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The Florida election recount of 2000 was a period of vote recounting in Florida that occurred during the weeks after Election Day in the 2000 United States presidential election between George W. Bush and Al Gore. The Florida vote was ultimately settled in Bush's favor by a margin of 537 votes when the U.S. Supreme Court, in Bush v. Gore, stopped a recount that had been initiated upon a ruling by the Florida Supreme Court. That in turn gave Bush a majority of votes in the Electoral College and victory in the presidential election.
Contents
Background
The controversy began on election night, when the national television networks, using information provided to them by the Voter News Service, an organization formed by the Associated Press to help determine the outcome of the election through early result tallies and exit polling, first called Florida for Gore in the hour after polls closed in the peninsula but about ten minutes before they closed in the heavily Republican counties of the panhandle (in the Central time zone). Later in the evening, the networks reversed their call, moving to "too close to call", then later giving it to Bush; then they retracted that call as well, finally indicating the state was "too close to call". Gore phoned Bush the night of the election to concede, then retracted his concession after learning how close the Florida count was. Bush led the election-night vote count in Florida by 1,784 votes. The small margin produced an automatic recount under Florida state law. The machine recount occurred the day after the election and reduced that margin to just over 900 votes. Once it became clear that Florida would decide the presidential election, the nation's attention focused on the manual recount.
Recount
The Florida election was closely scrutinized after Election Day. Due to the narrow margin of the original vote count, Florida Election Code 102.141 mandated a statewide machine recount, which was performed the day after the election. Florida state law at the time allowed the candidate to request a manual recount by protesting the results of at least three precincts. The county canvassing board was then to decide whether to do a recount, as well as the method of the recount, in those three precincts. If the board discovered an error that in its judgment could affect the outcome of the election, they were then authorized to do a full recount of the ballots. This statutory process primarily accommodated recounts for local elections.
Once the closeness of the election in Florida was clear, both the Bush and Gore campaigns organized themselves for the ensuing legal process. On November 9, the Bush campaign announced they had hired George H. W. Bush's former Secretary of State James Baker to oversee their legal team, and the Gore campaign hired Bill Clinton's former Secretary of State Warren Christopher. On November 11, the Bush campaign joined a group of Florida voters in suing in federal district court for a preemptive injunction to stop all manual recounting of votes in Florida. Bush's lawyers argued that recounting votes in just four counties violated the 14th Amendment and also that similarly punched ballots could be tabulated differently since Florida had no detailed statutory standards for hand-counting votes.
The Gore campaign, as allowed by Florida statute, requested that disputed ballots in four counties be counted by hand. Florida statutes also required that all counties certify and report their returns, including any recounts, by 5:00 p.m. on November 14. The manual recounts were time-consuming, and when it became clear that some counties would not complete their recounts before the deadline, both Volusia and Palm Beach Counties sued to have their deadlines extended.
At the same time, controversy ensued the discovery of various irregularities that had occurred in the voting process in several counties. Among these was the Palm Beach "butterfly ballot," which resulted in an unusually high number of votes for Reform Party candidate Pat Buchanan. Conservatives commented that the same ballot was successfully used in the 1996 election; in fact, it had never been used in a Palm Beach County election among rival candidates for office. Also, the Secretary of State's office had performed a pre-election purge of the Florida voting rolls to expunge tens of thousands of citizens identified as felons, with African-Americans identified on some counties' lists at up to five times their share of the population. Democrats claimed that many of these were not felons and should have been eligible to vote under Florida law. (Presumably, had they been able to express themselves at the polls, most would have chosen the Democratic candidate.) Additionally, this Florida election produced many more "overvotes" than usual, especially in predominantly African-American precincts in Duval County (Jacksonville), where some 21,000 ballots had multiple markings, such as two or more choices for president. Unlike the much-discussed Palm Beach County butterfly ballot, the Duval County ballot spread choices for president over two non-facing pages. Alternately, Republicans charged that Democrats had registered non-citizens to vote, fought to exclude overseas military ballots, and arbitrarily changed vote-counting criteria after the election.
Political commentator and author Jeff Greenfield observed that the Republican operatives in Florida talked and acted like combat platoon sergeants in what one called "switchblade time", the biggest political fight of the century. On the other hand, he said, Democrats talked like referees with a fear of pushing too hard, not wanting to be seen as sore losers.
