With 25 precincts in this puzzle, we need to create 5 districts, each containing 5 precincts. In order to arrange for the no votes to win, we need to pack the heavy yes-voting sub-districts into just two districts. Since they are spread across the puzzle, they are too far apart to group as highlighted here:
Instead, we need to group these districts roughly like this:
The T-shaped district in the lower-right corner has only one possible arrangement, given that five sub-districts make up a district. But there are a few of ways to cover the three yes-heavy sub-districts to form the other district. In the following two arrangements, the two sub-districts with 40 yes votes (top-right corner) are grouped together, forming a third yes-voting district.
In order to separate these two sub-districts, it is necessary to create the yes-heavy district on the left in the stair-step shape as shown.