GOP-controlled General Assembly will keep his district mostly intact when the new maps are in effect. The 2012 Governor's race will be open as current Governor Mitch Daniels cannot run for re-election due to term limits.

Democrats launch redistricting site

Indiana's Democratic Caucus, which is a minority in the State House and Senate, has launched a redistricting website. According to Democrats, the website is intended to promote compact districts that preserve communities of interests and protect minorities. In addition, the site is intended to solicit public input and promote the development of an independent commission for redistricting.

Democrats propose maps

The Indiana Democratic Caucus has released its own maps for the Indiana State Senate and Indiana Congressional delegation. The party argues that the maps are more compact than previous decades and better preserve local communities. The party also acknowledges the maps would make Democratic candidates more competitive.

Maps proposed

Proposed maps were released on April 11, detailing changes to the state's congressional districts. The maps, created by the Republican-controlled legislature, will likely benefit GOP incumbents and weaken Democratic opposition. Most notably, the map seems to place District 2 in Republican hands. Joe Donnelly (D), who currently represents the district, is considering a run for the US Senate or the governorship, but also notes that his new district would have voted 49% in favor of Obama and is still open to Democrats. In addition, the map strengthens Republican representative Todd Young in District 9. The map also appears to leave Districts 1 and 7 strongly Democratic, Districts 3, 4 and 5 strongly Republican, and District 6 Republican-leaning. However, Larry Buschon's (R) District 8 seat appears to become more competitive.

One Congressman, Rep. Todd Rokita (R), was drawn outside his current district. However, Rokita is not required by the US Constitution or Indiana law to reside within the district. Thus, since he now lives only 500 yards from the new boundary, Rokita plans to run for re-election without moving. The move is not unprecedented in Indiana history. Former Rep. Chris Chocola was elected in a similar situation after the 2001 redistricting cycle.

Senate President David Long (R) has said that he expects the new districts to stay competitive. In addition, he argued that the maps are more compact than the current maps drawn by Democrats in 2001. However, opponents of the maps argue that the political motivations of the plan are clear. A map of the congressional plan can be found here.

Legislative chambers pass redistricting plan

On April 20, both chambers of the Indiana General Assembly approved redistricting plans. The plans, authored by the state's Republican majority, include both congressional and state legislative maps. The plans passed the chambers on predominantly party-line votes. Since the plans were independently approved by the House and Senate, each bill now moves to the opposite chamber for concurrence. If either plan receives concurrence, it will proceed to Governor Mitch Daniels (R) for approval.

Concurrence

The House voted 62-31 on April 28, 2011 to send the Congressional map to Governor Mitch Daniels (R) for final approval. The new map appears to provide the GOP a chance to win seven of the nine Congressional seats.

Donnelly, Pence announce new campaigns

Redistricting-endangered Congressman Joe Donnelly (D) announced his bid for the US Senate on May 9, ending weeks of speculation about his post-reapportionment plans. Some speculate that a successful primary challenge of Richard Lugar (R), could open the door to a victory for Donnelly. In addition, GOP Congressman Mike Pence announced his gubernatorial campaign on May 5 as many observers had predicted.

Daniels signs plan

Governor Mitch Daniels signed Indiana's redistricting plan on Tuesday, May 10 along with 79 other bills passed by the Legislature. Indiana is only the third state to complete its entire redistricting process. Only Iowa and Louisiana completed the process sooner.

Legislative maps

Figure 2: This map shows the current Indiana House districts.

Figure 3: This map shows the current Indiana Senate districts.

WLFI report on April 13, 2011 about the redistricting maps currently residing in committee.

Preliminary maps anticipated

Preliminary legislative redistricting maps are expected the week of April 11. This will leave legislators only three weeks to consider the new maps. Although congressional plans are due April 29, state redistricting could be postponed until the 2012 session.

Maps proposed

Proposed maps were released April 11, detailing a possible redistricting plan for the Indiana State Legislature. The plans seem to benefit Republican interests across the state. In the Indiana House of Representatives, eight of the new districts would have no incumbent while 10 would be home to two incumbents. Of these 10, three pair Republicans, three pair Democrats, and four pair Republicans and Democrats. While some of these changes may be politically motivated, demographic changes have also favored Republicans. 21 of the 30 house districts that lost population are currently controlled by Democrats. With an existing 37-13 Republican majority in the Indiana State Senate, political changes were less dramatic. No senate incumbents were paired together. Speaker of the House Brian Bosma (R) stated that maps were created with an aim to eliminate gerrymandering and create compact districts. Critics, however, charge that maps should strive for compact districts and increased competition. According to state Democrats, the proposal would reduce the number of competitive districts from 24 to 14 and make most districts without an incumbent strongly Republican.

