Revitalizing Democracy: Clean Election
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REVITALIZING DEMOCRACY Clean Election Reform Shows the Way Forward JANUARY 2002 MARC BRESLOW, PH.D. JANET GROAT PAUL SABA A publication of the Money & Politics Implementation Project THE MONEY AND POLITICS IMPLEMENTATION PROJECT AND ITS SUPPORTING ORGANIZATIONS The Money and Politics Implementation Project is a joint effort of Northeast Action, Public Campaign, and the state organizations most responsible for passing and implement- ing Clean Election reform in their states. Project partners at the state level are Maine Citizen Leadership Fund, the Vermont Public Interest Research Group, Mass Vot- ers for Clean Elections, and the Clean Elections Institute in Arizona. The Implemen- tation Project works to ensure that the Clean Election laws passed in these four states are fully and fairly implemented and that the lessons learned there are shared with campaign finance reformers across the nation. • Northeast Action is the regional hub and support center for a dynamic network of citizen action organizations and coalitions in the New England states and New York. It played a key role in initiating and supporting Clean Election research and policy re- form initiatives in Maine, Vermont, Massachusetts and other Northeastern states. North- east Action. 30 Germania Street, Boston, MA 02130. 617.541.0500. www.neaction.org. • Public Campaign is a non-partisan national organization dedicated to promoting far-reaching campaign finance reform measures, such as those enacted in Maine, Ver- mont, Massachusetts and Arizona. Public Campaign. 1320 19th Street, NW, Suite M- 1, Washington, DC 20036. 202.293.0222. www.publicampaign.org. • Maine Citizen Leadership Fund is a multi-issue, statewide organization dedicated to advancing Maine’s progressive movement for social and economic justice. For most of its history, it has focused on organizing for campaign finance reform, defending Maine’s Clean Election law, and educating candidates and the public on how the new system works. Maine Citizen Leadership Fund. One Pleasant Street, 2nd Floor, Port- land, ME 04101. 207.780.8657. www.mclf.org. • Vermont Public Interest Research Group is the state’s leading advocacy organiza- tion, working to promote and protect the health of Vermont’s environment, people, and locally based economy. It has been a leader in the passage and legal defense of Vermont’s Clean Election law. Vermont Public Interest Research Group. 141 Main Street, Suite 6, Montpelier, VT 05602. 802.223.5221. www.vpirg.org. • Mass Voters for Clean Elections is a nonpartisan citizen effort to reduce the influ- ence of private money in the electoral process and level the playing field for all Massa- chusetts voters and candidates. It was the lead organization in the passage of Massa- chusetts’ Clean Election law. Mass Voters for Clean Elections. 37 Temple Street, 5th Floor, Boston, MA 02111. 617.451.5999. www.massvoters.org. • The Clean Elections Institute works to implement Arizona’s Clean Election law, encourages participation in the electoral process and seeks to build confidence in demo- cratic institutions. Clean Elections Institute. 2001 North Third Street, Suite 210, Phoe- nix, AZ 85004. 620.840.6633. www.azclean.org. Copyright © 2002. Northeast Action. All Rights Reserved. CLEAN ELECTION REFORM SHOWS THE WAY FORWARD 2 Clean Election Reform Shows the Way Forward ince 1996 four states — Maine, Vermont, Massachusetts and Arizona — have challenged the role of private money in our electoral process by passing comprehensive campaign finance reform laws. Under the new Clean Election Ssystems, candidates forego large private contributions and agree to strict spending limits with fixed and equal fi- nancing from a publicly financed election fund. In 2000, elections were held for the first time in Maine, Arizona and Vermont under these new systems. The results herald the beginnings of a profound revitalization of democracy. This report provides a detailed analysis of the 2000 election results from Maine and Arizona (Vermont’s new system only covered races for governor and lieutenant governor in 2000). It measures the success of Clean Election reform in relation to four key criteria that advocates have determined are essential to effective campaign finance reform: 1. Increasing electoral competition and enhancing voter choice ✓ In both Maine and Arizona, Clean Election reform in 2000 contributed to an increase in contested races and a notable rise in the number of candidates running for office as compared to 1998. ✓ A substantial percentage of candidates chose to run for office under the new public financing systems. Many women and people of color cited the availability of public funds as the decisive factor in their decisions to run for public office in 2000. 