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A Blueprint for a 21St Century Legislature

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A Blueprint for a 21St Century Legislature A Blueprint for a 21st Century Legislature Public Commission on the Oregon Legislature November 2006 A BLUEPRINT FOR A ST 21 CENTURY LEGISLATURE REPORT OF THE PUBLIC COMMISSION ON THE OREGON LEGISLATURE TO THE SEVENTY-FOURTH LEGISLATIVE ASSEMBLY In Accordance with Senate Bill 1084 (2005) November 2006 ACKNOWLEDGEMENTS One of the benefits of living in a democracy is the ability to personally engage in making changes to the structure and function of government, peacefully. Over the past 15 months 32 Oregonians had that opportunity as appointed members of the Public Commission on the Legislature. Over 100 other Oregonians appeared before this Commission and committees to discuss their ideas, opinions and make suggestions for change. Many others communicated with us by e-mail, letters and phone calls in order to make their thoughts known. This has truly been democracy at work. Since 1859, when Oregon became a state, only two other commissions have been tasked with reviewing the operations and structure of the Oregon Legislature. The Blueprint for a 21st Century Legislature, as presented by this 2006 Commission, reflects the thinking and values of our time. We are indebted to President of the Senate, Peter Courtney and Speaker of the House of Representatives, Karen Minnis for taking the bold step of creating the Commission and giving us direction to engage at any level necessary to bring the best thinking and ideas to this work. We are equally indebted to the members of this commission, citizens who spoke with our committees, citizens who followed our proceedings, and many legislative staff who provided counsel or support for their time, energy, thought and debate that contributed to Commission recommendations in this report. Future generations of Oregonians are the beneficiaries of your work. Judge Laura Pryor, Co-Chair Gary Wilhelms, Co-Chair TABLE OF CONTENTS BACKGROUND ................................................................................................................................... 1 EXECUTIVE SUMMARY ..................................................................................................................... 5 RECOMMENDATIONS ........................................................................................................................ 11 RECOMMENDATIONS FOR FUNDAMENTAL REFORM • Open Primary........................................................................................................... 15 • Nonpartisan Legislature........................................................................................... 15 • Nonpartisan State Controller.................................................................................... 16 • Redistricting Commission........................................................................................ 17 • Funding Government Standards and Practices Commission ................................... 19 • Initiative Reform...................................................................................................... 19 • Campaign Finance ................................................................................................... 21 • Legislator Compensation ......................................................................................... 22 RECOMMENDATIONS FOR INSTITUTIONAL REFORM • Annual Sessions and Session Structure .................................................................. 25 • Partisanship.............................................................................................................. 26 • Staffing Legislative Offices .................................................................................... 27 • Hiring Family Members........................................................................................... 29 • Alcohol Consumption .............................................................................................. 30 • Public Access........................................................................................................... 30 RECOMMENDATIONS FOR REFORMING LEGISLATIVE OPERATIONS • Committees .............................................................................................................. 33 • Bills and Amendments............................................................................................. 35 • Program Evaluation ................................................................................................. 36 • Budget Notes............................................................................................................ 36 RECOMMENDATIONS FOR IMPROVING FACILITIES AND TECHNOLOGY • Capitol Renovation and Comprehensive Facilities Plan.......................................... 39 • Wireless Access ....................................................................................................... 40 • Use of Technology................................................................................................... 40 • Oregon Channel ....................................................................................................... 41 • Audio and Video Hardware ..................................................................................... 41 • Security .................................................................................................................... 42 CONCLUSION..................................................................................................................................... 43 SUPPLEMENTAL INFORMATION COMMITTEE SUMMARIES ................................................................................................... 47 • Facilities Committee; Management and Human Resources Committee; Process Committee; and The Public Institution Committee SENATE BILL 1084 (2005).................................................................................................... 65 COMMISSION INFORMATION .............................................................................................. 71 • Commission Members; Committee Membership; Meeting Dates; and Witnesses PROPOSALS SUBMITTED FOR CONSIDERATION................................................................. 75 PROPOSED LEGISLATION .................................................................................................... 91 BACKGROUND A BLUEPRINT FOR A 21ST CENTURY LEGISLATURE PUBLIC COMMISSION ON THE OREGON LEGISLATURE - 2 - A Blueprint for a 21st Century Legislature BACKGROUND Shortly before adjourning in August 2005, the Oregon State Senate and the Oregon House of Representatives passed Senate Bill 1084, which created the Public Commission on the Oregon Legislature. The bill, which was co-sponsored by Senate President Peter Courtney and House Speaker Karen Minnis, was subsequently signed into law by Governor Theodore Kulongoski. Senate Bill 1084 specified that the commission “shall conduct a review of and make recommendations on all aspects of the legislative branch, including the timing, frequency and length of legislative sessions, legislative procedures and the adequacy of legislative facilities and staffing.” The legislation also charged the commission to prepare a report for submission to the Emergency Board and to members of the Seventy-Fourth Legislative Assembly. Previous comprehensive reviews of the legislative branch were conducted in 1968 and 1974 and their recommendations were considered and implemented by subsequent Legislative Assemblies. The legislation further specified that the commission be comprised of two members of the House of Representatives, two members of the Senate, and 26 members of the public, who would be jointly appointed by the President of the Senate and the Speaker of the House. Commission members represented diverse knowledge of and experience with the legislative process in all committee and commission discussions. Under the leadership of Co-Chairs Judge Laura Pryor and Gary Wilhelms, the commission held its first meeting on September 6, 2005, and met on eight subsequent occasions, with its final meeting on November 13, 2006. Each member of the commission was also assigned to serve on one of the following committees: Facilities; Human Resources; Management; Process; and The Public Institution. Each committee met on numerous occasions throughout 2005 and 2006 to hear testimony from experts on the legislative process, and to consider all proposals and ideas that had been received by the commission from members of the public, legislators, staff, agencies, local governments and commission members. All meetings of the full Public Commission and committee meetings were open to the public and to the media. The Supplemental Information section of this report contains: summaries of committee work; Senate Bill 1084; lists of members of the Public Commission, meeting dates of commission and committees and witnesses; proposals considered by committees; and proposed legislation. Public Commission on the Oregon Legislature - 3 - - 4 - A Blueprint for a 21st Century Legislature EXECUTIVE SUMMARY A BLUEPRINT FOR A 21ST CENTURY LEGISLATURE PUBLIC COMMISSION ON THE OREGON LEGISLATURE - 6 - A Blueprint for a 21st Century Legislature EXECUTIVE SUMMARY Oregon faces many difficult and complex challenges in the coming years. As the policy-making branch of state government, the Oregon Legislative Assembly must address these challenges and become a more efficient, effective institution. The Public Commission on the Oregon Legislature (PCOL) concludes that many policies and practices prevent the legislature
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