• The senate plan can be found here.
• The house plan can be found here.

Democrats, activists call for slower pace

Redistricting advocates and state Democrats are calling for a slower pace for the redistricting process. Both groups want to ensure that citizens and lawmakers have sufficient time to inspect the bills. However, Republicans leaders refused these requests, citing the looming April 29 deadline and a concern that a slower process would make room for trivial debates and partisan bickering. While the GOP insists that the maps are not politically motivated, opponents are demanding more demographic data on the partisan breakdown of the new districts. Republicans point to public redistricting hearings and wide publication of the plans as proof of their commitment to transparency. Democrats have also criticized the maps for diluting or dividing minority communities. Republicans counter that federal guidelines have been closely followed in structuring minority representation.

Legislative chambers pass, modify plans

On April 20, both chambers of the Indiana General Assembly approved redistricting plans. The plans, authored by the state's Republican majority, include both congressional and state legislative maps. The plans passed the chambers on predominantly party-line votes. In the house, Republicans altered the original bill, redrawing a district which paired two house Democrats. Since the plans were independently approved by the House and Senate, each bill now moves to the opposite chamber for concurrence. If either plan receives concurrence, it will proceed to Governor Mitch Daniels (R) for approval.

Concurrence

The Senate concurred with the house plan by a 37-12 vote on April 27, 2011. The Indiana Citizens Redistricting Commission said legislators should have allowed the public to give input on plans throughout the summer. Democrats say the new plan will reduce the number of competitive races and dilutes minority voting power. The plan now moves to Governor Mitch Daniels (R) for approval.

Daniels signs plan

Governor Mitch Daniels signed Indiana's redistricting plan on Tuesday, May 10 along with 79 other bills passed by the Legislature. Indiana was the third state to complete its entire redistricting process. Only Iowa and Louisiana completed the process sooner.

Boycotts and redistricting

Boycott may delay redistricting

The Democratic boycott over public sector unions, which ended March 28, will put pressure on Indiana's redistricting process. The legislature, which adjourns April 29, is required to pass a new two-year budget and redraw congressional districts. Indiana's governor Mitch Daniels (R), may call a special session to deal with these issues if the delay caused by the boycott prevents their completion during the regular session. However, compromise on the on issue of redistricting may prove difficult as well. Each of the past two Indiana redistricting efforts have resulted in boycotts.

GOP leadership begin process

While the 37 Democratic representatives remained outside of the state, Republican leaders started moving on the redistricting process, holding several public hearings throughout the state. Senate Minority Leader Vi Simpson (D) argued that Republicans were excluding Democrats from the process. Senate President Pro Tem David Long (R) responded that Republicans are welcoming as much input as possible in the process.

Citizen Activism

Citizens Commission formed

WISH report on April 13, 2011 on voters looking to slow redistricting.

In December of 2010, a coalition of citizen groups formed the Indiana Citizens Redistricting Commission to oversee the redistricting process in the Hoosier State. The group is chaired by former Indiana lawmakers William Ruppel (R) and Dave Crooks (D). The group consists of organizations including Common Cause of Indiana, AARP Indiana, the Indiana League of Women Voters, and the Indiana Center for Politics at Indiana-Purdue University at Fort Wayne. The group plans to host a series of public hearings on redistricting and sponsor a map-drawing contest for college students. The goal of the commission is to make Indiana's elections more competitive and eliminate gerrymandered districts. In 2010, 17 of the 100 State House candidates were unopposed, while five of the 25 State Senate candidates were without opposition. In addition, the Commission argues that the large number of smaller cities split into multiple legislative districts across the state is a result of gerrymandering in Indiana.

The commission's public hearing schedule can be found here.

Commission seeks public maps

The Indiana Citizens Redistricting Commission is seeking redistricting maps drawn by the public. The group hopes these maps will contrast the public's interest with the partisan and incumbent interests at work in the official maps. The state has also located computers at three locations around the state with census information and redistricting software. They will be located at IU Bloomington, IUPUI Indianapolis, and IU South Bend.

