Date: 1/14/26
To: Charter Reform Commission
From: Charter Reform Commission Staff
Subject: City Council Expansion
Introduction
The Charter Reform Commission (Commission) and the Government Structure
Committee (Committee) are considering charter reform proposals related to council
expansion. At the November 19th Government Structure Committee meeting, the
Committee voted to advance reforms related to single member council expansion of 23,
25 and 31 members, 9 multi member districts, and 20 single member districts with five
regional seats. On January 7th, the full Commission voted in favor of council expansion
and directed staff to continue research on potential scenarios for council expansion.
Background
In October of 2022 a motion (CF 22-1196) was introduced to consider a charter
amendment relating to expanding the council based on population size. The Legislative
Analysts Office produced reports relating to council expansion in response to the Ad
Hoc Committee’s requests. The CLA reports provided analysis on expanding the council
to a range between 21 and 31 members1
.
CLA Council Expansion Reports
In these reports, the CLA analyzed operational and incidental costs associated with
increasing the number of council offices2
. Councilmember salary is designated within the
charter however the budget for each council office is set annually by the Mayor and City
Council. The report highlighted two ways that council budgets could be allocated with
the change. The first being that the funding per council office stays the same and the
overall council office budget would increase based on the size of the expanded council.
The second being that the overall total council office budget stays the same and is
divided proportionally based on the total number of councilmembers. A chart detailing
this scenario from the September 15th report is included below. Additionally the CLA
report highlighted preliminary departmental impacts related to council expansion.
1CLA Council Expansion Report September 15, 2023, Pg. 3
2 CLA Council Expansion Report September 15, 2023, Pg. 3-5
1
3
The CLA’s office conducted limited surveying of city departments on the impacts of
council expansion and found that expansion would lead to an increase in requests from
council offices for services, motions introduced and report back requests, and reduce
efficiencies for projects since projects would become spread across multiple council
districts4
. This would impact public works services which would not be able to
automatically adjust services proportionally to the number of council districts such as
the amount of street repaving per district annually. This could raise equity
considerations as there becomes less flexibility with distributing these services across
the district. The reports highlighted potential legislative impacts of council expansion
including higher thresholds to pass legislation, quorum, and mayoral veto5
. More council
members means more votes to wrangle for more actions.
The CLA’s report also conducted an analysis of the mechanism for expanding the
Council either via fixed population growth or a specific number. For Council expansion
via fixed population growth, the number of City Council districts would be tied to a
specific population variable, allowing flexibility of council size. However, the report noted
that there would be significant challenges to council expansion via this method in the
event of large population fluctuations6
. Alternatively, council expansion could be done by
recommending a specific number. Past efforts to expand the council have used this
approach. The Ad Hoc Governance Reform Committee indicated a preference towards
council expansion via a specific number.
3 Table obtained from CLA Council Expansion Report September 15, 2023 Pg. 5
4 CLA Council Expansion Report September 15, 2023, Pg. 6
5 CLA Council Expansion Report March 10, 2023, Pg. 11
6 CLA Council Expansion Report March 10, 2023, Pg. 8
2
Council Expansion via fixed population growth
There are very few cities that have charter provisions dictating Council expansion via
fixed population growth. The City of Houston had a charter provision that required the
creation of an additional two council districts should the City Council determine the
population of the City is 2.1 million or more. Houston reached this threshold in 2010 and
the City Council was expanded in 2011
7
. Despite census counts, there was contention
in determining when exactly the City had reached the population threshold and
residences which lied on City boundaries8
. Ultimately it was concluded the City had
reached 2.1 million residents and Houston expanded their City Council from 14 to 16
members.
Single Member District Council Expansion
The Government Structure Committee voted to consider proposals of single member
expansion of 23, 25 and 31 members. At the January 7th Commission meeting, the
Commission passed a motion to include council expansion on the final report that will be
transmitted to City Council. The commission directed staff to continue analysis of single
member district models.
