March 9, 1971

The Secretary of State of New Jersey, Paul J. Sherwin, wrote saying that while it would be necessary to provide separate ballots where paper ballots are used and to lock out State and local elections on voting machines for those under 21, that cost would not be "prohibitive." (Letter Birch Ba.yh, January 19, 1971.)

Lowering the voting age by State action

A bill has been introduced in the New Jersey State legislature to amend the State constitution to lower the voting age. If passed by the legislature, it could be ratified at the State's general elections in 1971 and therefore be effective in time for the next general election involving Federal officials. (Sherwin Letter. January 19, 1971.)

NEW MEXICO

Number of voters affected

More than 62,000 New Mexico residents can now take part in Federal but not State elections.

Costs and problems of dual-age voting

According to an official estimate the additional cost of printing separate ballots, sample ballots, and related election supplies, together with the cost of some new voting machines, is expected to amount to about $200,- 000. Prediction of exact costs is difficult, partially because the cost would not be borne by the State but by the counties which run the elections. Betty Fiorina, the New Mexico Secretary of State predicted that, leaving the costs aside, problems of administration will probably provide the greatest difficulties, and many of these problems have "not yet been identified." (Letter to Birch Bayh, January 20, 1971.)

Lowering the voting age by State action

The New Mexico constitution now deals with the 21 year old voting age. Some legislators are now proposing legislation to lower the voting age. (Albuquerque Tribune, December 21, 1970.) And the Secretary of State has expressed support of moves to lower the voting age for all elections in New Mexico. (Letter to Birch Bayh, January 20, 1971). The constitution provides that any change in the voting age must be ratified by threefourths of the electors voting in the State. Therefore, there is a. greater chance that ratification would not be successful in New Mexico, as compared with other States.

NEW YORK

Number of voters affected

New York will have to make special provisions for more than 850,000 potential voters in the event a. Federal election takes place on a Statewide basis before the voting age can be lowered.

Cost and problems of dual-age voting

There have been varying estimates of the possible costs involved in implementing these new procedures. Maurice J. O'Rourke, the President of the New York City Board of Elections, has stated that such a. dual age voting procedure "would cost the city $5,000,000 minimally. We would need 1,500 new voting machines, which cost $2,000 each, and we would have to spend at least $2,000,000 for additional permanent personnel to set up and maintain the two sets of registration books necessary for two categories of voters." (New York Times, December 23, 1970). While some jurisdictions have considered requiring younger voters to vote separately-by absentee ballot for instance--O'Rourke refused to exclude the new voters from the polling places since this would be their first exposure to the democratic system. "It shocks me. I would resign my job before I'd agree to a system of two classes of voters." (New York Times, December 23, 1970.)

Lowering the voting age by State action

In New York it is necessary for the State legislature to pass a. proposed amendment to the State constitution twice before it can be referred to the voters for ratification. In January of this year a. proposed constitutional amendment passed the New York Legislature for the second time-by a. vote of 51 to 3 in the Senate and 137 to 8 in the Houseand It will go before the voters in November. The Legislators reportedly acted quickly to avoid what many of them considered to be a potentially "catastrophic" situation throughout the State. Others felt that lowering the voting age would convince the young to take a constructive part in the system instead of resorting to violence. State Assemblyman Peter R. Biondo (R.- Westchester) called upon his fellow legislators to end "a. paradox--one that prohibits our youth from voting for Governor Rockefeller and allows them to vote for the same man should he choose to run for President next year." (New York Times, January 12, 1971.)

If approved by the State's voters the new lowered voting age would be effective on January 1, 1972, and there would be no need to establish dual-age voting procedures. The Secretary of State of New York, John P. Lomenzo, believes that "there is a. strong possibility that a. system of dual voting will not be necessary." (Letter to Birch Ba.yh, January 22, 1971.) However, several citizens are worried that the referendum might be defeated by voter apathy, as has been the case in some other States. Mr. Frederick W. Richmond recently announced the formation of the Citizens Committee to Lower the Voting Age, which hopes to raise $500,000 to make sure that the voters are not deluded by a "false belief that a proposal like this is sure to carry." (New York Times, January 2!, 1971.)

NORTH CAROLINA

Number of voters affected

ApproXimately 300,000 voters in North Carolina are eligible to participate in Federal elections but precluded from taking a role in State and local affairs.

Costs and problems of dual-age voting

Alex K. Brock, Executive Secretary for the State Board of Elections estimates that on the State level there would be very little administrative expense at the State level in setting up procedures for differentiating between the classes of voters. (Letter to Birch Ba.yh, January 26, 1971.) William B. A. Culp, Jr., Executive Secretary of the Mecklenburg County Board of Elections, provided an analysis of the estimated cost to the county of implementing those procedures for separating voters. Assuming there are 10,000 younger voters in his county, he estimated that It would cost $500 to program the voting machines for each election, $3,000 for the extra clerks required to activate the "lockout" devices on the voting machines, and almost $1,800 for extra clerks to identify the under- 21 voters on election day. He also thought there would be "logistical problems" and "increased potential for challenge or protest" if any younger voters inadvertently voted in State and local elections. (Letter to Birch Bayh, January 28, 1971.)

Lowering the voting age by State action

The voting age is set by the State constitution and could not, as a practical matter, be altered before the next Federal election. (Letter from Carl P. Holleman , Chairman, of the Wake County Board of Elections, to Birch Bayh, January 21, 1971.)

