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From the 2.5B, some 40% are still in the genesis block unclaimed. Some of that stake is probably even lost.
So the comparison with that number is not accurately showing "active shares".

A lot of bitshares are held in exchanges and can't be voted by the "owners".

That doesn't negate the fact that it's still less than 10% of active coins voted to support this.

If I created a poll, and didn't advertise it resulting in 1% participation with a valid outcome - would it have mandate?

The use of workers for a stake-weight poll is not something "official" that will automatically execute a proposal... It is currently used just as an easy way to measure consensus on something. ATM we are following the "community rule" that a worker needs to be active for reaching consensus, this means it have to have more votes than the refund-worker. Again, ATM this means having more than ca 350M votes, or around 45% of all voting stake

How else is there to advertise the vote other than on the forum and in the Telegram channel? That was done, and the pros and cons were debated for several weeks. Are you a bitshares holder?

The screen is taken a bit late, the votes were actually around 400M IIRC

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