The Government Structure Staff Report 2 includes analysis on demographic groups that
could potentially be grouped together based on certain council district sizes. This
preliminary analysis was done using https://davesredistricting.org to demonstrate the
relative size of council districts. Additional research from presenters provided further
analysis on potential demographic makeups relative to different council sizes and
potential mapping examples9
. For example, OUR LA has supported council expansion
between 23 and 31 stating that it would allow for plurality districts for Black and Asian
Angelenos and three additional seats with a Latino majority. Additionally Cal RCV
presented maps for multi member districts. A professional demographer would be
required to present maps with a more definitive representation of districts.
7 https://abc13.com/archive/8003740/
8 Texas CensusCountQuestionResolutionProgram.pdf
9 LA City Council Expansion: Statistical and Algorithmic Insights Presentation October 3
Multi Member District Council Expansion
One proposal for council expansion is multi member council districts. This model has
not been previously used in Los Angeles and is largely untested in California. The City
of Portland Oregon recently adopted multi member districts. Starting in 2024, Portland
voters used proportional rank choice voting to elect three members in four geographic
districts. A more commonly used structure is a mixture of single members and at large
or regional council representatives. In California the City of Oakland has seven single
member districts and one at-large councilmember who is elected by the entire city10
.
Other major cities including Houston, Philadelphia, and Jacksonville have a mixture of
single member and at-large or “regional” seats11
.
The California Voting Rights Act has struck down at-large districts if it would impair the
ability of a protected class to elect candidates of its choice or otherwise influence the
outcome of an election12
. Council expansion via multi member districts would require
consideration regarding compliance with the California Voting Rights Act. While there is
no precedent legal issue, multi member districts are largely untested in California and it
is unknown if there would be legal challenges if adopted.
Operational Impacts of Council Expansion
Per analysis done by the CLA, council expansion may cause logistical challenges with
passing items due to a higher voting threshold. The CLA report recommended
considering voting thresholds to maintain balance of authority and to address logistical
issues that may arise due to expansion13
. The following charter sections within Article II
of the Charter lay out council actions which require two-thirds or three-fourths of the
council. Expanding the council could impact the function of these actions.
Section 242. Conduct of Business
Charter Section 242(b) specifies that each councilmember will be assigned to at least
one committee. Expansion would result in changes to the makeup and structure of
committees. The number of committees is designated by ordinance.
Section 250. Procedure for Adoption of Ordinances
(a) Introduction and Passage requires that ordinances shall not be passed on
the day it is introduced unless approved by unanimous vote of all Council
members present, provided that there is not less than three, fourths of all
members present.
10 https://www.oaklandca.gov/Government/City-Council-Leadership
11 Francisco Jasso, Pat Brown, Timothy Krebs, Hybrid City Council Election Systems
12 https://www.aclusocal.org/publications/securing-fair-representation-california/
13 Council File: 21-1472 CLA Council Expansion Report March 10, 2023, Pg. 11 4
(c) Override by Council says that if the Council wishes to pass an ordinance
over the veto of the Mayor it must take a two thirds vote of the Council, or three
fourths vote where two thirds vote or more was required for passage of the
original ordinance.
Section 244. Quorum and Vote Necessary to Take Action
States two-thirds of the members of the Council shall constitute a quorum for the
transaction of business.
Section 245. City Council Veto of Board Actions
Council may act with a two thirds vote to review the actions of any board or commission
not exempt via section (d).
(a) Action by Council states that Council may veto an action with a two thirds
vote within 21 days of voting
Section 250. Procedure for Adoption of Ordinances
(a) Introduction and Passage states that no ordinance shall be passed finally
on the day it is introduced unless approved by a unanimous vote of at least three
fourths of members present.
(c) Override by Council “The City Clerk shall present the ordinance, with the
objections of the Mayor, at the first Council meeting after the Clerk has received
the Mayor’s objections. The Council may pass any ordinance over the veto of the
Mayor within 45 days after the objections of the Mayor are presented to the
Council, by two-thirds vote of the Council or by three-fourths vote where
two-thirds vote or more was required for passage of the original ordinance.”
Section 253. Urgency Ordinance
Council may pass an urgency ordinance that takes effect immediately upon publication.
This must be passed by a three fourths vote of the council.
Section 254. Legislation Pending Before State and Federal Government The
council may establish an official position of the city in regards to legislation proposed
or pending before the state or federal government. This is subject to veto by the
Mayor but the Council can override the veto with a two thirds vote.
