If there are more people registered to vote than PFD recipients, there are obviously too many people ineligible to vote on the voter rolls, which would explain the low turnouts (which are percentages of the total number of registered voters).  Voter rolls are only purged when a person doesn't vote for 2 successive presidential elections.  Now, if Ballot Measure 1 included a better way to purge the voter rolls and keep them current, I would vote for it.