So it's not that they're not voting, they're just voting without contributing to the debate? That actually makes this proposal seem a little worse, honestly... If the problem is that you have a bloc of anonymous "No" votes, why don't you simply do away with the secret ballot and go to voice votes? In game terms, don't use the built-in referendums. Force people to send messages in which they must announce their vote. Riombara's Advisory Council has done this for years since the group does not fit precisely into any of the predefined referendum options. It may not compel people to contribute any more to the debate, but at least you will know who is voting no and can then ask them directly what their reasoning is, if that's what's bothering you. It strips away that protective anonymity that it sounds like some characters may be exploiting.
Disclaimer: I have a character in Coria, but not one in the Senate.
But if the characters are active anyway, this proposal clearly doesn't impinge upon their activity. i.e. not an IR violation?
"Not an IR violation" does not and should not mean "Best way to do it."
Going to voice voting is ideal– but that doesn't mean sub-optimal policies should be banned.
