Not everyone votes. In some elections, almost nobody votes. County and city officials in the United States are elected by less than 20% of the eligible electorate. Bond referenda are voted on by 10% or less of those legally entitled to vote. In October 1973, Pinellas County, Florida, had an election, but nobody came! Here is an excerpt from a newspaper account the following day:

Not even the three candidates on the ballot Tuesday bothered to vote in the countywide election for the Pinellas County Soil Conservation District board of supervisors. In fact, no one seemed to know anything about the election except the man who put it on, said Art Day, district conservationist. … Under the law, the board conducts its own elections. The only problem is it doesn't have any money for voting machines, clerks, and publicity. … “My total budget is $28, and I need more stationery!” Day said. … Day placed legal advertisements about the election in [local newspapers], but even the board's chairman, Wendell Sails, didn't know the election was being held. “I missed the last meeting,” he said. Day said he will have to write the state office to find out what to do next. In the last election two years ago three people turned out.