Newspapers put pressure on mapmakers

16 Indiana newspapers including the Indianapolis Star launched a campaign to convince lawmakers to draw districts that are compact, promote competition, and keep communities of interest together. In a January 31, 2011 editorial, The Indianapolis Star demanded that Governor Mitch Daniels and House Speaker Brian Bosma hold their colleagues accountable on promises made to keep politics out of redistricting. The newspaper also expressed concerns that newcomers are discouraged from entering politics when political boundaries are drawn to favor incumbents.

The Evansville Courier-Press challenged the Republican-controlled Legislature to create a redistricting system that does not involve political criteria in a January 30, 2011 editorial. The Courier-Press also demanded lawmakers to draw districts that honor township and county boundaries while protecting communities of interest.

Draw the Line Midwest

On March 15, 2011, the Draw the Line Midwest campaign was announced. Billing itself as "the nation's first regional redistricting reform campaign organization," Draw the Line Midwest is made up of 25 reform organizations from Illinois, Indiana, Michigan, Minnesota, Ohio, and Wisconsin. It is a collaboration between the Midwest Democracy Network and the Brennan Center for Justice at New York University Law School.

The groups say the campaign is a coordinated effort to depoliticize the redistricting process by pushing for transparency, public participation, and protection of minority rights. They will be proposing alternatives to legislative plans and setting up District Builder, free open-based software that will allow anyone to draw the maps. The site is expected to be up in all states by April.

Legal issues

Annexation lawsuit

In the past three years, the city of Jeffersonville has annexed several nearby neighborhoods. However, a resident of one such neighborhood, Bruce Herdt, sued the city over its drawing of city council districts in the newly added neighborhoods. The suit alleged that the city initially allotted too little representation to the neighborhoods by using 2000 census data. Herdt now contends that 2010 census data corroborates his earlier estimates and substantiates his claims. However, Judge William G. Hussman dismissed the lawsuit, saying that the 2000 census data was the best data to use at the time. The city argued that the use of alternative estimates did not conform to state law or precedent. The city plans to redistrict again before municipal elections in 2015. Herdt plans to appeal.

Timeline

By April 29, 2011, the General Assembly must have congressional boundaries re-drawn. State-level redistricting must be completed by the end of the 2012 session on March 14, 2012. However, if lawmakers push the process too late into the 2012 session, approval may come after the candidate filing deadlines, meaning that candidates would have to file before their new districts were final. The Governor can call the General Assembly into special session if lawmakers fail to complete redistricting before the end of the regular session (April 29, 2011).

Indiana 2010 Redistricting Timeline
Date	Action
December 21, 2010	State informed of number of Congressional Seats on the 2010 Census.
March 1, 2011	Expected date to receive complete Census data from the U.S. Census Bureau.
April 1, 2011	Final deadline to receive Census data.
April 29, 2011.	Deadline for the Indiana General Assembly to have a congressional redistricting plan in place. Also, this is the sine die date for the General Assembly.
May 3, 2011 .	Last municipal and city primary elections in currently drawn boundaries.
November 8, 2011 .	Last municipal and city general elections in currently drawn boundaries.
March 14, 2012	Deadline for the Indiana General Assembly to have a legislative redistricting plan in place.
May 2012	First primary elections in newly created districts.
November 2012	First general election in newly created legislative and congressional boundaries.

History

Deviation from "Ideal Districts"

2000 Population Deviation
Office		Percentage
Congressional Districts		0.02%
State House Districts		1.92%
State Senate Districts		3.80%
Under federal law, districts may vary from an 'Ideal District' by up to 10%, though the lowest number achievable is preferred. 'Ideal Districts' are computed through simple division of the number of seats for any office into the population at the time of the Census.

Constitutional explanation

With respect to redistricting, the Indiana Constitution gives authority to the General Assembly in Section 5 of Article 4.

Criticism

Former Secretary of State Todd Rokita (R) has been critical of the redistricting process in Indiana. One of the main criticisms from Rokita is the tight deadline for the General Assembly to approve a redistricting plan during a regular session. Also, Rokita felt that partisan redistricting in previous censuses have reduced competitiveness in the state's elections.

Under current redistricting methods, some small and mid-sized cities are divided by two legislative districts.

Rokita proposed reforms in 2010 that would require more compactness for legislative and congressional districts in Indiana, keeping communities of interest together, and making the use of political data illegal in any redistricting.

See also

• State Legislative and Congressional Redistricting after the 2010 Census
• State-by-state redistricting procedures

External links

• Indiana Secretary of State's Rethinking Redistricting Initiative

• 2010 U.S. Census Data on Indiana