NORTH DAKOTA

Number of voters affected

North Dakota is faced with accounting for more than 35,000 potential voters on a basis separate from the rest of its voting population.

Costs and problems of dual-age voting

Responses to the poll are not yet complete. Grant L. Berquist has said that the voting machines he supervises in the City of Bismarck can be adjusted to lock out State candidates simply by pulling a special lever. Ben Meier, North Dakota Secretary of State, said that other areas of the State would have to use paper ballots. (Bismarck Tribune, December 23, 1970.)

Lowering the voting age by State action

A State constitutional convention has been called to meet for up to a month starting January 1 , 1972, and that convention might well decide to act on the 18 year-old-vote problem. Ratification by the people of such proposed amendments takes place at a special election to be called by the Governor not less than 90 days nor more than 150 days after adjournment of the convention. (Letter from Ben Meier to Birch Bayh, January 19 1971.) Therefore, it is at least theoretically possible for North Dakota to lower its voting age before the next scheduled Statewide Federal election.

OHIO

Number of voters affected

According to the latest estimate by Secretary of State Ted W. Brown, extending the franchise to those 18 and older makes 553,- 000 additional Ohio citizens eligible to vote. (Cleveland Plain Dealer, December 22, 1970.) Costs and problems of dual-age voting

Brown has estimated that it will cost about $1.50 to register each new voter. (A possible total cost of over $750,000.) Brown was unable to give an accurate estimate as to the expenses which wm occur throughout the State because these are borne by the boards of elections in each of the State's 88 counties. (Letter to Birch Bayh, January 20, 1971) The Hamilton County Board of Elections, which includes Cincinnati, has predicted that it wm have to spend approximately $50,000 extra to take care of separate sets of registration cards and other records. (Letter from Maurice J. Allen, Deputy Director, Hamilton County Board of Elections, to Birch Bayh, January 20, 1971.)

The complexity of the new procedure is likely to cause trouble. Secretary Brown thought there would be confusion "to the voter and confusion at the polling place for the precinct elections Officials.” In Hamilton County, it was thought that the dual procedure would create "confusion for the voters" and the "administrative problems and margin of error would greatly increase." (Allen Letter to Birch Bayh, January 20, 1971.) Brown added an additional point. He :felt that there will be "dissatisfaction on the part of young people" who are able to vote for high Federal officials but barred from participation in the lesser State, county, and municipal offices and issues. (Brown Letter, January 20, 1971.)

Lowering the voting age by State action

The voting age in Ohio is established under the State constitution and if three-fifths of the members of both branches of the General Assembly approve, the amendment can be presented to the voters in the next general or special election. There will be a general election in November of 1971. (Brown Letter, January 20, 1971.)

OKLAHOMA

Number oj voters affected

About 130,000 potential voters will have to be registered and dealt with separately as a result of the Supreme Court's decision in Oregon v. Mitchell.

Costs and problems of dual-age voting

Oklahoma expects that providing separate registration and voting facilities will cost an extra $50,000 to $150,000 per election year." (Telegram from Ward Fowler, Assistant Secretary of the Oklahoma State Election Board, to Birch Bayh, January 29, 1971.) Lowering the voting age by State action

The voting age is set by the State constitution and the State legislature would have to submit any such amendment to the people. Several State elected officials have called for the passage, as soon as possible, of a State constitutional amendment, but the Speaker of the House has said that such an amendment would be difllcul t to pass. (Daily Oklahoman, December 22, 1970.) Such a proposed amendment could be ratified at the special election, but local observers predict that while a special election is possible that it is "not probable." (Fowler Telegram, January 29, 1971.)

OREGON

Number of voters affected

Over 100,000 potential voters in the State of Oregon are now eligible to vote in Federal but not in State elections.

Costs and problems of dual-age voting

Attorney General Lee Johnson, who had argued in opposition to the Voting Rights Act's age provision in the Supreme Court, said:

"Congress has an obligation to rectify the imposition of an intolerable administrative burden upon the States. As a result of the Court's decision, states will now have to hold separate elections for national officials and state and local officials. This will be administratively difficult and will result in considerable cost to the taxpayers." (Oregon Journal, December 22, 1970)

Clay Myers, the Secretary of State, hopes that a Federal constitutional amendment to 18. low e ring the voting age to 18, “‘will pass Congress in the very near future and be referred to the States for ratification." Because of Oregon's unique combination of election laws and voting devices--it has outlawed voting machines--Myers believes that the problems of dual-age voting can be handled "simply, inexpensively, and in the best interests of the younger voters," without incurring "the tremendous additional expenses" that will beset other States. (Letter to Birch Bayh, February 2, 1971.)

Lowering the voting age by State action

The Oregon State constitution sets the present voting age at 21. No proposed constitutional amendment could be ratified, in the absence of a special election costing about $300,000, before the May, 1972 primaries. Myers reports that because the voters o! Oregon turned down a 19-year-old amendment in 1970, there is "no assurance" that the voters will accept an 18-year-old vote proposal in the immediate future. (Letter to Birch Bayh, February 2, 1971.)

PENNSYLVANIA

Numb-er of voters affected

Pennsylvania voting officials will be forced to devise procedures for separately registering and dealing with over 500,000 potential voters.

Costs and problems of dual-age voting

Edward Friedman, Pennsylvania State Counsel General, was quoted as saying that the Supreme Court decision would create an incredible logistics problem for the 1972 election. (Philadelphia Inquirer, December 22, 1970.) Various estimates of the possible costs of dual-age voting have been made, and they range from $250,000 to more than one million dollars. (Letter, prepared at the request of C. Delores Tucker, Pennsylvania Secretary of State, from Donald A. Bailey to Birch Bayh, January 29, 1971.)

