I 
119TH CONGRESS 
1ST SESSION H. R. 4125 
To establish the total number of Representatives at a number that provides 
that the average number of constituents represented by a Member from 
any State is equal to 500,000 and to apportion Representatives among 
the States accordingly, and for other purposes. 
IN THE HOUSE OF REPRESENTATIVES 
JUNE 25, 2025 
Mr. CASTEN introduced the following bill; which was referred to the Com-
mittee on the Judiciary, and in addition to the Committees on House Ad-
ministration, and Transportation and Infrastructure, for a period to be 
subsequently determined by the Speaker, in each case for consideration 
of such provisions as fall within the jurisdiction of the committee con-
cerned 
A BILL 
To establish the total number of Representatives at a number 
that provides that the average number of constituents 
represented by a Member from any State is equal to 
500,000 and to apportion Representatives among the 
States accordingly, and for other purposes. 
Be it enacted by the Senate and House of Representa-
tives of the United States of America in Congress assembled, 
SECTION 1. SHORT TITLE; FINDINGS. 
(a) SHORT TITLE.—This Act may be cited as the 
‘‘Equal Voices Act’’. 
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(b) FINDINGS.—Congress finds the following: 
(1) Our Nation’s founders intended the House 
of Representatives to be the chamber closest to the 
American people: ‘‘the People’s House’’. 
(2) The number of Representatives in Congress 
has been 435 since 1911 when the U.S. population 
was 92,228,531 (1910 U.S. Census). The U.S. pop-
ulation has grown to more than three times that size 
to 331,449,281 in 2020 (2020 U.S. Census) while 
the size of the House has remained the same. 
(3) Our electorate has changed significantly 
since the size of the House last grew in 1911. Prior 
to the passage of the 19th Amendment in 1920, the 
Civil Rights Act in 1957, and the Voting Rights Act 
in 1965, women and people of color faced barriers 
and in some cases, legal prohibitions, to voting. 
(4) When the cap on the size of the House was 
statutorily set in 1929, the average Member of the 
House represented approximately 280,000 people, 
compared to approximately 762,000 people in 2020. 
(5) Based on the 2020 Census, individuals in 
the State with the smallest population, Wyoming, 
had 1.3x more relative representation compared to 
the national average district size. 
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(6) Each Member of the House represents far 
more people on average than legislators in nearly all 
developed and developing democracies, and is an 
outlier among other member countries of the Orga-
nization for Economic Cooperation and Development 
(OECD), with nearly 3 times the citizen to rep-
resentative ratio as Japan, the country with next 
largest district size. 
(7) Representatives who serve fewer people are 
more likely to have contact with their constituents, 
receive higher marks for their constituent service, 
and better reflect the views of their districts. 
SEC. 2. ESTABLISHMENT OF NUMBER OF MEMBERS OF THE 
HOUSE OF REPRESENTATIVES. 
(a) METHOD FOR DETERMINATION OF NUMBER.— 
Section 22(a) of the Act entitled ‘‘An Act to provide for 
the fifteenth and subsequent decennial census and to pro-
vide for apportionment of Representatives in Congress’’, 
approved June 18, 1929 (2 U.S.C. 2a(a)), is amended— 
(1) by striking ‘‘(a) On the first day’’ and in-
serting ‘‘(a)(1) On the first day’’; 
(2) by striking ‘‘the then existing number of 
Representatives’’ and inserting ‘‘the number of Rep-
resentatives determined under paragraph (2)’’; and 
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(3) by adding at the end the following new 
paragraph: 
‘‘(2) The number of Representatives determined 
under this paragraph is, with respect to a regular decen-
nial census of the population of the United States, a num-
ber equal to— 
‘‘(A) the whole number of persons in all States 
(as shown in the statement under paragraph (1)); 
divided by 
‘‘(B) 500,000, 
rounded to the nearest whole odd number.’’. 
(b) CONFORMING AMENDMENT.—The first section 
and section 2 of the Act entitled ‘‘An Act For the appor-
tionment of Representatives in Congress among the sev-
eral States under the Thirteenth Census’’, approved Au-
gust 8, 1911 (2 U.S.C. 2 note), are repealed. 
(c) EFFECTIVE DATE.—The amendments made by 
this section shall apply with respect to the first regular 
decennial census conducted after the date of the enact-
ment of this Act and each subsequent decennial census. 
