For nearly 200 years, the notion of American political exceptionalism has had currency in the United States: it is an idea rooted in the nation's status as the first modern republic. As we watch from afar, disturbed yet mesmerised by the latest chapter of violent political division in America, the country seems less a paragon than a symbol of democratic pathology.
Author
Paul Strangio
Emeritus Professor of Politics, Monash University
America's certainty in its political uniqueness is symptomatic of a brash national chauvinism. By way of contrast, Australia is prone, if anything, to undue bashfulness about its democratic credentials. How else can we explain that this month marks the centenary of the most extraordinary feature of the country's democratic architecture, and yet the anniversary is slipping by with neither comment nor reflection. I refer to compulsory voting, which was legislated in the federal parliament in July 1924.
Compulsory voting is not unique to Australia. Calculating how many countries abide by the practice is notoriously difficult, since in around half the nations where compulsory voting exists in name it is not enforced. Most estimates, however, put the figure in the vicinity of 20 to 30.
If not unique, Australia's experience of compulsory voting is highly distinctive for a number of reasons.
First, its emergence in the early 20th century was consistent with the nation's larger tradition of innovation and experimentation when it came to electoral institutions and practices. This record is typically traced back to the pioneering in the 1850s of the secret ballot (sometimes called the "Australian ballot") in a number of the Australian colonies and the embrace of other advanced democratic measures in the second half of the 19th century.
These included manhood suffrage, payment of MPs and the extension of the franchise to women, beginning in South Australia in 1894. The innovations continued in the 20th century with such things as preferential voting and non-partisan bureaucratic electoral administration.
Second, Australia is alone in embracing compulsory voting among the Anglophone democracies to which it typically compares itself. The electoral systems of Britain, Canada, New Zealand and the United States are all based on voluntary voting.
Third, unlike many other compulsory voting countries, Australia does not pay lip service to its operation. Electoral authorities enforce compulsory voting, albeit leniently. It has been strongly upheld by the courts and is backed by a regime of sanctions for non-compliance.
Fourth, compulsory voting has been consistently and unambiguously successful in achieving high voter turnout. Though there has been a slight downward trend in turnout at the past five national elections (it hit a low of 90.5% in 2022), it has not fallen below 90% since the adoption of compulsory voting a century ago.
This is around 30% higher than the recent average turnout in countries with voluntary voting. It is also well above the recent average in countries with compulsory voting systems.
Fifth, the public has strongly and consistently backed the practice. Evidence from more than half a century of opinion polls and election study surveys shows support hovering around the 70% mark.
An impregnable practice
Perhaps the most singular aspect of the nation's experience of compulsory voting, however, is how seemingly impregnable is the practice if measured by its durability, the dearth of controversy over it, the consistency of its enforcement by authorities and the way citizens have dutifully complied with and supported it. Together these things make Australia an exemplar of compulsory voting internationally.
This is not to say compulsory voting has been a sacred cow in Australia. In the final decades of the 20th century and first decade of this century, there was a concerted push to end the practice emanating principally from within the Liberal Party.
The torchbearer of the agitation for voluntary voting was the avowed libertarian South Australian senator, Nick Minchin. For Minchin, compulsory voting was anathema:
[…] in relation to the most important single manifestation of democratic will, the act of voting, I profoundly detest Australia's denial of individual choice. It seems to me that an essential part of a liberal democracy should be the citizen's legal right to decide whether or not to vote. The denial of that right is an affront to democracy.
Minchin had a number of like-minded supporters of voluntary voting in the Liberal Party. Among them, importantly, was John Howard, whose prime ministership coincided with the mobilisation to abolish compulsory voting.
Howard had been on record as an opponent of the practice since his entry to the federal parliament in 1974. The Liberal Party campaign against compulsory voting manifested in, among other things:
- the party's federal council resolving in favour of voluntary voting
- shadow cabinet endorsing a recommendation for a change of policy to voluntary voting being placed before the joint Liberal-National party parliamentary room
- the introduction in the South Australian parliament of two bills to repeal compulsory voting by successive Liberal state governments
- Coalition members of the Joint Standing Committee on Electoral Matters repeatedly recommending the abolition of the practice.
In the end, these agitations achieved nought. The most fundamental reason was that the opponents of compulsory voting failed to generate community resentment towards the system. Howard, while restating his preference for voluntary voting, admitted as much in 2005 when shutting down debate on the issue in his government:
As I move around the country, I don't get people stopping me in the street and saying, "You've got to get rid of compulsory voting."
Indeed, election survey data suggests the Liberal campaign coincided with a firming of public support for compulsory voting. In the two decades since, opposition has been dormant. For the foreseeable future, Australia's compulsory voting regime is secure.
An Australian democratic exceptionalism?
As noted above, compulsory voting has kept voter turnout at elections above 90% for the past century. Kindred democracies marvel at, and envy, this level of participation. It affords legitimacy to election outcomes in this country. Significantly, it also produces a socially even turnout.
Compare this to the situation in this month's United Kingdom election. Turnout is estimated to have slumped to a record low 52%. There was a clear pattern of the "haves" exercising much greater say at the ballot box than the "have nots". Those who stayed away from the polls were predominantly less well-off, non-homeowners, the young, the lower-educated and of minority ethnic background.
Australia cannot be complacent in this regard. Low and declining turnout in remote electorates with high Indigenous populations is the most worrying chink in the performance of compulsory voting. In 2022, turnout in the Northern Territory seat of Lingiari fell to 66.8%. Even so, the practice largely succeeds in achieving inclusive voter participation across the country.
Crucially, compulsory voting is also recognised as one reason the political centre holds better in Australia than in many comparable nations. It exercises a moderating influence because it ensures it is not only impassioned partisans at either end of the political spectrum who participate in elections. This in turn means they are not the chief focus of governments and political parties.
Under a compulsory voting system, middle-of-the-road citizens and their concerns and sensibilities count. This inhibits the trend towards polarisation and grievance politics evident in other parts of the globe. It helps explain why Australia has been less receptive to the aggressive conservative populism that has taken root in the United States and Europe.
Compulsory voting also goes hand in hand with other institutional bulwarks of the nation's democracy. While there is plenty of evidence in Australia of increasing disaffection with politics, one thing that helps bolster faith in the democratic system is the politically independent national electoral authority, the Australian Electoral Commission.
The AEC's trusted impartial administration of the electoral system lends integrity to the democratic process. So do the many procedures it manages to facilitate voting. To name a few: Saturday election days, assistance for the ill, aged and those from non-English-speaking backgrounds, mobile polling stations, postal, absentee and early voting, and active and regular updating of registration.
Indeed, Australia has been described as "the most voter-friendly country in the world". Compulsory voting encourages this accessibility: if citizens are obliged to vote, then it becomes incumbent to smooth the path to them participating. The ease of voting in Australia contrasts with what goes on elsewhere, for example, the rampant state-based voter-suppression practices in the United States.
Dare we suggest, then, that compulsory voting is a mainstay of an Australian democratic exceptionalism? That we little note, let alone extol, the practice is perhaps not only a product of an inherent national modesty but because it is second nature after 100 years. Habituated to being compelled to participate in elections, we are inured to its specialness.
Let's hope this casual familiarity does not induce apathy rather than vigilance when next the system is challenged.
In the past, Paul Strangio receives funding from the Australian Research Council.