Lowering the voting age by State action

The State's voting age is set by the constitution and amendment would require the approval of both two successive legislatures and a popular referendum. (Philadelphia Inquirer, December 24, 1970.) A constitutional amendment thus would not be effected until well after the next presidential election. There has been some talk of implementing the 18 year old vote at an earlier date through the use of emergency powers. (Bailey Letter to Birch Bayh, January 29, 1971.)

RHODE ISLAND

Number of voters affected

Rhode Island has over 50,000 potential voters in State elections who would be enfranchised if the voting age were lowered to Costs and problems of dual-age voting

State officials have estimated that there will be "considerable extra expense" as a result of the Supreme Court's decision. They will need separate registration and voting lists as well as separate voting machines for each voting precinct. One official estimated that such expenses could total nearly "two million dollars." (Letter from August P. LaFrance, Secretary of State of the State of Rhode Island, to Birch Bayh, January 19, 1971.)

Lowering the voting age by State action

It is possible that the State consti-tution could be amended during 1971, but only if a proposed amendment was passed by the State legislature and submitted to and approved by the general voting population at the next election.

SOUTH CAROLINA

Number of voters affected

South Carolina has over 165,000 potential voters in the State elections who would be enfranchised if the voting age were lowered Costs and problems of dual-age voting

States Attorney General Daniel R. McLeod said that his State had been presented with an “illogical” situation. (Charleston Evening Post, December 22, 1970.) The Executive Director of the State Election Commission. James B. Ellisor, has calculated that the cost of the dual voting procedure will amount to · between "$25,000 and $30,000" in each ' ch calendar year. He also felt that there would be "a special problem•• in all the South carolina counties which usee! voting machines, in adapting the machines to block out certain candidates and in identifying the under-21 voters so as to accor'd them special treatment. (Letter to Birch Bayh, January 15, 1971.) Richland County, which includes Columbia, South Carolina, has estimated that in that county alone the extra cost will amount to about $3,000. Johnston F. Peeples, Chairman o! the Richland County Board of Registration, thinks there will be "dissatisfaction and resentment" on election day when many voters find that, even though they have recently turned 21, their voting certificates still qualify them for voting in Federal elections only. These voters will be unable to vote in State and local elections, even though they are otherwise qualified. This problem might arise because under present law, voting certificates cannot be changed in mail, but only in person. (Peeples Letter to Birch Bayh, January 18, 1971.)

Lowering the voting age by State action

It 1s impossible to change the State constitution in order to lower the voting age to 18 before 1973 at the earliest. The State General Assembly first has to enact a proposed amendment which could then be voted on by the people at the next statewide general election. This wm be held In November 1972. If ratified by the people, the proposed amendment must then go back to the General Assembly for a further vote--which could not possibly come before 1973. (Ellisor letter to Birch Bayh, January 15, 1971; Peeples Letter to Birch Bayh, January 18, 1971.)

It is possible that any effort to put an 18 year old vote measure through the State legislature wm be difficult. House Speaker Solomon Blatt is said to "bitterly oppose" the 18 year vote. (The News and Courier, December 22, 1970.)

SOUTH DAKOTA

Numbe:r of voters affected

35,000 South Dakota residents are presently eligible for participation in Federal elections but cannot vote in State contests.

costs and problems of dual-age voting

The Secretary of State, Miss Alma Larson, reported that, "This wm make each election like two separate ones at the same time. Miss Larson added that it would be likely to slow down the counting process. (Rapid City Journal, Dec. 2S, 1970) The Secretary of state's Office has ••estimated an additional cost of $40,000 to implement the eighteen year old voting in South Dakota for President and Congress," and that the "many different types of ballots, separate poll and registration ledgers," will cause some problems. (Letter to Birch Bayh, February 1, 1971.)

Lowering the voting age by State action

The State constitution now sets the voting age. Several State leaders have announced their intentions to make the State age conform with the national age. (The Daily Plainsman, December 22,1970.) Any proposed constitutional amendment could not be ratified until the November 1972 election. (Larson Letter, February 1, 1971.)

TENNESSEE

Number of voters affected

More than 215,000 potential voters will require special treatment in the next Federal election, unless the Tennessee State constitution can be changed to lower the voting age before that time.

costs and problems of dual-age voting

The state Attorney General, David Pack said the decision will "certainly complicate" the mechanics of holding a general election in Tennessee. (Nashville Banner, December 21, 1970.) The Director of Elections of the Shelby County Election Commission who supervises elections in Memphis, has estimated that in his county alone dual-age voting may cost "around $800,000", but he did point out that this was "a rough estimate." The Commission will have to maintain separate systems o:f records and registration and will have to decide whether or not to pay the money to insure the greatest accuracy by installing a separate voting machine in each polling place !or those who are only eligible to participate in Federal elections. (Letter from John M. Perry to Birch Bayh, January 18, 1971.)

Lowering the voting age by State action The State constitution can only be amended by calling a constitutional convention. A limited constitutional convention, which can consider only questions concerning taxes, has been called for August 1971. It could not consider the issue of 18-year-old vote. And according to the constitution, conventions may not be held more often than once in 6 years. Therefore, no constitutional convention could deal with the 18 year old vote issue until 1977, thus, precluding participation i n elections by 18 year olds until 1978 at the earliest. As a result there is some pressure to attempt to alter the voting age by a State statute, but there seems general agreement that any such statute would be wide open to a court challenge. Joe C. Carr, the Tennessee Secretary of State has stated that he believes " an amendment to the Constitution will be necessary." (Letter to Birch Bayh, January 13, 1971.)

