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LegislativeBackgroundPaperforthe
StateAdministrationandVeteransAffairs'InterimCommittee2013‐14Interim
PreparedbySheriScurr,LegislativeResearchAnalyst,August2013
HJR1Study:LegislativeHistoryonthe
OfficeoftheCommissionerofPoliticalPractices
StructureofOfficeandScopeofDuties
Purpose
Thepurposeofthisbriefingpaperistoprovidehistoricalcontexttothecommittee'sexaminationoftheOfficeoftheCommissionerofPoliticalPractices(Commissioner)undertheHouseJointResolutionNo.1studysothatmembersoftheStateAdministrationandVeterans'AffairsInterimCommittee(SAVA)maybetterunderstandwhyandhowthelawsconcerningtheCommissioner'snominationandappointmentandthestructureandpoweroftheofficeevolvedastheydid.
Butte'sCopperKings
Montana'scolorfulhistoryofpoliticalcorruptionduringtheturnofthelastcenturyfinancedbytheCopperKingsofButteiswell‐known.AHistoricalSocietyintroductiontothebook"TheWaroftheCopperKings"byC.B.GlasscocksummarizesthestateofMontana'spoliticsatthetimeasfollows:
Thosewhocontrolledthecopperminesstoodtomakebillionsofdollars,theprizesoughtbythreemenwhofoughtforButte’smineralwealthwithgreedandgenerosity,crueltyandcompassion,cowardiceandcourage.Inthisastonishingbattle,theyusedtheirfabulouswealthtobuycourts,newspapers,politicians,banks,police,andanythingandanyonethatcouldhelpthemorhindertheiropponents.Togetwhattheywanted,theirmoneyflowedlikesnowmeltthroughoutthemile‐highcityandeventuallyreachedthenation’scapital.
Asnotedina2012MontanaLawReviewArticle,the1899electionofCopperKingWilliamAndrewsClarktotheU.S.SenateisthemostnotoriousexampleofMontana’spoliticalcorruption.Atthattime,U.S.Senatorswereelectedbystatelegislatures.ClarkisreputedtohavespentmillionsofdollarstobrazenlybuythevotesofMontanalegislatorsandthushisU.S.Senateseat.
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However,theU.S.SenateCommitteeonPrivilegesandElectionsinvestigatedthemanychargesofcorruptionthatweremadeandultimatelyconcludedthatClark'selectionshouldbedeclaredvoid.Clarkresignedratherthanbattlethecommittee'sfindings,buttheseismicwavesfromthefar‐reachingeffectsofpoliticalcorruptioninMontanaledtonumerouslawsaimedatcrackingdownonpoliticalcorruption,notonlyinMontana,butthroughoutthenation.1
1912‐MontanaCorruptPracticesAct‐CountyAttorneystoEnforce
Reelingfromthistideofpoliticalcorruption,MontanavotersattemptedtotakebacktheirgovernmentfromtheCopperKingsandpasseda55‐sectionstatutoryinitiativeknownastheMontanaCorruptPracticesActof1912(Act).ThisAct,althoughithasbeensubstantiallyupdatedalongtheway,formsthecoreofMontana'scampaignpracticelawsstillinstatutetoday.
WhentheActtookeffectin1913,itprovidedthattheelectionadministrators(i.e.,theSecretaryofStateforstatewideofficesandlocaltown,city,orcountyclerksandrecordersforlocaloffices)wereresponsibleformonitoringcompliancewiththeAct.UndertheAct,anypersoncouldinitiateacomplaintwiththeelectionadministrator.Acomplainthadtobeinwriting,beswornto,anddetailthegroundsforthecomplaint.Ifanelectionadministratorreceivedacomplaintorfoundirregularitiesinreportstobefiledwiththeadministrator'soffice,theadministratorwasrequiredtoinvestigateand"forthwithinwritingnotifythedelinquentperson".2Iftheallegedviolatorfailedtocomplywithin10daysofnotificationoftheviolation,theelectionofficialwasrequiredto"forthwith"3contacttheappropriatecountyattorneyandprovidethecountyattorneywithallthepapersrelatingtothecase.Thecountyattorneyhad60daystoreviewthecaseandeitherdismissitorproceedwithacivilorcriminalactionagainsttheallegedviolator.