While Democrats did make their way down to Florida, there was nothing like the certainty or the passion that ignited Republicans. The only exception: African-Americans. For all the furor over Palm Beach, it was black precincts where voters had been turned away, denied a ballot because some had been mislabeled as felons, blocked from voting because of bureaucratic bungles, or because the huge increase in black turnout had overwhelmed local officials. For those with memories going back four decades, all this was no accident. It was instead a painful reminder of the days when the battle for the ballot was, literally, a life-and-death matter. At an NAACP-sponsored hearing in Miami four days after the election, prospective voters told of police cars blocking the way to the polls, of voters harassed by election workers. It was anecdotal evidence at best, and local authorities argued persuasively that the police presence near a polling place was pure coincidence. Such explanations did little to lessen the sense of anger among black Democrats.
Controversial issues
Various flaws and improprieties in Florida's electoral processes were immediately apparent, while others were reported after later investigation. Controversies included:
Adding to these controversies was the fact that Florida's governor was the Republican presidential nominee's brother, although the governor recused himself from the recount process.
Palm Beach County's butterfly ballots
Many voters in Palm Beach County who intended to vote for Gore actually marked their ballots for Pat Buchanan or spoiled their ballots because of the ballot's confusing layout. The ballot displayed the list of presidential running-mate pairs alternately across two adjacent pages, with a column of punch spaces down the middle. Bush's name appeared at the top of the ballot, sparing most Bush voters from error. About 19,000 ballots were spoiled because of overvotes (two votes in the same race), compared to 3000 in 1996. According to a 2001 study in the American Political Science Review, the voting errors caused by the butterfly ballot cost Gore the election: "Had PBC used a ballot format in the presidential race that did not lead to systematic biased voting errors, our findings suggest that, other things equal, Al Gore would have won a majority of the officially certified votes in Florida."
On The Today Show of November 9, 2000, Buchanan said, "When I took one look at that ballot on Election Night ... it's very easy for me to see how someone could have voted for me in the belief they voted for Al Gore." He, unlike the voters, did not have the opportunity to see the ballot before Election Day.
Although Bush spokesman Ari Fleischer said on November 9 that "Palm Beach County is a Pat Buchanan stronghold and that's why Pat Buchanan received 3,407 votes there", Buchanan's Florida coordinator, Jim McConnell, responded by calling that "nonsense", and Jim Cunningham, chairman of the executive committee of Palm Beach County's Reform Party, responded, "I don't think so. Not from where I'm sitting and what I'm looking at." Cunningham estimated the number of Buchanan supporters in Palm Beach County to be between 400 and 500. Asked how many votes he would guess Buchanan legitimately received in Palm Beach County, he said, "I think 1,000 would be generous. Do I believe that these people inadvertently cast their votes for Pat Buchanan? Yes, I do. We have to believe that based on the vote totals elsewhere."
The ballot had been redesigned earlier that year by Theresa LePore (Supervisor of Elections and member of the Democratic Party). She said that she used both sides of the ballot in order to make the candidate names larger so the county's elderly residents could more easily see the names.
Florida Supreme Court appeals
The case of Palm Beach Canvassing Board v. Katherine Harris was a lawsuit about whether county canvassing boards had authority to extend manual recounts in order to inspect ballots for which the machine counter did not register a vote. The court ruled that counties had that authority and to allow time for these efforts, extended the statutory deadline for the manual recounts. It also stayed the state certification to November 26. Aside from this case, also in dispute were the criteria that each county's canvassing board would use in examining the overvotes and/or undervotes. Numerous local court rulings went both ways, some ordering recounts because the vote was so close and others declaring that a selective manual recount in a few heavily Democratic counties would be unfair.
Eventually, the Gore campaign appealed to the Florida Supreme Court, which ordered the recount to proceed. The Bush campaign subsequently appealed to the Supreme Court of the United States, which took up the case Bush v. Palm Beach County Canvassing Board on December 1. On December 4, the U.S. Supreme Court returned this matter to the Florida Supreme Court with an order vacating its earlier decision. In its opinion, the Supreme Court cited several areas where the Florida Supreme Court had violated both the federal and Florida constitutions. The Court further held that it had "considerable uncertainty" as to the reasons given by the Florida Supreme Court for its decision. The Florida Supreme Court clarified its ruling on this matter while the United States Supreme Court was deliberating Bush v. Gore.