TEXAS

Number of voters affected over 600,000 potential voters in Texas may find that their franchise is limited to Federal questions .

Costs and problems of dual-age voting

The Office of the Secretary of State of Texas is still in the process of determining what major alterations in voting procedures will be necessary to accommodate the dualage voting system. They have concluded, however, that the Texas counties will be subject to some additional expenses and that these expenses could be "considerable." Some "extra confusion at the polling place" might result as well. (Letter to Birch Bayh, January 21, 1971.) State Senator Mike McKool hopes the legislature will now take the first steps to lower the voting age to a void what he thinks will be millions of dollars of extra cost. (Dallas Morning News, December 22, 1970.)

Lowering the voting age by State action

The voting age is set by the State constitution and the legislature is now considering whether to submit a State constitutional amendment to the people. If submitted, such an amendment could be ratified within a reasonable time, if a special election was called for that purpose. (Letter from Randall P. Wood, Texas Director of Elections, to Birch Bayh, January 21, 1971.)

UTAH

Number of voters affected

About 60,000 voters in Utah would have to be registered for Federal elections and then moved over to the regular State voting rolls once they became 2'1.

Costs and problems of dual-age voting

Several State officials greeted the Supreme Court's decision with some dismay. They said that the decision would cause confusion and that there would be mechanical problems in its implementation. (Salt Lake Tribune, Dec. 22, 1970.) Clyde L. Miller, the Utah Secretary of State, has figured there will be an increase of about 15 to 20 percent in election costs. (Letter to Birch Bayh, January 14, 1971.) The Assistant Director of the Utah Legislative Council has reported that on the basis of computations made in one county there will have to be an increased expenditure of about $45,000 Statewide as a result of the Court decision. (Letter :from Lowell W. Crandall to Birch Bayh. January 25, 1971.) The Secretary o:f State raised another problem. He predicted his office would be beseiged with requests :from those under 21 who wish to qualify as delegates to the State party conventions. He said that without legal clarification "Utah will :face confusion" because it 1s · not clear how the Court's decision will affect State party procedures. (Letter to Birch Bayh, January 14, 1971.)

Lowering the voting age by State action

It is not clear whether the Utah Constitution sets the voting age. Governor Ra.mpton favors lowering the age by statute, but the Attorney General believes a constitutional amendment will be necessary. (Letter from Kent Briggs, Staff Assistant to Governor Rampton, January 29, 1971.) Assuming the decision is made to amend the State constitution, both Houses must pass a joint resolution by a % vote. Then the proposed amendment would go to the people for ratification on the 1972 election ballot. Thus, no change in the voting age could be effective, in the absence of an amendment to the Federal Constitution, until the 1973 municipal and 1974 general elections. (Crandall letter; Miller letter.)

VERMONT

Numbe:r of voters affected

Vermont has more than 21,000 potential voters between the ages of 18 and 21.

Costs and problems of dual-age voting

Vermont Secretary of State Richard C. Thomas predicts that "extra effort” will be required but does not foresee "any great added expense." (Letter to Birch Bayh, January 12, 1971.)

Lowering the voting age by State action

According to Secretary Thomas, it is unclear just how the voting age can be lowered most quickly by State action. The State constitution does contain several references to the age of 21, but according to an opinion of the State Attorney General, those references were inserted as a maximum upper limit and do not preclude lowering the voting age by State legislation. Therefore, Thomas has introduced legislation to make the change by statute. (The Times-Argus, Dec. 22, 1970.) But he suspects that even if the legislation were successful in the legislature, it would have to be tested in court. It would be possible to start the amendment process this year. Any proposed change must originate in the Senate and be passed by % vote and then garner a majority of votes in the House. Then the next succeeding General Assembly, which meets in January of 1973, must approve the measure by majority vote. Only then can the issue be sent to the people for ratification by majority vote. (Thomas Letter to Birch Bayh, January 12, 1971.) Therefore, the State constitution could not be amended before the next Federal elections.

VIRGINIA

Number of vote:rs affected

About 290,000 residents of Virginia are between 18 and 20 years old.

Costs and problems of dual-age voting

Governor Holton has announced that as a result of the Court's decision he is going to suggest that the Virginia General Assembly take steps to lower the voting age to 18 in all elections. (Richmond News Leader, December 22, 1970)

Lowering the voting age by State action

The voting age in Virginia is set by the State constitution. If a proposed amendment were to pass the General Assembly this year, it could be presented to the people !or ratification in the November 1972 election. (Letter to Birch Bayh from L. Stanley Hardaway, Executive Secretary o:f the Virginia State Board o:f Elections, January 13, 1971)

WASHINGTON

Numbe:r oj vote:rs affected

About 170,000 potential voters in Washington could go to the polls in the next national elections and find themselves barred from voting in the State contests.

Costs and problems of dual-age voting

Governor Dan Evans is reported to have said that it was "highly illogical” to allow the younger voters to participate in Federal but not State and local elections. (New Haven (Conn.) Journal-Courier, December 22, 1970) A. Ludlow Kramer, the Secretary of State of Washington, reported that dual-age voting could cost $425,000 each year. He said:

"The complications of the dual-age voting created by the recent U.S. Supreme Court decision could cost the taxpayers of the State of Washington an additional $425,000.00 in 1972. If simplified voting procedures were authorized by our state legislature, the cost could be reduced to approximately $353,- 000.00. However, the lower figure would require statutory authority to eliminate formal registration of the 18-20 age voter and to provide that all such balloting must be by mail in a manner similar to Service Voting. "The distressing fact is that whichever procedure is established, the costs are not only excessive in 1972 but would be repeated at each future election held in the even• numbered years."

