I disagree. Most of the folks I know who actually vote are very passionate about the issues. It's the folks who can't be bothered to vote who are apathetic.
Well, yes that is what it means. Those who are apathetic won't vote. Those who are passionate will. Then you have those that vote for a bus ride and a sammich. When 40% of the states registered voters turns out to vote... there is some apathy, I would think. 40% is 2014 Ohio elections. Arkansas was 35%.