At 4:00 p.m. EST on December 8, the Florida Supreme Court, by a 4 to 3 vote, rejected Gore' s original four-county approach and ordered a manual recount, under the supervision of the Leon County Circuit Court and Leon County Elections Supervisor Ion Sancho, of all undervoted ballots in all Florida counties (except Broward, Palm Beach and Volusia) and the portion of Miami-Dade county in which such a recount was not already complete. That decision was announced on live worldwide television by the Florida Supreme Court's spokesman Craig Waters, the Court's public information officer. The results of this tally were to be added to the November 26 tally.
U.S. Supreme Court proceedings
The recount was in progress on December 9 when the United States Supreme Court, by a 5 to 4 vote (Justices Stevens, Souter, Ginsburg and Breyer dissenting), granted Bush's emergency plea for a stay of the Florida Supreme Court recount ruling, stopping the incomplete recount.
About 10 p.m. EST on December 12, the United States Supreme Court handed down its ruling. Seven of the nine justices saw constitutional problems with the Equal Protection Clause of the United States Constitution in the Florida Supreme Court's plan for recounting ballots, citing differing vote-counting standards from county to county and the lack of a single judicial officer to oversee the recount. By a 5–4 vote the justices reversed and remanded the case to the Florida Supreme Court "for further proceedings not inconsistent with this opinion", prior to the optional "safe harbor" deadline which the Florida court had said the state intended to meet. With only two hours remaining until the December 12 deadline, the Supreme Court's order effectively ended the recount.
The decision was extremely controversial due to its partisan split and the majority's unusual instruction that its judgment in Bush v. Gore should not set precedent but should be "limited to the present circumstances". Gore said he disagreed with the Court's decision, but conceded the election.
Florida Secretary of State Katherine Harris's certification of the election results was thus upheld, allowing Florida's electoral votes to be cast for Bush, making him president-elect.
Florida counties' recount decisions
Florida Attorney General Robert Butterworth in his advisory opinion to county canvassing boards:
The longstanding case law in Florida [ ] has held that the intent of the voters as shown by their ballots should be given effect. Where a ballot is so marked as to plainly indicate the voter's choice and intent, it should be counted as marked unless some positive provision of law would be violated. As the state has moved toward electronic voting, nothing in this evolution has diminished the standards first articulated in such [judicial] decisions ... that the intent of the voter is of paramount concern and should be given effect if the voter has complied with the statutory requirement and that intent may be determined. ... The Florida Statutes contemplate that where electronic or electromechanical voting systems are used, no vote is to be declared invalid or void if there is a clear indication of the intent of the voter as determined by the county canvassing board.
Conservative writer Andrew Sullivan in a contemporaneous article:
There is a real issue here about what voting actually means. To some, voting is a right that should be guaranteed regardless of any incompetence, error, failure, or irresponsibility on the part of the voter. ... Others have a different view. They argue that American democracy is ... a far stricter, Lockean, Anglo-American system based on the letter of the law and a successful vote cast by a rational, responsible voter. In this constitutional system, the "will of the people" is an irrelevant abstraction. ... From affirmative action and hate-crime laws it's a small step to ensuring that all voters, however negligent, have their intent, however vague, reflected in the final result of an election.
Florida Code Section 101.5614[5] states that no vote "shall be declared invalid or void if there is a clear indication of the intent of the voter." A physical mark on a ballot, at or near a designated target, is such an indication.
Florida Ballot Project recounts
The National Opinion Research Center at the University of Chicago, sponsored by a consortium of major United States news organizations, conducted the Florida Ballot Project, a comprehensive review of 175,010 ballots that were collected from the entire state, not just the disputed counties that were recounted. These ballots contained undervotes (votes with no choice made for president) and overvotes (votes made with more than one choice marked). The organization analyzed 61,190 undervotes and 113,820 overvotes. Of those overvotes, 68,476 chose Gore and a minor candidate; 23,591 chose Bush and a minor candidate. Because there was no clear indication of what the voters intended, those numbers were not included in the consortium's final tabulations.