Kramer broke this estimated expense total down into several categories. New forms, together with the additional clerical staff for registration and filing would cost about $115,000. Printing special ballots for all the 5,927 precincts in the State would cost at least $20,000. Additional clerical staff to be on hand while counting the votes cast by paper ballot at voting machine precincts would cost about $40,000. In addition, the cost of ballot boxes and voting booths, including transportation charges, "could easily exceed $200,000." (Letter to Birch Bayh. January 28, 1971)

Lowering the voting age by State action

The State constitution, which establishes the voting age, can only be amended at a general election. Unless the State legislature decides to establish an annual general election, final ratification would be impossible to obtain before the 1972 Presidential election. Secretary Kramer is unsure whether the necessary two-thirds vote in each branch of the State legislature could be obtained for a. constitutional amendment to lower the voting age this year because the voters turned down an amendment to make the voting age 19 at the November, 1970 general election. He said:

"It would not be realistic to expect this legisla.tive session to immediately re-submit another proposition to lower the voting age if it were not for the suffocating expense of the dual-age voting, especially a.t a. time when the state is desperately struggling to avoid bankruptcy."

(Kramer letter to Birch Bayh, January 28, 1971.)

WEST VIRGINIA

Number of voters affected

West Virginia has more than 90,000 voters who are subjeC't to different treatment ln State and Federal elections.

Costs and problems of dual-age voting

John D. Rockefeller, IV, the West Virginia Secretary of State, submitted a "rough estimate" of the costs of dual-age voting. He felt they will amount to about $20,000 for voting machines, on a one-time basis, and about $20,000 per year for separate paper ballots. But, he added that the "crux of the problem" will relate to "the confusion which wm be created at the polling place at election day." He estimates that there Will be seven different ballots to choose from in the next presidential primary. "The added responsibilities pa.ssed on to election officials (who receive little or no training 1n West Virginia) may create a jumble of confusion." Training classes for election officials have not been provided in the past because of the "prohibitive costs." (Letter to Birch Bayh, February 2, 1971)

Lowering the voting age by State action

The State constitution prohibits "minors" from voting in State and local elections. The legislature is presently considering the passage of a statute to redefine the term minor for the purposes of voting, so that 18 year olds would be entitled to vote in local elections. Any such attempt would face a likely court test. A State constitutional amendment "could not be presented to the voters" in time to alleviate these problems before the next presidential election. Rockefeller added his "whole--hearted support to the proposal for a federal constitutional amendment lowering the voting a,ge to eighteen:” (Rockefeller Letter to Birch Bayh, February 2, 1971)

WISCONSIN

Number of voters affected

The Supreme Court's decision resulted in the enfranchisement of an additional 208,000 voters for Federal elections in the State of Wisconsin. (Milwaukee Journal, December 21, 1970)

Costs and problems of dual-age voting

The Secretary of State, Robert C. Zimmerman could not furnish definite information as to costs until the legislature decided what to do about the problem.

Lowering the voting age by State action

The legislature has convened a.nd Zimmerman reports that, according to his understanding, legislation to start the ‘process of reducing the voting age to 18 in all elections will be introduced in this session. The Wisconsin Constitution requires any proposed amendment to be voted on by the electora.te at the next general election-which is scheduled for November 1972. (Letter to Birch Bayh, January 18, 1971) Therefore, Wisconsin will be forced to deal separately with those under 21 in the next general election in the absence of Congressional passage and ratification by the States of an amendment to the Federal Constitution.

WYOMING

Number of voters affected

Nearly 20,000 Wyoming citizens became partially enfranchised a.s a result of the supreme Court's recent decision.

Costs and problems of dual-age voting

Thyra Thomson, the Wyoming Secretary of State, estimated "that the dual voting procedure Will raise the cost of elections in Wyoming by 25% and will greatly slow up voting, tabulating and reporting of election results ... Perhaps the greatest complication Will be in accurately ascertaining the total board . votes cast in any precinct and voting district for any election.” (Letter to Birch Bayh, January 14, 1971)

Lowering the voting age by State action

Thomson also said that because the State constitution establishes literacy, age, and residence tests, it would be impossible to lower the voting age in time for the Federal election in 1972. If the present State legislature adopts a proposed constitutional amendment, as Thomson thinks it probably will, the amendment would be voted on by the Wyoming electorate in 1972 and would apply to the next general election-in 1974. (Letter to Birch Bayh, January 14, 1971)

(From the N.Y. Times, Jan. 24,1971)

BOYS AND GIRLS ARE Now MATURING EARLlER

(By Walter Sullivan)

From surveys involving thousands of girls, four generations of Harvard boys, records of the choir of Johann Sebastian Bach and numerous other studies, it has been concluded by researchers on human growth that the rate at which boys a.nd girls mature has been increasing steadily.

Not only are sexual and physical maturity coming earlier, but some researchers have also found a parallel acceleration in mental development, a phenomenon, they point out, that could have Wide social and legal implications if confirmed.