SEC. 3. OPTIONAL USE OF MULTI-MEMBER DISTRICTS. 
(a) OPTIONAL
USE
OF
MULTI-MEMBER
DIS-
TRICTS.— 
(1) IN GENERAL.—At its option, a State may 
establish a number of districts for the election of 
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Representatives in Congress in the State that is less 
than the number of Representatives to which the 
State is entitled, and may establish that Representa-
tives shall be elected only from districts so estab-
lished. 
(2) EQUAL
POPULATION
PER
REPRESENTA-
TIVE.—In establishing the number of districts under 
paragraph (1), the State shall ensure that districts 
shall each have equal population per Representative 
as nearly as practicable, in accordance with the Con-
stitution of the United States. 
(3) CONFORMING AMENDMENT.—The Act enti-
tled ‘‘An Act for the relief of Doctor Ricardo Vallejo 
Samala and to provide for congressional redis-
tricting’’, approved December 14, 1967 (2 U.S.C. 
2c), is amended by striking ‘‘In each State’’ and in-
serting ‘‘Except as provided in section 2(b) of the 
Equal Voices Act, in each State’’. 
(b) EFFECTIVE DATE.—This section and the amend-
ments made by this section shall apply with respect to the 
first regular decennial census conducted after the date of 
the enactment of this Act and each subsequent decennial 
census. 
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SEC. 4. OPTIONAL USE OF RANKED CHOICE VOTING BY 
STATES OPTING TO USE MULTI-MEMBER DIS-
TRICTS. 
(a) OPTIONAL USE OF RANKED CHOICE VOTING.— 
At its option, a State which establishes multi-Member dis-
tricts for the election of Representatives in Congress in 
the State under section 3 may carry out such elections 
in the State under ranked choice voting as described in 
subsection (c). 
(b) BALLOT DESIGN.— 
(1) IN GENERAL.—Each State shall ensure that 
the ballot used in an ranked choice voting election 
under this section meets each of the following re-
quirements: 
(A) The ballot shall allow voters to rank 
candidates in order of choice. 
(B) The number of candidates whom a 
voter may rank in the election, as determined 
under paragraph (2), shall be uniform for all 
voters in the election within the State. 
(C) The ballot shall include all qualified 
candidates for the election and (to the extent 
permitted under State law) options for voters to 
select write-in candidates. 
(D) The ballot shall include such instruc-
tions as the State considers necessary to enable 
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the voter to rank candidates and successfully 
cast the ballot under the system. 
(2) DETERMINATION
OF
NUMBER
OF
CAN-
DIDATES VOTER MAY RANK.—The number of can-
didates a voter may rank in a ranked choice voting 
election shall be determined as follows: 
(A) If feasible, the ballot shall permit vot-
ers to rank a number of candidates in the elec-
tion which is not fewer than the number of 
seats in the election plus 4. 
(B) If the number of candidates in the 
election is less than the number of ranking pro-
vided under subparagraph (A), the ballot shall 
permit voters to rank a number of candidates 
which is not fewer than the number of can-
didates in the election, including write-in can-
didates. 
(C) If it is not feasible for the ballot to 
permit voters to rank as many candidates as re-
quired under subparagraph (A) or (B), the 
State may limit the number of candidates who 
may be ranked for each election on the ballot 
to a maximum feasible number established by 
the State, except that such number may not be 
less than 5 for any election on the ballot. 
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(c) TABULATION.— 
(1) PROCESS FOR TABULATION.—In a ranked 
choice voting election under this section, each ballot 
cast in the election shall count at its current trans-
fer value for the highest-ranked active candidate on 
the ballot. Tabulation shall proceed as described in 
paragraphs (2), (3), and (4). 
(2) ELECTION OF CANDIDATES DURING TAB-
ULATION; SURPLUS-TRANSFER ROUND.—If any ac-
tive candidate has a number of votes greater than or 
equal to the election threshold, that candidate shall 
be designated as elected, and the surplus votes shall 
be transferred to other candidates as follows: 
(A) Unless paragraph (4) applies, each bal-
lot counting for an elected candidate shall be 
assigned a new transfer value by multiplying 
the ballot’s current transfer value by the sur-
plus fraction for the elected candidate, trun-
cated after 4 decimal places. 