The project's goal was to determine the reliability and accuracy of the systems used in the voting process, including how different systems correlated with voter mistakes. The total number of undervotes and overvotes in Florida amounted to 3% of all votes cast in the state. The review's findings were reported in the media during the week after November 12, 2001, by the organizations that funded the recount: Associated Press, CNN, The Wall Street Journal, The New York Times, The Washington Post, The St. Petersburg Times, The Palm Beach Post and Tribune Publishing, which included the Los Angeles Times, South Florida Sun-Sentinel, Orlando Sentinel and Chicago Tribune.
Based on the NORC review, the media group concluded that if the disputes over the validity of all the ballots in question had been consistently resolved and any uniform standard applied, the electoral result would have been reversed and Gore would have won by 60 to 171 votes (with, for each punch ballot, at least two of the three ballot reviewers' codes being in agreement). The standards that were chosen for the NORC study ranged from a "most restrictive" standard (accepts only so-called perfect ballots that machines somehow missed and did not count, or ballots with unambiguous expressions of voter intent) to a "most inclusive" standard (applies a uniform standard of "dimple or better" on punch marks and "all affirmative marks" on optical scan ballots).
An analysis of the NORC data by University of Pennsylvania researcher Steven F. Freeman and journalist Joel Bleifuss concluded that, no matter what standard is used, after a recount of all uncounted votes, Gore would have been the victor. Such a statewide review including all uncounted votes was a tangible possibility, as Leon County Circuit Court Judge Terry Lewis, whom the Florida Supreme Court had assigned to oversee the statewide recount, had scheduled a hearing for December 13 (mooted by the U.S. Supreme Court's final ruling on the 12th) to consider the question of including overvotes. Subsequent statements by Lewis and internal court documents support the likelihood that overvotes would have been included in the recount. Florida State University professor of public policy Lance deHaven-Smith observed that, even considering only undervotes, "under any of the five most reasonable interpretations of the Florida Supreme Court ruling, Gore does, in fact, more than make up the deficit". Fairness and Accuracy in Reporting's analysis of the NORC study and media coverage of it supported these interpretations and criticized the coverage of the study by media outlets such as the New York Times and the other media consortium members for focusing on how events might have played out rather than on the statewide vote count.
The NORC was expecting 176,446 uncounted ballots to be available from Florida's counties, based on county precinct reports that produced the final, state-certified vote totals.
Orange County presented fewer rejected ballots to the NORC than expected. When the county segregated all ballots by machine for the NORC review, 512 previously rejected ballots were determined to be completely valid. Orange County then performed a hand segregation and determined that these votes numbered 184 for Bush, 249 for Gore and 79 for other candidates.
The NORC adjusted its analysis for the Orange County results and a few minor differences by increasing the starting baseline vote total by 535 votes. In addition, some counties had provided an extra 432 total ballots, while others produced 1333 fewer ballots than expected. As adjusted, 176,343 ballots were expected, compared to 175,010 ballots actually provided to the NORC for review. The county-level variance from the total number of ballots was 0.76%. Thus, the project included a sample within less than 1% of the expected total of votes.
Only a fourth of the variance consisted of optical ballots. Most of the variation occurred in Votomatic overvotes, the least likely ballots to yield votes in a recount. Among the nearly 85,000 Votomatic overvotes in the sample, there were only 721 reclaimable votes confirmed in the NORC study.
Media recounts
From the beginning of the controversy, politicians, litigants and the press focused exclusively on the undervotes, in particular incompletely punched chads. Undervotes (ballots that did not register any vote when counted by machine) were the subject of much media coverage, most of the lawsuits and the Florida Supreme Court ruling. After the election, recounts conducted by various United States news media organizations continued to focus on undervotes. Based on the review of these ballots, their results indicated that Bush would have won if certain recounting methods had been used (including the one favored by Gore at the time of the Supreme Court decision), but that Gore might have won under other standards and scenarios. The post-controversy recounts revealed that, "if a manual recount had been limited to undervotes, it would have produced an inaccurate picture of the electorate's position."