Thousands of statutes 1n this country and abroad provide, for example, that until a person is "of age" he or she is subject to parental control and forbidden to vote, buy liquor, serve on juries or hold certain jobs. ·

However, the evidence for earlier mental maturity is not nearly as clear-cut or dramatic as that for earlier physical maturity, especially as it has been observed in menarche (pronounced "men-AR-kee") -the first appearance of menstruation in girls.

Evidence from many parts of the world shows that the average age of menarche has dropped by at least two years and perhaps by as many as five years.

In the Seventeenth century, according to Quarinonius, a contemporary author, rural girls in Austria rarely reached menarche "before their 17th, 18th or even 20th year." In 1820 working class girls in Manchester, England, did so, on the average, at 15.7 years.

In 1934, a study of 250 girls in a New York Hebrew orphan asylum showed an average age of 13.53 years. The most recent surveys, including one of 6,217 student nurses show averages in many parts of the world at about midway between 12 and 13 years.

However, some researchers believe the drop in the age of menarche may be leveling off i n the more affluent populations. Dr. Alan E. Treloar of the National Institute of Child Health and Human Development, who has been studying some 1,500 Minnesota women and their daughters, even thinks the trend has reversed.

He says he has "conclusive proof" that, within the last decade, the average age of menarche in this group has risen slightly. If so, this could mean either that, contrary to the general belief, some factor other than nutrition is at work, or that the nutritional value of some American diets has recently declined.

In this connection, one study by Dr. Isabelle Valadlan at Harvard University has led her to suspect that the diet of soft drinks and candy bars favored by some girls before puberty leads to poor reproductive success later on. She has followed up on girls whose early nutritional histories were recorded by Dr. Harold C. Stuart of Harvard.

Those given "low marks" on their childhood diet proved to have a greater number of unsuccessful pregnancies than those who had ranked high on the nutritional score­

VOICE CHANGE IS EARLIER

Earlier puberty in both boys and girls has been documented in a Wide variety of ways. For example, s. F. Daw of Oxford University has examined the 18th Century records of Bach's boys' choir in Leipzig. The boys ceased singing soprano because 0! voice change at an average age of 18.

By contrast, a study of London schoolboys 1n 1959 showed the average age of voice change at 13.3 years.

Of particular interest in Bach's choir, was a sudden rise in the age of voice change during the seventeen-forties, when living standards in and around Leipzig were debased by the War of the Austrian Succession.

A similar effect was recorded in Moscow dUring the wartime stresses of the nineteenforties, when the average height of 13-yearold boys dropped roughly an inch.

Such hints of a strong nutritional effect run through many of the recent reports. Furthermore, the trend toward earlier puberty seems in all cases to be closely associated with the striking acceleration of childhOOd growth during the last century or more.

Thus, according to Dr. James M. Tanner at the University of London's Institute of Child Health, not only does the growth spurt come earlier in life but growing also stops earlier. At the turn of the century, he says, men stopped growing at about 26 years of a.ge. Now, according to a study of French students, there is little, if any growth, after 17 or 18.

UNIFORM INCREASE IN HEIGHT

A study distributed a few days ago by the National Center for Health Statistics of the United States Public Health Service reports a rather uniform increase in the average height of 10-yea.r-old American boys from 1875 to 1965. It amounted to roughly a half-inch per decade.

Over the last 90 years, the report says, the rise in average weight, for those in the 6-to-11 age bracket, has been 15 to 30 per cent. Much of this is related to early maturation.

"Thus," says the report, "a boy who was 10 years old in 1875 might have been only about 50 percent of the way through his growth period, while a 10-year-old boy of the mid-nineteen-sixties might be 60 to 65 percent mature."

While boys and girls of today, when they reach fUll adulthood, are somewhat taller than their grandparents , the margin is far less than that during their growth period. Dr. Tanner is one of those who argue that intelligence matures earlier in those whose growth is accelerated. In the Eugenics Review he has reported a correlation between increased stature and higher mental test scores.

It is also pointed out by other researchers that, while the 18-year-old of today has not had as much experience of life as someone who is 21, he or she has experienced more of physical maturity than the 18- year-old of past generations.

One of the puzzling effects observed in a number of studies is that on the average city residents mature sexually before rural inhabitants . This was observed by Quarinonius in 1610: "The townsfolk have usually borne several children, before the peasant girls have yet menstruated."

"The cause," he added, "seems to be that the inhabitants of the town consume more fat food and drink ... "

A Polish study, published last year, compared to 13.77 for nonagricultural girls.

Dr. Tanner, reached by telephone in London, agreed that earlier menstruation in city girls arises from better nutrition. However, he also suspects that genetic changes may play a role because of what could be called "the bicycle effect."

Until a century ago, inbreeding was typical of rural areas throughout the world. Then the introduction of mass-produced bicycles enabled young men to look further afield for their brides. The result, according to this hypothesis, was wider dissemination of the genes for tallness.

Since such genes tend to be dominant, when a tall person marries a short one the off-spring are more likely to be tall. However, Dr. Tanner and others believe this could account for only a. small part of the growth changes of the last century.

Other factors that might lead to earlier menarche have been explored. The classic view that it occurs earlier in hot, humid climates has been discredited. This was noted in two review articles by Dr. Leonora Zacharias of Massachusetts General Hospital and Dr. Richard J. Wurtma.n of the Massachusetts Institute of Technology, one of which was coauthored by Dr. Martin Scha.tzo:tr. The mean age of menarche for girls in Nigeria has been found to be 14.22 years. For Alaskan Eskimos it is 14 . 42 years. Dr. Tanner reports that Chinese girls in Hong Kong and Cuban girls of predominantly Negro stock experience menarche as early as European girls on the highest living standard. If the Cuban and Chinese girls were better fed, he believes, they would mature even earlier. By and large, however, racial differences seem so slight that they are submerged by the effects of varying living standards. Nor do psychological influences, such as early association with boys, seem important, according to Dr. Tanner. Those in coeducational schools do not reach menarche any sooner than those in girls' schools.

