By allowing all voters to participate in a single primary, regardless of party affiliation, a nonpartisan open primary could further improve voter participation and produce a more representative candidate pool.
By NPR Washington Desk
By Joshua Peters
North Carolina's primary election system has undergone significant changes over the years, reflecting broader shifts in political dynamics and evolving attitudes towards voter participation and candidate selection. From a historically closed primary process, North Carolina moved toward a semi-open primary system. This article explores the history of North Carolina’s primary structure, the rationale behind these changes, and argues that moving to a fully nonpartisan open primary could further enhance voter participation and improve the quality of candidates.
The Closed Primary Era
For much of its history, North Carolina operated under a closed primary system, which restricted voting in party primaries to registered party members. This structure was deeply rooted in the state’s political landscape, reflecting a time when party loyalty and control were paramount. Under the closed primary system, only registered Democrats could vote in Democratic primaries, and only registered Republicans could participate in Republican primaries. This system was designed to maintain party control over candidate selection, ensuring that only loyal party members influenced the choice of their party’s nominees, thereby minimizing external interference from voters who were not fully committed to the party's platform and values.
Throughout the mid-20th century, North Carolina was largely dominated by the Democratic Party, a trend that was consistent across much of the South due to the historical legacy of the Civil War, Reconstruction, and the alignment of Southern Democrats against the Republican-led federal government. In the 1940s and 1950s, the Democratic Party held a near-monopoly on political power in the state. For instance, in the 1950 general election, Democrats controlled over 90% of the seats in the state legislature, and the Republican Party had a negligible presence. (North Carolina Digital Collection)
During this period, the real political contests often took place within the Democratic primaries rather than in the general elections. Key political figures such as Governor Luther Hodges (1954-1961), Governor Terry Sanford (1961-1965), and Senator Sam Ervin, who played a significant role in the Watergate hearings, all rose to prominence through the Democratic primary system. The closed primary process ensured that these influential politicians were chosen by the party faithful, reinforcing the Democratic Party’s grip on power.
Data from the mid-20th century shows that voter registration was overwhelmingly partisan. In 1950, the majority of registered voters in North Carolina were Democrats, reflecting the one-party dominance of the era. Republicans were a clear minority of registered voters, and unaffiliated voters were almost nonexistent from a statistical perspective. This meant that the closed primary system effectively locked out any voter who did not wish to affiliate with a party, limiting their influence on the electoral process.
The overwhelming dominance of party-affiliated voters made the closed primary system a logical fit for the time, as it reinforced the power of party structures and limited cross-party interference. However, this system also entrenched the existing power dynamics, making it difficult for new voices or independent candidates to emerge.
Several key figures and events contributed to the gradual erosion of the closed primary system's dominance in North Carolina. In the 1960s and 1970s, significant demographic changes and shifts in political attitudes began to reshape the state's political landscape. The civil rights movement, the national realignment of political parties around issues of race and civil rights, and the increasing national prominence of the Republican Party under leaders like Richard Nixon and Ronald Reagan all played a role in reshaping North Carolina politics.
One pivotal figure in this transition was Jesse Helms, a conservative Democrat-turned-Republican who was elected to the U.S. Senate in 1972. Helms’ victory marked a significant shift, as it demonstrated that Republicans could win major statewide offices in North Carolina. His success was partly due to his appeal to disaffected conservative Democrats, who began to realign with the Republican Party during this period.
By the 1980s, Republican registration in the state began to increase, although it still lagged far behind the Democrats. By 1988, Democratic registration had dropped to around 64%, while Republican registration had risen to nearly 31%. Unaffiliated voters still represented a small fraction of the electorate, but their numbers were slowly growing, reaching about 5% by the early 1990s. (North Carolina Digital Collection)
The rise of the Republican Party, combined with broader national trends, led to a more competitive two-party system in North Carolina by the 1990s. This newfound competitiveness highlighted the limitations of the closed primary approach. As the electorate became more diverse and less strictly partisan, the closed primary system increasingly seemed out of step with the evolving political landscape.
The Shift to a Semi-Open Primary System
North Carolina’s decision to adopt a semi-open primary system was influenced by mounting public pressure for electoral reform, particularly from a growing segment of the population that identified as unaffiliated. In the early 1990s, unaffiliated voters were relatively small in number compared to those registered with the major parties. Despite being a small minority, unaffiliated voters were increasingly vocal about their exclusion from the candidate selection process, and their growing numbers signaled a broader shift in political engagement.
The semi-open primary system allowed unaffiliated voters to participate in either the Democratic or Republican primary without formally joining a party. This change gave unaffiliated voters a voice in the primaries, making the process more reflective of the broader electorate’s preferences. However, registered Democrats and Republicans were still required to vote in their respective party’s primaries, maintaining some level of party control over the nomination process. The shift to a semi-open system was seen as a compromise, balancing the interests of the traditional party structure with the growing demand for a more inclusive primary process. It allowed unaffiliated voters to engage in the primary elections without formally committing to a party, thus broadening voter access and participation, while still preserving a significant degree of control for the parties, as registered members were still bound to their party's primary.
