A race with no candidates usually does the right thing in this case if you are careful to pick your layout rules so that that race doesn’t wrap to the next column. For the cases where this doesn’t work, fix it up manually.
On behalf of Bill Bowers in GBS: Illinois school referendums are composed of two parts, the first part being a question, followed by Yes and No response, the second part a textual elaboration. How can this be easily composed in GEMS? It is not possible to automatically place header text on the ballot following a race, and the text in question is substantial enough to prevent composition as Header candidates from being practical. Manual placement of header text on the ballot is possible, but not an ideal solution. Currently, GBS is defining the elaboration text as a candidacy with no candidates.