While some geographical variations have been observed, as noted by Dr. Zacharias and her colleagues, they can be explained in terms of younger maturation for city dwellers. Thus girls in the northeastern states reach menarche on the average about two months earlier than the national average.

BLINDNESS AND ALTITUDE

However, two effects are more marked: blindness (which leads to early menarche) and altitude (which delays it). Dr. Wurtman told a few days ago of a. study of 338 blind girls showing that on the average the blind girls reached menarche a half year earlier than others. The effect was strongest in those completely unable to distinguish light.

It is known that light stimulation affects the hormonal system of the body, but how this might speed up menarche is a mystery. The altitude effect was described last week by Dr. Rose E. Frisch of the Harvard Center for Population Studies. lt was noted in comparing figures for growth and date of menarche, obtained between 1930 and 1950 by the Child Research Center in Denver, which is 5,300 feet above sea level, and similar records from the Guidance Council in Berkeley, Calif., which is at sea level.

In both cases the girls were defined as "upper middle class" and well-nourished. The average weight of the Denver girls at birth was 7 pounds and the mean a.ge of menarche was 13.1 years. The california girls average 7.5 pounds at birth and reached menarche at a. mean age of 12.8 years.

The low birth weight and slow growth rate of the Colorado girls was attributed to the shortage of oxygen at high altitude. The Denver girls lagged in weight throughout their development, but when they finally reached menarche their average weight was roughly the same as that of girls reaching this stage at sea level.

This and other finds have led Dr. Frisch to believe that menarche is initiated in any individual, when the body reaches a critical weight. The growth spurt that precedes puberty begins, she has found, when the weight, averaged for any age group, reaches some 68 pounds. Menarche itself occurs at a mean weight of 106 pounds.

This effect seems to occur without regard to age or height. It could explain why early body growth has led to earlier puberty.

Dr. Frisch says a particularly dramatic effect of altitude on menarche has been found in the high Andes of Peru by Jean McClung of the Harvard Medical School. Menarche is reportedly so delayed there that it is difficult, if not impossible, to find a girl who has borne children before the age of 18.

There is considerable evidence that the increase in stature of well-nourished Americans has ceased. Dr. Albert Damon of Harvard has studied families in which four successive generations have sent sons to that university. This was done to minimize the effects of genetics or economic status in a more random sampling.

The oldest generation, born about 1858, produced sons that were, on the average, a little more than an inch taller than their fathers. But the fourth generation, born about 1941, showed no increase in height.

A similar finding has been reported by Dr. Harry Bakwin of New York University. He has found that the height of boys entering Harvard from private schools in 1958-59 had not increased over those from such schools 1n the nineteen-thirties. Nor had that of girls entering Wellesley from either public or private schools.

However, the height of boys entering Harvard from public schools increased 1.5 inches during that period, which he attributes to improved living standards in the lower socioeconomic groups.

Dr. Damon has also studied trends in menarche by comparing the date of that event as recalled by 66 women attending a prenatal clinic at Boston Lying-In Hospital with the time recorded for their 78 daughters. The average age for the mothers was 14.38; that for their daughters was 12.88.

A study is now in preparation at Harvard that will compare the ages of menarche in mothers and daughters who have attended Radcliffe, Wellesley, Mount Holyoke and Smith Colleges. This may indicate whether the century-long drop in that age has leveled off or even risen slightly in those of the upper socio-economic category.

It is obvious that the age of menarche has not been dropping throughout history. Writers of the Hippocratic school in ancient Greece refer to about 14. Dr. Frank Falkner at the Fels Research Institute for the Study of Human Development in Yellow Springs, Ohio, believes the age may vary cyclically for reasons unknown.

If people mature earlier, does this mean earlier initiation of the aging process and a shorter life span? In recent years the earlier increase in life span has leveled off, despite medical advances. Could this be because of the earlier maturation?

Specialists in human development say such an effect would be difficult to uncover. They also note that menopause in women is occurring somewhat later than before, indicating an opposite effect.

In the Fourth Century B.C., Aristotle wrote: "The menses cease in most women around the fortieth year." Furthermore, he said, they never occur after 50.

Today, menopause tends to occur at about 50, but trends are difficult to detect because of the widespread use of hormone-laden pills for birth control and to mitigate the effects of menopause.

The chief mystery, however, is the nature of the process that initiates puberty. "Why," said one researcher a few days ago, "does it · happen at about 12, and not at 2 or 40?" No one knows.