(B) Each candidate elected under this 
paragraph shall be deemed to have a number of 
votes equal to the election threshold for the con-
test in all future rounds, each ballot counting 
towards the elected candidate shall be trans-
ferred at its new transfer value to its next- 
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ranked active candidate, and a new round shall 
begin. 
(C) If two or more candidates have a num-
ber of votes greater than the election threshold, 
the surpluses shall be distributed simulta-
neously in the same round. 
(3) ELIMINATION OF CANDIDATES DURING TAB-
ULATION; ELIMINATION ROUND.—Unless paragraph 
(2) or paragraph (4) applies, the active candidate 
with the fewest votes is eliminated, each vote cast on 
a ballot for the eliminated candidate shall be count-
ed for the next-ranked active candidate on the ballot, 
and a new round shall begin. 
(4) COMPLETION OF TABULATION.—Tabulation 
in the election is complete if— 
(A) the number of elected candidates is 
equal to the number of seats to be filled and 
any remaining votes in excess of the election 
threshold have been counted for each ballot’s 
next-ranked active candidate; or 
(B) the sum of the number of elected can-
didates and the number of active candidates is 
less than or equal to the number of seats to be 
filled at any time. 
(d) TREATMENT OF CERTAIN BALLOTS.— 
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(1) TREATMENT
OF
UNDERVOTES.—A ballot 
which is an undervote shall not be counted in any 
round of tabulation of ballots in an election under 
this section. For purposes of this paragraph, an 
‘‘undervote’’ is a ballot for which the voter does not 
rank any of the candidates in the election. 
(2) TREATMENT OF INACTIVE BALLOTS.— 
(A) IN GENERAL.—A ballot which becomes 
an inactive ballot shall no longer count for any 
candidate for the remainder of the tabulation of 
ballots in an election under this section after 
the ballot becomes inactive. 
(B) INACTIVE
BALLOT
DEFINED.—For 
purposes of this paragraph, an ‘‘inactive ballot’’ 
is a ballot on which— 
(i) all of the ranked candidates on the 
ballot have become inactive; or 
(ii) the voter ranks more than one 
candidate at the same ranking and all can-
didates at a higher ranking have become 
inactive. 
(3) TREATMENT
OF
SKIPPED
OR
REPEATED 
RANKINGS.— 
(A) IN GENERAL.—A ballot which includes 
any skipped or repeated ranking shall remain 
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active and continue to be counted for the high-
est-ranked active candidate in an election under 
this section. 
(B) SKIPPED
AND
REPEATED
RANKINGS 
DEFINED.—For purposes of this paragraph— 
(i) a ‘‘skipped ranking’’ is a ranking 
a voter does not assign to any candidate 
while assigning a subsequent ranking to a 
candidate; and 
(ii) a ‘‘repeated ranking’’ is a ranking 
for which the voter has assigned the same 
candidate that the voter assigned to an-
other ranking. 
(e) TREATMENT OF TIES BETWEEN CANDIDATES.— 
(1) RESOLUTION BY LOT.—If a tie occurs be-
tween candidates with the greatest number of votes 
or the fewest number of votes at any point in the 
tabulation of ballots under this part and the tabula-
tion cannot proceed until the tie is resolved, the tie 
shall be resolved by lot or by such other method as 
may be provided under State law. 
(2) RESOLUTION
PRIOR
TO
TABULATION.— 
Prior to tabulation, the chief election official of the 
State may resolve prospective ties between can-
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didates by lot or according to the method provided 
under State law, as described in subsection (a). 
(3) USE DURING RECOUNT.—The result of the 
resolution of any tie shall be recorded and reused for 
purposes of any recount under State law. 
(f) DEFINITIONS.—In this section, the following defi-
nitions apply: 
(1) The term ‘‘active candidate’’ means, with 
respect to any round of tabulation under this part, 
a candidate who has not been elected or eliminated, 
and who is not a withdrawn candidate. 
(2) The term ‘‘election threshold’’ means the 
number of votes sufficient for a candidate to be 
elected in a multi-seat election. Such number is 
equal to the total votes counted for active candidates 
in the first round of tabulation, divided by the sum 
of one plus the number of seats to be filled, then in-
creased by one, disregarding any fractions. 