USA Today, The Miami Herald, and Knight Ridder commissioned accounting firm BDO Seidman to count undervotes. BDO Seidman's results, reported in USA Today, show that under the strictest standard, where only a cleanly punched ballot with a fully removed chad was counted, Gore's margin was three votes. Under the other standards used in the study, Bush's margin of victory increased as looser standards were used. The standards considered by BDO Seidman were:
The study notes that because of the possibility of mistakes, it is difficult to conclude that Gore would have won under the strict standard or that a high degree of certainty obtained in the study's results. It also remarks that there were variations between examiners and that election officials often did not provide the same number of undervotes as were counted on Election Day. Furthermore, the study did not consider overvotes, ballots that registered more than one vote when counted by machine.
The study also found that undervotes originating in optical-scan counties differ from those from punchcard counties in a particular characteristic. Undervotes from punch-card counties give new votes to candidates in roughly the same proportion as the county's official vote. Furthermore, the number of undervotes correlates with how well the punch-card machines are maintained, and not with factors such as race or socioeconomic status. Undervotes from optical-scan counties, however, correlate with Democratic votes more than Republican votes, and in particular to counties that scanned ballots at a central location rather than at precinct locations. Optical-scan counties were the only places in the study where Gore gained more votes than Bush, 1,036 to 775.
Some media reports focused on undervotes (chad blocked hole, wrong ink or pencil used, partial oval mark not detected, humidity affected scanner, ballot feeder misalignment), while others also included overvotes (hole punched or oval filled plus a write-in name, other multi-marked ballots). A larger consortium of news organizations, including USA Today, The Miami Herald, Knight Ridder, The Tampa Tribune, and five other newspapers next conducted a full recount of all ballots, including both undervotes and overvotes. The organization analyzed 171,908 ballots (60,647 undervotes and 111,261 overvotes), 3102 less than the later NORC study. According to their results, Bush won under stricter standards and Gore won under looser standards. A Gore win was impossible without a recount of overvotes, which he did not request; however, faxes between Judge Terry Lewis and the canvassing boards throughout the state indicated that Lewis, who oversaw the recount effort, intended to have overvotes counted.
According to the study, 3146 (3%) of the 111,261 examined overvotes "contained clear and therefore legally valid votes not counted in any of the manual recounts during the dispute." According to Anthony Salvado, a political scientist at the University of California, Irvine, who acted as a consultant on the media recount, most of the errors were caused by ballot design, ballot wording, and efforts by voters to choose both a president and a vice president. For example, 21,188 of the Florida overvotes, or nearly one-fifth of the total, originated from Duval County, where the presidential ballot was split across two pages and voters were instructed to "vote every page". Half of the overvotes in Duval County had one presidential candidate marked on each page, making their vote illegal under Florida law. Salvado says that this alone cost Gore the election.
Including overvotes in the above totals for undervotes gives different margins of victory:
The overvotes with write-in names were also noted by Florida State University public policy professor and elections observer, Lance deHaven-Smith, in his interview with Research in Review at Florida State University:
Furthermore, the Florida Administrative Code: 1S-2.0031, "Write-in Procedures Governing Electronic Voting Systems", (7) at the time specified, "An overvote shall occur when an elector casts a vote on the ballot card and also casts a write-in vote for a qualified write-in candidate for that same office. Upon such an overvote, the entire vote for that office shall be void and shall not be counted. However, an overvote shall not occur when the elector casts a vote on the ballot card but then enters a sham or unqualified name in the write-in space for that same office. In such case, only the write-in vote is void." There were two write-in candidates for president who had been qualified by the state of Florida. Under the FAC, a ballot with any other name written in (including Bush and Gore, who were not qualified as write-in candidates) was not an overvote, but rather a valid vote for the candidate whose name was marked by the voter.
County-by-county standards for write-in overvotes in 2000
Opinion polling on recount
A nationwide December 14–21, 2000 Harris poll asked, "If everyone who tried to vote in Florida had their votes counted for the candidate who they thought they were voting for — with no misleading ballots and infallible voting machines — who do you think would have won the election, George W. Bush or Al Gore?". The results were 49% for Gore and 40% for Bush, with 11% uncertain or not wishing to respond.
HBO film
The 2008 made-for-TV movie Recount, directed by Jay Roach and produced by and starring Kevin Spacey, explores the 2000 election and recount. It premiered on the HBO cable network on May 25, 2008.