MINIMUM VOTING AGE BY COUNTRY-AND APPROXIMATE PERCENTAGE OF ELIGIBLE POPULATION VOTING IN NATIONAL ELECTIONS

Country Age Percent Afghanistan ________ _ ________________ _ Albania ____ __ _______________________ _ 21 NA 18 99 Algeria ____ ------------- ______ _ _ _ _ _ _ _ 21 NA Andorra ______________________ _ ___ • __

125 NA Argentina _ ________________ ---------- - 18 87 Australia ___________________________ _ Austria _ _ _______________ • ___________ _ 21 95 19 90 Barbados.- - --- _________ ------ ______ _ 18 70-80 Belgium __ ·----- ____ -------- - -------_ 21 (2) Bolivia _____ ------- ____ _ ____ _ _______ • 21 NA Botswana __ _ - ----- __________________ _ 21 54 BraziL _____________________________ _ Bulgaria ____________________________ _ 18 70

18 NA Burma ____ ------ ___________________ _ 18 NA Cambodia :_ _________________ ---- ____ _ 20 NA Cameroon _____________ ----·-------.-- 21 97 Canada _ _ __ _____________ -- ____ • _____ _ 18 75 Central African Repul:olic ______________ _ 21 NA 18 85 g~~~-n Chile _ __ __ _ __ _______________ ~ ~ = == = = = = == == = = ~ = ____ = = = == ----- === == ___ = = _ 21 21 30-40 86 China (Communist) ____ ------·----- __ _ 18 NA China (Nationalist) _______ ------------- 20 70 Colombia ___ __ ____ -- __ ---- _ _____ ----- 21 65 Congo (Brazzaville) ____ --------------- 18 NA Congo (Kinshasa) __ ---------------- __ _ 18 NA Costa Rica ______ --------------------- 2n 82 Cuba _ _ _____ - _-_------.-------------- 21 NA 21 75-80 g~~~~~siovakia~: == == =: = === == ====== ::: 21 98 Dahomey _____ --------------·-------- 21 NA Denmark _____________ --- __ ---------- 21 89 Dominican Republic ____ -- - ----- - - - --- - 18 NA Ecuador ___ __ _ ------ _______ ---------- 18 NA EI Salvador. ___ ---------------------_ 18 NA Equatorial Guinea _____________________ • 18 NA Ethiopia ______________ --------------- 21 NA Finland ______________ : __ -- ________ - -- 20 ss

Country Age Percent France _________ --------------------- 21 Gabon ______ - ----------------- ______ _ 21 70 Germany (East) _____ _________________ _ 18 NA Germany (West)_- ------- _________ _ --- 18 Ghana _ _ __________________________ - __ 21 NA Greece ____ __ _______________________ _ 21 75-83 18 NA g~r~:~a~~= = = = = = = = == = = == = = = ~ = = = == : : = = 21 99 Guyana ________ _____ _ _______ --- ___ - __ 21 88-92 HaitL _ ______________ _ - ___ ----------- 21 NA Honduras _____ _ ______ _ --- ____ -- _____ _ 18 80 Hungary _ _____ ___ ___ ______________ --_ 18 100 Iceland _ _ -- ____ _ -- ------------------- 20 85-90 India ____ ___ __ - _________ --- _______ - __ 21 NA Indonesia _____ - _______ ---_------ ----- 17 3 55 I ran __ _ ______ ____ ______ __ __ ___ ------- 18 NA 1 reland . ______ __ - ___ - ---------------- 21 77 1 sraeL _ _ ____ ------------------------ 18 82 Italy ____ __ ___ ----------------------- • 21 92 Ivory Coast_ _______ __ ---------------- 21 NA Jamaica ___ __ --_-- ____ --------------- 21 65 - 72 Japan _______ ------------------------ 20 65-75 Jordan _________ --- ------------------ 18 70-72 Kenya ______ ------------------------- 21 NA Korea (South)_--_-------------------- 20 79 Kuwait_ _ _____ ----------------------- 18 NA Laos ______ ---------------- _________ _ 18 NA Lebanon ________________________ -- __ _ 21 67 Lesotho _________________ ------ ____ --- 21 70-85 Liberia ________ ---------------------- 21 NA Libya _______ ------------------------- 21 NA Liechtenstein __________ -- ___ -----_---- 21 NA Luxembourg ____ ---------_----------- 21 59 Malagasy Republic _______________ ----- 21 NA Malawi_ ______ -------------------- - -_ 21 100 Malaysia ________ --------------------- 21 NA Maldives ____________ ----------------- 21 80 MaiL-------------------------------- 21 NA Malta ______ ------------------------- 21 77 Mauritania ____ -- ________ ------------- 21 50+ Mauritius _______________ --_---------- 21 80 Mexico _______ ----------------------- 18 NA Monaco ____ -----_-------------------- 21 NA Mongolian People's Republic __________ _ 18 99 Morocco ____________________ --------- 18 80 NepaL ____ -------------------------- 21 NA Netherlands ____________ -- ___ --------- 21 69 New Zealand __________________ ------- 20 84 Nicaragua ____________ .--_------------ 18 70 21 95 ~:::~fa~============================= 21 NA Norway------------------------------ 20 80+ Pakistan _____ • __ • _____ --------- _____ _ 21 NA Panama. ___________________________ _ 60 Paraguay ___________________ • _______ _ 18 NA Peru. ______ ---_-_------------------- 21 20 Philippines __________ ---- ______ ------- 21 NA Polan d._. ________________ ._--------- 18 90+ PortugaL _. ___ --._._-- __ ---_--------- 21 67 Romania __________ ----- _______ -- __ --- 18 100 Rwanda ____ • ___ ••• ____ • ___ .--------- 18 NA San Marino ___________ ----------. ___ • 21 NA ACTION Legislation State Age Year introduced 1943 Yes ____________________________ Alabama_____________ 18 18 1963 Yes ______ _ 20 1967 Yes__________________ Alaska _____ --------- 19 Arizona______________ 18 18 ~~~~ 1962 ~ Yes :~=== ___ _ _ __