A decade after California let some teens pre-register to vote, few are signing up

Californians can’t cast a ballot until they turn 18, but for the past decade 16- and 17-year-olds have been able to pre-register to vote and be automatically added to the rolls on their 18th birthday.

“Teens get to get a head start on the access to voting,” said Daphné Rottenberg, a 17-year-old Venice High School student who pre-registered last year. “I think that it's a very important thing for younger people to learn about their rights, their voting rights and ultimately their ability to decide what policies and politicians become their leaders.”

Nearly 1.5 million students have pre-registered since the program started in 2016 and more than 1.1 million became eligible voters, according to a spokesperson for the California Secretary of State.

However, LAist reviewed state data and found that participation in the program cratered during the COVID-19 pandemic and has yet to recover. A nonprofit that promotes youth voting found California’s pre-registration totals represent less than 12% of eligible 16- and 17-year-olds.

“California is not doing a good job implementing pre-registration,” said Laura Brill, who lives in Los Angeles and is the founder and CEO of The Civics Center. “It's a very nice law that lets you do it, but it has not been widely adopted by high schools.”

The unrealized promise of the program is to jumpstart the civic lives of young voters, who’ve been historically underrepresented at the polls.

“The process of signing up creates conversations, dialogue that can educate young people and hopefully encourage them [to vote],” said Mindy Romero, director of the Center for Inclusive Democracy at USC. “If they vote at 18, they're much more likely to continue to vote through the life course. But you've got to get them when they're young.”

Do young people vote?

Rottenberg, who describes herself as “pretty involved in the political scene,” didn’t know about pre-registration until she connected with The Civics Project through a teacher to hold a voter registration drive at her school.

Young people vote, but at lower rates than older voters. In the 2024 presidential election, 43% of Californians 18-24 cast a ballot compared to 62% of overall turnout. Romero said this deficit has been consistent over time.

“Every youth vote is valuable and important, but the numbers should be higher,” Romero said. “It's really on our society and we shouldn't be blaming young people for that.”

For example, Romero said campaigns typically don’t prioritize youth outreach and engagement, which feeds into the narrative that candidates don’t represent young people’s interests.

“I think young people really struggle with particularly coming of age in this polarized environment,” Romero said. “They feel really disconnected from the political process. They care about the world and issues, but they don't see necessarily how voting is an actionable step on what they care about.”

Another factor is the decline of civics education at many schools.

“We somewhere along the line disconnected the notion of high schools and K through 12 schools as like, bedrocks of teaching democracy and democratic practice,” said Joel Snyder, a social studies teacher at a charter school in the Florence-Firestone neighborhood. “I think a lot of that nationally is a real fear of folks looking or feeling like they're being partisan.”

Even Snyder, who's been a teacher for more than two decades, paused during our interview to consider whether to share that as part of his class, students register to vote.

When did pre-registration start?

California is one of 19 states that allow teenagers to pre-register to vote at 16 or younger. The majority of states allow people to register if they will be 18 at the time of the election.

California 16-year-olds became eligible for pre-registration in fall 2016.

Then-Santa Barbara Senator Hannah-Beth Jackson cited the state’s low voter registration rates to promote the legislation that lowered the pre-registration age.

“Studies have shown that the earlier people are introduced to voting, the more

likely they are to become life-long participants in democracy,” Jackson wrote.

Research shows that pre-registration is associated with higher youth voter turnout.

Here’s how pre-registration works in California:

Eligible 16- and 17-year-olds must be:

• A U.S. Citizen and California resident 
• Not currently serving a state and federal prison term for a felony conviction or found mentally incompetent to vote by a court

Then, eligible teens can register

• Online— this option requires a California-issued driver’s license or identification card number. 
• By mailing or turning in a paper registration form to your county elections office— this option does not require a California-issued driver’s license or identification card number  

In April 2018, then-Secretary of State Alex Padilla said the pre-registration of 100,000 teenagers was a “big milestone.”

The number of pre-registered teens peaked in January 2020 at 163,000 — then fell to a record low, about 113,000, in February 2021.

About 119,000 California 16- and 17-year-olds are pre-registered to vote as of April 3, per the most recent report from the California Secretary of State.

Romero hasn’t analyzed the program’s outcomes, but offered a “likely” set of factors contributing to the stagnating participation.

One is a lack of funding for outreach and education around pre-registration.

“You can't just offer it and then expect a high sign-up rate,” Romero said. “There needs to be conversations around why it's important, what the nuts and bolts of registration are, what the nuts and bolts are of voting so kids feel confident.”

Governor Gavin Newsom has twice vetoed legislation that would have required high schools to help register students to vote.

In the veto letter for AB 2724, a 2024 bill that would have required schools to provide students information about pre-registration before the end of their junior year, Newsom wrote he was concerned about creating another school mandate.

“Schools already have the ability to fulfill the requirements of this bill without creating a new mandate,” Newsom said.

The last two weeks of April and September each year are designated as “high school voter education weeks,” in California, but the responsibility is on individual districts, schools and teachers to follow through.

“Civics in schools is under-taught, right, and under-resourced, and teachers are burdened, they have lots of different competing requirements,” Romero said. “So you have to be really committed to wanna talk to young people about this.”

Brill, with The Civics Center, said there are other changes that could help make it easier for teens to pre-register, including removing the requirement to have a driver’s license to sign up online. About a third of teenagers nationwide have their driver’s license.

Her organization holds trainings and created a toolkit for students and educators to host voter registration drives at their schools. Brill said more than 100 are planned for this spring, including at Venice High School.

“It really bothers me when people think that they're not being heard and so they completely disengage,” said Sage Smith, who is organizing the drive with several other students, including Rottenberg. “Instead of tuning everything out, I, we are able to bring people in so that they actually get involved.”

Smith said more than 300 of her peers pre-registered to vote during last year’s drive, which targeted seniors.

“There's an idea that, you know, younger people are uninvolved, but when they're presented with the information, everyone cared, everyone was quick to sign up,” Smith said.