(3) The term ‘‘highest-ranked active candidate’’ 
means the active candidate assigned to a higher 
ranking than any other active candidate. 
(4) The term ‘‘multi-seat election’’ means any 
primary election in which more than one candidate 
in the primary election will advance to the general 
election, any special election for more than one seat, 
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and any general election in which more than one 
Representative is elected at large or in a multi-mem-
ber district. 
(5) The term ‘‘ranking’’ means the number 
available to be assigned by a voter to a candidate to 
express the voter’s choice for that candidate, with 
‘‘1’’ as the highest ranking and each succeeding 
positive number as the next highest ranking. 
(6) The term ‘‘surplus fraction’’ means, with 
respect to an elected candidate as described in sub-
section (c), the number obtained by subtracting the 
election threshold from the candidate’s vote total, 
then dividing that number by the candidate’s vote 
total, truncated after four decimal places. 
(7) The term ‘‘transfer value’’ means the pro-
portion of a vote that a ballot will contribute to its 
highest-ranked active candidate. Each ballot begins 
with a transfer value of 1. If a ballot contributes to 
the election of a candidate under subsection (c), the 
transfer value shall be the new transfer value as-
signed under such subsection. 
(8) The term ‘‘vote total’’ means, with respect 
to a candidate in a round of counting, the total 
transfer value of all ballots counting for the can-
didate in the round. 
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(9) The term ‘‘withdrawn candidate’’ means a 
candidate who, prior to the date of the election, files 
or has an authorized designee file a signed letter of 
withdrawal from the election, in accordance with 
such rules as the chief election official of the State 
may establish. 
SEC. 5. COMMISSION TO RECOMMEND NUMBER OF MEM-
BERS OF THE HOUSE OF REPRESENTATIVES 
IN 
EVENT 
OF 
SIGNIFICANT 
POPULATION 
CHANGE. 
(a) ESTABLISHMENT.—If, with respect to a regular 
decennial census of the population of the United States, 
the number of Representatives determined under section 
22(a) of the Act entitled ‘‘An Act to provide for the fif-
teenth and subsequent decennial census and to provide for 
apportionment of Representatives in Congress’’, approved 
June 18, 1929 (2 U.S.C. 2a(a)), as amended by section 
2(a), is 15 percent greater or lesser than the number of 
Representatives determined under such section with re-
spect to the previous regular decennial census, there shall 
be established in Congress a commission to carry out the 
duties described in subsection (d) with respect to the ap-
portionment of Representatives resulting from that cen-
sus. 
(b) MEMBERSHIP.— 
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(1) APPOINTMENT.—A commission established 
under this section shall consist of 15 members ap-
pointed as follows: 
(A) 5 members appointed by the Speaker 
of the House of Representatives. 
(B) 5 members appointed by the minority 
leader of the House of Representatives. 
(C) 2 members appointed by the majority 
leader of the Senate. 
(D) 2 members appointed by the minority 
leader of the Senate. 
(E) One member who shall serve as the 
Chair of the Commission, who shall be ap-
pointed by the vote of a majority of the other 
members, of whom— 
(i) at least 2 shall be members ap-
pointed by the Speaker of the House of 
Representatives; 
(ii) at least 2 shall be members ap-
pointed by the minority leader of the 
House of Representatives; 
(iii) at least one shall be one of the 
members appointed by the majority leader 
of the Senate; and 
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(iv) at least one shall be one of the 
members appointed by the minority leader 
of the Senate. 
(2) DEADLINE
FOR
APPOINTMENT.—The ap-
pointing authorities under paragraph (1) shall ap-
point the members of the commission not later than 
30 days after the President transmits to Congress 
the statement showing the number of Representa-
tives to which each State is entitled under section 
22(a) of the Act entitled ‘‘An Act to provide for the 
fifteenth and subsequent decennial census and to 
provide for apportionment of Representatives in 
Congress’’, approved June 18, 1929 (2 U.S.C. 
2a(a)), as amended by section 2(a). 
(3) QUALIFICATIONS.—In appointing members 
of the commission, the appointing authorities under 
paragraph (1) shall prioritize the appointment of in-
dividuals who are qualified to assess the appropriate 
number of Members of the House of Representatives 
because of their expertise or study of politics, gov-
ernment, and related fields, and their demonstrated 
ability to work in a nonpartisan manner. 
