Okay, I have 
reviewed this and it appears that GEMS unfortunately does not handle (and has 
not ever)the above case.  Significant headers can be used to put a header 
on only the democratic ballot, but they cannot be used to 
force a democratic ballot when there are no democratic 
races. 
For 1.11 at least, 
the best I can offer is a work around.  Create a race with no candidates as 
a psudo significant header.  This race will differentiate the ballots for 
GEMS.  This race can be the "Official Ballot" header, or something more 
inert like a seperator with actual significant headers in turn attached to 
it.   
What exactly is the 
difference between the absentee and polling header in Gwinnett anyway?  If 
it is something simple like displaying "Official" instead of "Absentee", we 
might be able to handle this with an @vgroup macro in the same spirit as the 
@precinct macro, without a major GEMS upgrade.   
Ken 
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