TheActalsoprohibitedapersonfromaccepting,receiving,orpayingmoneyor"anyvaluableconsiderationforbecomingorforrefrainingfrombecomingacandidate".4TheActprovidedthatanyonecouldmakeacomplaintofcorruptiontoanydistrictjudge.Ifthejudgewasconvincedthatsuchbriberyhadtakenplace,thejudgecoulddirectthecountyattorneytoinstitutecriminalproceedingsagainstanyandallpersonsinvolvedinthecorruptpractices.AtestamenttohowfrustratedthecitizensofMontanahadbecomewiththeCopperKingsandtheircohortspurchasing
1 LarryHowell,"OnceUponaTimeintheWest:CitizensUnited,Caperton,andtheWaroftheCopperKings",73Mont.L.Rev.25(2012).
2 LawsofMontana1913,p.601.CitizenInitiative,MontanaCorruptPracticesActof1912,Sec.14.
3 Ibid.
4 Ibid,p.609,Sec.37.
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politicalofficials,theActspecifiedthatifacountyattorneyfailedtoprosecutethecase(i.e.,to"faithfullyperformanydutyimposed"5undertheAct),thecountyattorneycouldbechargedwithamisdemeanorpunishablebyforfeitureoftheofficeandbyafineorimprisonment,orboth.6Requiringacountyattorneytoprosecuteandthreateningcivilandcriminalpenaltiesforfailuretodosowasprobablynotconstitutional.But,thisprovisioninthe1912initiativelanguageseemstobeatestamenttotheleveloffrustrationMontanacitizensfeltagainstpublicofficialswhofailedtodoanythingtocurbblatantactsofpoliticalcorruption.
1975‐CommissionerofCampaignFinances&Practices
AcomprehensiveoverhaulofMontana'scampaignlawscamein1975,whenSenatorMikeGreely,wholaterbecameMontana'sAttorneyGeneral,carriedSenateBillNo.76.ThebillwaspartofapackageofthreeelectionreformbillsaimedatconsolidatingandupdatingtheCorruptPracticesActof1912.SenateBillNo.76revisedandreorderedexistingsectionsbutalsoenactedseveralnewcampaignpracticesprovisions.7
Commissionertobeappointedbylegislators
Amongthebill'snewprovisionswasthecreationofthepositionofaCommissionerofCampaignFinancesandPractices(Commissioner).TheCommissionerwasgiventhepowersanddutiespreviouslyassignedtotheelectionadministrators.ThebillprovidedfortheappointmentoftheCommissionerasfollows:
• theCommissionerwastobeappointedbyamajorityofafour‐memberlegislativeselectioncommittee,whichconsistedofthe;‐ speakeroftheHouse;‐ presidentoftheSenate;‐ minorityleaderintheHouse;and‐ minorityleaderintheSenate.
• theMontanaSupremeCourtwastoappointafifthmembertotheselectioncommitteeiftherewasatievote;
• theCommissioner'stermwassetat5years,theCommissionercouldnotbereappointed,andthepersonwasprecludedfrombeingacandidateforpublicofficefor5yearsaftertheperson'stermasCommissionerexpired;
5 Ibid.
6 Ibid.
7 Ch. 480, L. 1975.
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• theCommissionercouldberemovedbylegislativeimpeachment;and
• theCommissioner'sofficewasadministrativelyattachedtotheOfficeoftheSecretaryofState.
AmotiontoamendthebilltoprovidethattheSecretaryofStatewouldappointtheCommissionerfailedintheSenateStateAdministrationCommitteebyavoteof5to2,butthereisnorecordofsubstantivedebateaboutthisidea.8
Commissionerauthorizedspecialprosecutors
UnderSen.Greely's1975bill,theCommissionerwasgiventheauthoritytohireorretainattorneyswhowereempoweredtoactasspecialprosecutors.Countyattorneysretainedconcurrentjurisdictiontoprosecuteviolationsbutcouldwaivetheirrighttoprosecute.Thebillprovidedthatifthecountyattorneydeclinedtoprosecute,thecommissionercouldinitiatetheprosecution.
Proponentsandopponents
ProponentsatthebillincludedarepresentativeofGovernorTomJudge'soffice,theAFL‐CIO,theLeagueofWomenVoters,thestateDemocraticParty,andSecretaryofStateFrankMurray.Theloneopponent,whoappearedonlyduringthesenatehearing,wasarepresentativeoftheMontanaChamberofCommercewhoarguedthattheofficewouldbecomea"superoffice"andtheCommissionerwasbeinggiven"superpowers".9
1979‐GovernortoAppoint
Legislatorstonominate
Duringthe1979regularlegislativesession,Rep.RalphEudaily(R‐Missoula)introducedHouseBillNo.456,revisingcampaignlaws.Accordingtotheminutesofthecommitteehearings,HB456wasoneofseveralbillsproducedbytheInterimSubcommitteeonLegalServicesandElectionLaws.ThebillprovidedthatthegovernorratherthanthelegislativecommitteewouldappointtheCommissioner,thoughtheGovernor'sappointmentwassubjecttoSenateconfirmation.Underthebill,thefour‐memberlegislativecommitteewastransformedintoanominationcommittee.Thenominationcommitteewasrequiredtosubmit"alistofnotlessthantwoormorethanfivenamesofindividualsforhis[theGovernor's]consideration".10Thebillalsoprovidedthata"majorityofthemembersofthe
8 44th Legislature, Senate State Administration Committee, Minutes, Feb. 15, 1975.