Several key figures played critical roles in the push for more inclusive voting practices in North Carolina. Among them was Governor Jim Hunt, who served as governor from 1977 to 1985 and again from 1993 to 2001. Hunt was a proponent of modernizing the state's electoral system to better reflect its changing demographics and political attitudes. Under his leadership, North Carolina pursued various reforms aimed at increasing voter participation, including the move toward a semi-open primary system.
Another important figure was then-State Senator Marc Basnight, a prominent Democrat who served as President Pro Tempore of the North Carolina Senate from 1993 to 2011. Basnight was a key supporter of reforms designed to make the state’s elections more accessible, reflecting his commitment to a more inclusive electoral process that could engage a broader swath of North Carolina’s voters.
The introduction of the semi-open primary system coincided with notable shifts in voter registration patterns in North Carolina. By 2000, the proportion of unaffiliated voters had grown significantly, accounting for nearly 16% of the electorate, compared to just 8% a decade earlier. This growth reflected broader dissatisfaction with the increasingly polarized political landscape and a desire among many voters to remain independent of the two major parties.
By 2010, unaffiliated voters represented approximately 23% of registered voters, while Democratic and Republican registrations continued to fluctuate. Democrats made up about 45% of registered voters, while Republicans comprised around 32%. This increasing share of unaffiliated voters underscored the growing importance of more inclusive primary processes, as nearly one in four voters were now choosing not to affiliate with a major party.
While the semi-open primary system marked a step toward greater inclusivity, it still imposed restrictions that limited the full expression of voter preferences. Unaffiliated voters, while allowed to participate in the primary of their choice, could only vote in one party’s primary. This meant that they had to choose between the Democratic and Republican options, often leaving them feeling constrained if their preferred candidates were spread across both parties. Additionally, the requirement for registered party members to vote only in their party’s primary restricted their ability to support candidates from other parties. This limitation often led to lower turnout among those who felt disconnected from party politics or dissatisfied with the limited options presented within their own party.
Data from the early 2000s supports this view. Voter turnout in North Carolina primaries was consistently lower than in general elections, with primary participation rates hovering around 20-30% of eligible voters. Many potential voters were either unaware of their ability to participate in primaries or felt disengaged from the partisan nature of the process. For example, in the 2002 primaries, turnout was just 18%, highlighting a significant gap in voter engagement. While turnout for the 2024 primaries was a little over 24%, it remains significantly low and primarily influenced by partisans, despite unaffiliated voters representing the largest segment of the voter bloc at about 38%, with NC Democrats and Republicans at about 32% and 30%, respectively.
The semi-open primary system in North Carolina represented a significant evolution from the rigid closed primary structure that had previously dominated the state’s politics. It responded to the changing dynamics of voter registration and the increasing desire for more inclusive voting processes. However, the limitations of the semi-open approach have fueled ongoing debates about the need for further reforms, including the potential benefits of moving toward a fully nonpartisan open primary system.
The Case for a Nonpartisan Open Primary Structure
By allowing all voters to participate in a single primary, regardless of party affiliation, a nonpartisan open primary could further improve voter participation and produce a more representative candidate pool. To enhance both voter participation and candidate quality, North Carolina could consider moving to a fully nonpartisan open primary system. In this model, all candidates for a particular office, regardless of party affiliation, would compete in a single primary. All voters, regardless of their party registration, would have the opportunity to vote for any candidate. The top two candidates, regardless of party, would then advance to the general election.
One of the key benefits of this approach is increased voter participation. A nonpartisan open primary would allow all voters, including those who are unaffiliated or feel alienated by party politics, to participate fully in the primary process. This inclusivity can lead to higher voter turnout, as more citizens feel their voices matter in selecting candidates.
Additionally, reducing partisan polarization is another significant advantage. By allowing all voters to choose from the entire field of candidates, a nonpartisan primary could diminish extreme partisanship. Candidates would need to appeal to a broader electorate, including moderates and independents, rather than just the most ideologically committed members of their party. This could lead to the selection of candidates who are more centrist, pragmatic, and capable of bipartisan cooperation.
Improved candidate quality is also a potential benefit. In a nonpartisan open primary, the focus would shift from catering to party bases to appealing to the entire electorate. This broader appeal would encourage the emergence of candidates who are more representative of the general population's views and values, potentially improving the overall quality of those who advance to the general election.
While the benefits of a nonpartisan open primary are compelling, the transition would not be without challenges. Major political parties may resist changes that dilute their control over candidate selection. Additionally, voters would need education on the new system to fully understand their choices. Critics of nonpartisan open primaries also argue that they could weaken party identity and undermine the role of political parties in organizing and advocating for specific policy agendas. However, the potential benefits of increased voter engagement and more representative candidate selection provide a strong counterargument.
North Carolina’s move from a closed to a semi-open primary system marked an important step toward more inclusive electoral processes. However, to further enhance voter participation and improve the quality of elected officials, adopting a nonpartisan open primary structure presents a compelling opportunity. By allowing all voters to participate equally in the selection of candidates, North Carolina can create a more representative and less polarized political landscape, ultimately strengthening its democratic process.