(4) VACANCY.—A vacancy in the commission 
shall be filled in the same manner as the original ap-
pointment was made. 
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(5) COMPENSATION.—Members of the commis-
sion— 
(A) shall be paid the daily equivalent of 
the annual rate of basic pay payable for level V 
of the Executive Schedule for each day (includ-
ing travel time) during which the member is en-
gaged in the actual performance of duties vest-
ed in the commission; and 
(B) shall receive travel expenses, including 
per diem in lieu of subsistence, in accordance 
with applicable provisions under subchapter I of 
chapter 57 of title 5, United States Code. 
(c) STAFF.— 
(1) AUTHORITY TO APPOINT STAFF.—The chair 
of the commission may appoint, prescribe the duties 
and responsibilities of, and fix the pay of such staff 
as the chair considers appropriate to assist the com-
mission in carrying out its duties, without regard to 
the provisions of title 5, United States Code, gov-
erning appointments in the competitive service, and 
without regard to the provisions of chapter 51 and 
subchapter III of chapter 53 of such title relating to 
classification and General Schedule pay rates, except 
that no rate of pay fixed under this paragraph may 
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exceed the rate of pay for a member of the commis-
sion. 
(2) EXPERTS
AND
CONSULTANTS.—Section 
202(i) of the Legislative Reorganization Act of 1946 
(2 U.S.C. 4301(i)) shall apply with respect to the 
commission in the same manner as such section ap-
plies with respect to a standing committee of the 
Senate. 
(d) DUTIES.—With respect to a regular decennial 
census, the commission shall carry out the following du-
ties: 
(1) Analyzing the shifts in population among 
the States. 
(2) Analyzing how the application of section 
22(a)(2) of the Act entitled ‘‘An Act to provide for 
the fifteenth and subsequent decennial census and to 
provide for apportionment of Representatives in 
Congress’’, approved June 18, 1929 (2 U.S.C. 
2a(a)(2)), as added by section 2(a), will affect the 
ability of the House of Representatives to carry out 
its responsibilities in an effective manner. 
(3) Recommending the optimal number of 
Members of the House and the optimal apportion-
ment of Members among the States, taking into ac-
count— 
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(A) shifts in population among the States; 
(B) the need to reduce disparities in the 
size of congressional districts; and 
(C) the need to ensure that historically 
under 
represented 
populations 
are 
not 
disenfranchised. 
(e) POWERS.— 
(1) HEARINGS
AND
OTHER
ACTIVITIES.—For 
the purpose of carrying out its duties, the commis-
sion may hold such hearings and undertake such 
other activities as the commission determines to be 
necessary to carry out its duties. 
(2) AUTHORITY
TO
USE
SUBPOENAS.—The 
commission may require by subpoena the attendance 
of such witnesses and the production of such books, 
papers, and documents, as it considers appropriate. 
(3) ACCESS
TO
LEGISLATIVE
BRANCH
SERV-
ICES.—The commission shall have access to the 
services of the Architect of the Capitol, the Govern-
ment Accountability Office, the Congressional Budg-
et Office, and the Congressional Research Service in 
the same manner and under the same terms and 
conditions as any standing committee of the House 
of Representatives or Senate. 
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(f) REPORT.—The commission shall submit a report 
to Congress containing its recommendations under sub-
section (d)(3) not later than 6 months after the publica-
tion of the regular decennial census of the population of 
the United States. 
(g) TERMINATION.—A commission established under 
this section shall terminate 30 days after submitting the 
report under subsection (f). 
(h) EFFECTIVE DATE.—This section shall apply with 
respect to the second regular decennial census conducted 
after the date of the enactment of this Act and each subse-
quent decennial census. 
SEC. 6. AUTHORIZATION OF APPROPRIATIONS FOR PROVI-
SION OF ADDITIONAL SPACE, FACILITIES, 
PERSONNEL, AND RESOURCES. 
There are authorized to be appropriated to the House 
of Representatives and the Architect of the Capitol for the 
fiscal year in which this Act is enacted and each suc-
ceeding fiscal year such sums as may be necessary to pro-
vide for any additional space, facilities, personnel, and 
other resources for the House which may be required as 
the result of the enactment of this Act. 
Æ 
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