9 Ibid.
10 Sec.1,Ch.483,L.1979.
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selectioncommitteeshallagreeuponeachnomination".11ThebillalsochangedtheCommissioner'stermofofficefrom5yearsto6years.Theseprovisionshavenotbeensubstantiallychangedsince1979andsoremaincurrentlaw.
Separationofpowersatissue
AccordingtothesummaryminutesavailablefromcommitteehearingsonHB456,therehadbeenastatedistrictcourtdecisionarisingoutofanallegedviolationofthecampaignlawsinMissoulaCounty.12Althoughthecasewasdismissedandthereisnothinginthecourt'sdecisionconcerningappointmentpowers,testimonyduringthehearingsonHB456andareporttothegovernorbytheCommissionerimplythat,duringthecourseofthatcase,concernsaroseaboutthemethodoftheCommissioner'sappointment.TheconcernwasthatthelegislativeappointmentoftheCommissionerandtheMontanaSupremeCourt'sroleinappointingamembertotheselectioncommitteetobreaktievotescouldbeunconstitutionalbecauselegislatorsandtheMontanaSupremeCourtwerebeinggivenpowersthatproperlybelongedtotheexecutivebranchundertheseparationofpowersdoctrine.ThisconcerncouldbewhythebillnotonlyprovidedfortheGovernortomaketheappointmentbutalsostrucktheprovisionthattheMontanaSupremeCourtwouldappointafifthmembertothelegislativecommitteetobreakatievote.Atanyrate,althoughtheMontanaSupremeCourt'srolewasstricken,thebilldidnotmakeanysubstituteprovisionforbreakingatievoteinwhatbecamethefour‐membernominatingcommittee.
1980‐InitiativeNo.85‐TheLobbyistDisclosureInitiative
Legislationfailed,citizeninitiativepassed
AfterlegislationproposedtotightenMontana'slobbyingdisclosurelawsin1977and1979failed,13agroupcalledMontanansforLobbyingDisclosure14successfullypetitionedtoplacetheirLobbyistDisclosureInitiativeontheNovember1980ballot.Theinitiativepassed259,698votesto76,358votes.15
LobbyingandethicsdutiesbecomeCommissioner's
Undertheinitiative,theCommissionerratherthantheSecretaryofStatebecame
11 Ibid.
12 State v. Matthews, 183 Mont. 405, 600 P.2d 188 (1979).
13 Legislative Services Division, History and Final Status, 1977 and 1979.
14 Newspaper Archive of The Mountaineer, Big Sandy, Montana, November 29, 1979, p. 3.http://mou.stparchive.com/Archive/MOU/MOU11291979P03.php
15 Montana Office of Secretary of State.
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responsiblefortheadministrationandenforcementofMontana'slobbyinglawscontainedinTitle5,chapter7,oftheMontanaCodeAnnotated(MCA).TheinitiativealsorequiredelectedofficialstofilebusinessdisclosurestatementswiththeCommissionerunderastatutenowcodifiedinTitle2,chapter1,MCA.Thischapterofcodegovernsethicalconductbyelectedofficials,appointedstateofficials,andpublicemployees.Finally,theinitiativechangedthetitleoftheCommissioner'sofficefromCommissionerofCampaignFinancesandPracticestotheCommissionerofPoliticalPractices.
2005‐QualificationsandRestrictionsforHoldingOffice
Duringthe2005LegislativeSession,Rep.JohnSinrud(R‐Bozeman)introducedHouseBillNo.386,which,aspassed:
C requiredtheCommissionertobeaU.S.citizen,aresidentofMontana,andaregisteredvoter;16and
C prohibitedtheCommissionerfrom:‐ holdinganyotherpositionofpublictrustorengaginginanyother
occupationorbusinessthatinterfereswithorisinconsistentwiththedutiesoftheoffice;
‐ participatinginanypoliticalactivityorcampaignduringtheCommissioner'stermofoffice;
‐ makingcontributionstosupportoropposeacandidate,politicalcommittee,orballotissue;
‐ attendinganypoliticalfundraisingevent;
‐ participatinginanymatterthatresultsinarealorperceivedconflictofinterestorthatinvolvesarelative.17
C requiredthatadecisionbytheGovernortoremovetheCommissionermustbestatedinwritingandthattheremovalwassubjecttojudicialreview;18
C eliminatedtheprovisionprohibitingtheCommissionerfrombeingacandidateforpublicofficefor5yearsafterleavingofficeasCommissioner;19
16 Section13‐37‐107,MCA,enactedbySec.1,Ch.479,L.2005.
17 Section13‐37‐108,MCA,enactedbySec.2,Ch.479,L.2005.
18Amendmenttosection13‐37‐102(2),MCA, by Sec. 5, Ch.479,L.2005.
