Beyond Turnout: The Election Administrators’ Institutional Capacity Question and Developing Voter Education Programs

The views expressed are those of the author and do not necessarily reflect the views of ASPA as an organization.

By Ramón Pagán
January 16, 2026

Michael McDonald, a political scientist, compiled data showing that voter turnout in the U.S. averages 59 percent in presidential elections and 42 percent in midterms. In some local jurisdictions, turnout can be as low as 10 to 25 percent. These figures signal a call to action for policymakers and, especially, election administrators, who play a critical frontline role in fostering voter participation. The Help America Vote Act of 2002 provides a foundation by requiring states to establish voter education and outreach programs and to measure their effectiveness. These efforts are designed to strengthen civil society and protect the integrity of representative democracy.

Educating voters is complex, requiring administrators to plan carefully, engage stakeholders and design performance metrics. But the real challenge goes beyond planning and implementation. At the outset, administrators must ask a critical question: Do we have the institutional capacity to create voter education programs that meaningfully increase voter awareness and participation?

To maximize the chances of success, election administrators should focus on four essential institutional capabilities:

1. Adaptive Skills: Prepare teams and the organization to embrace new responsibilities and challenges.

2. Data Collection and Analysis: Compile voter turnout and demographic data to understand voter behavior and tailor education programs.

3. Cross-Sector Collaboration: Build networks and partnerships with nonprofits, civic organizations and private-sector actors to strengthen program reach and efficiency.

4. Performance Measurement: Establish clear metrics to assess program outcomes and inform future planning.

Election administrators may face both technical and adaptive challenges. Technical challenges include designing outreach materials, developing voter education guides, scheduling events and collecting voter data. Adaptive challenges require engaging staff in identifying practical solutions and understanding voter needs. Creating a safe space for team discussion allows frontline staff to brainstorm and develop strategies to implement education programs effectively.

A critical first step is understanding the voting population. Administrators should segment voters into meaningful groups based on demographics such as age, gender, race, ethnicity, education, occupation, income, household composition and geographic location, along with voting history. This data provides the foundation for designing tailored, effective voter education programs that resonate with specific communities.

Cross-sector collaboration strengthens these efforts. Partnering with nonprofits, civic organizations and the private sector pools resources, builds trust and leverages existing communication channels to reach diverse voter segments. Clear program goals and performance metrics ensure that these partnerships are efficient, accountable and equitable.

Performance measurement is essential. Indicators might include the number and type of outreach activities conducted across voter segments, including high school and college students, new voters, minority groups, voters with disabilities, senior citizens and recently relocated residents. Tracking these metrics informs administrators about program coverage, ensures inclusivity and guides resource allocation.

Ultimately, election administrators have a responsibility to educate voters to promote participation and strengthen representative democracy. By employing adaptive strategies, leveraging data, building cross-sector partnerships and measuring outcomes, they can enhance voter awareness and engagement in meaningful ways.

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Author: Dr. Ramón Pagán is a scholar-practitioner in election administration and an adjunct professor at Fairleigh Dickinson University in Teaneck, New Jersey. He holds a Doctorate in Public Administration, a Master’s in Political Science, and a Bachelor’s in Sociology. Before entering government, he spent 18 years in private-sector management. He can be reached at [email protected] or [email protected], and his LinkedIn profile is available online.

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