19Amendmenttosection13‐37‐103,MCA,bySec.6,Ch.479,L.2005.
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and
C requiredtheCommissionertorecusehimselforherselfinmatterswheretherecouldbearealorperceivedconflictofinterestandtoappointadeputywhomeetsthequalificationcriteria.20
OneproponenttestifiedintheHouseStateAdministrationCommitteehearing.Noonetestifiedinopposition.TheCommissionerofPoliticalPractices,GordonHiggins,testifiedasaninformationalwitness.21Noproponents,opponents,orinformationalwitnessestestifiedduringtheSenateStateAdministrationCommitteehearing.22Thebillreceivedthird‐readingvotesof84to16intheHouseand50to0intheSenate.23
InSummary
Originally,undertheCorruptPracticesActof1912,theSecretaryofStateandlocalelectionadministratorsmonitoredcompliancewithcampaignfinancedisclosurelaws,whilecountyattorneysprosecutedallegedviolations.Complaintsofpoliticalcorruptionandbriberycouldbemadebyanyonedirectlytoadistrictcourtjudge.Ifacountyattorneyfailedtoprosecutewhenajudgedirectedthecountyattorneytoprosecute,thecountyattorneycouldbechargedwithamisdemeanorforfailuretofaithfullyexecutethedutiesoftheofficeandbeforcedtoforfeitoffice.
AbillbySen.MikeGreelyestablishedtheOfficeofCommissionerofCampaignFinancesandPracticesin1975.ThebillalsosubstantiallyrevisedandupdatedtheCorruptPracticesAct.Underthebill,theCommissionerwastobeappointedbyafour‐memberlegislativecommitteeandwasgiventhepowerstoreceivecomplaints,investigate,andissueordersofnoncompliance,whichwerepreviouslyinthehandsofelectionadministrators.Countyattorneysretainedjurisdictiontoprosecutebutcouldwaivethatright.Ifthecountyattorneysdeclinedprosecution,attorneyshiredorcontractedbytheCommissionercouldbecomespecialprosecutors.
Concernoverthe1975law'smethodofappointingtheCommissionerledtoabillbyRep.Eudailyin1979tochangethelawsothattheGovernorwouldappointtheCommissioner,subjecttoSenateapproval.Thefour‐memberlegislativeselectioncommitteewaschangedtoanominatingcommittee,buttheGovernorwasnotrequiredtoappointapersonwhothecommitteenominated.TheSupremeCourt's
20 Amendmenttosection13‐37‐111,MCA,tocreatenewsubsections(3)through(5)bySec.7,Ch.479,L.2005.
21 HouseStateAdministrationCommittee,Minutes,Feb.4,2005.
22SenateStateAdministrationCommittee,Minutes,April1,2005.
23LegislativeServicesDivision,HistoryandFinalStatus,2005.
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roleinappointingamembertothefour‐membercommitteetobreaktieswasalsoaxed.
Acitizeninitiativein1980,theLobbyingDisclosureAct,substantiallytightenedregulationsonlobbyistsandthosewhohiredthem,andhandedthejobofenforcingthoselawstotheCommission.TheinitiativealsogavetheCommissionertheresponsibilitytoenforceethicslawsandcreatedanewrequirementthatpublicofficialsfilebusinessdisclosurestatements.Undertheinitiative,theCommission'stitlewaschangedfromCommissionerofCampaignFinancesandPracticestotheCommissionerofPoliticalPractices.
Qualificationsandrestrictionswereaddedtothelawin2005asaresultofabillbroughtbyRep.JohnSinrud.ThebillprovidedthattheCommissionerhadtobeaU.S.citizenandregisteredvoterinMontana,prohibitedtheCommissionerfromholdinganotherpublicorprivatejobthatwouldinterferewiththeCommissioner'sperformanceofduties,andrequiredtheCommissionerrecusehimselforherselfiftheCommissionerhadarealorperceivedconflictofinterestinacase.
UnderstandingthisevolutionofcurrentlawsgoverningthestructureoftheCommissioner'sofficeandthescopeoftheCommissioner'sjurisdictionwillinformSAVA'sHJR1studyonwhetherandhowtofurtherrevisetheCommissioner'sofficeandauthority.
Attachment1‐MontanaCorruptPracticesActof1912
Cl01033227shoa.
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