2. Allowing candidates to pay more attention to voters and less to potential donors ✓ Candidates who participated in the new systems consistently reported that public funding allowed them to concentrate on connecting with voters rather than on soliciting campaign contributions. Can- didates and voters alike were enthusiastic about this shift in focus. 3. Helping candidates with less access to wealthy private contributors to be more competitive ✓ Clean Election reform resulted in greater financial parity among candidates, thereby enhancing elec- toral competition. On average, participating candidates in both states matched non-participants in campaign spending. Challengers came far closer to matching incumbents than in the 1998 elections, and spending by losing candidates was much closer to that by winners. ✓ Notwithstanding this achievement, fundraising parity did not overcome the numerous advantages of incumbency. In both states, incumbents continued to dominate the general elections. 4. Reducing the influence of special interests on elected officials ✓ Almost half of Maine’s current state Senate and 30% of the House ran with public funding. In Ari- zona, the proportions were 20% for the House and 7% for the Senate, while both members of the three-person Arizona Corporation Commission who were elected in 2000 participated in the Clean Election system. ✓ The victories of so many Clean Election candidates has already begun contributing to a new kind of state politics that reflects the diminished power of special interests to influence legislative decision- making. The achievements of Clean Election reform seem even more impressive in light of their modest cost to taxpayers. It cost less than $1 per Maine or Arizona resident to run the systems, including both the funding of candidates and associated administrative costs. Measured against all these criteria, after only one election cycle Clean Election reform has clearly demonstrated that it can play a critical role in revitalizing American democracy. MONEY AND POLITICS IMPLEMENTATION PROJECT 617-541-0500 3 Acknowledgements This report would not have been possible without the expert assistance of a host of campaign finance reform leaders and activists from across the nation. We want to es- pecially thank the following people: Andrea West of the National Institute on Money and State Politics (NIMSP), Cecilia Martinez and Monica Perez of the Arizona Clean Elections Institute (ACEI), Alison Smith of the Maine Citizen Leadership Fund (MCLF), and Peter Sterling of the Vermont Public Interest Research Group. We also want to acknowledge our debt to those organizations whose tireless efforts on behalf of Clean Election reform are responsible for the tremendous achievements detailed in this report. These include MCLF, the Dirigo Alliance, ACEI, the Vermont Public Interest Research Group and Vermont Citizen’s Coalition for Clean Elections, Mass Voters for Clean Elections, Public Campaign, DemocracyWorks, the Brennan Center, and NIMSP. This report also made extensive use of previous studies and re- ports issued by a number of these organizations (see the references in Section IX for more details). Finally, we are also very grateful to the following foundations whose financial support has been critical to the success of campaign finance reform efforts. Carnegie Corpo- ration of America, the Open Society Institute, The Ford Foundation, The Joyce Foun- dation, the Stern Family Fund, the Threshold Foundation, The Arca Foundation, Alida Messenger, the Albert A. List Foundation, the French American Charitable Trusts, The Educational Foundation of America, the Solidago Foundation, the Or- chard Foundation, and the Unitarian Universalist Veatch Program. Methodology The statistics in this report come primarily from databases compiled by NIMSP, ACEI, and Maine Citizens for Clean Elections (MCCE), a project of MCLF. The NIMSP com- bined its data on primary and general election races into one database that provides unified information on the election for each available office. Tables in this report that present unified data are from the NIMSP. The two state-based organizations, MCLF and ACEI, provided data separately on primaries and general elections, and tables in this report that appear in this fashion utilize their data. In some cases, the informa- tion from the NIMSP does not precisely match that from MCLF and ACEI, and this accounts for any inconsistencies that emerge between tables. In most cases, the differ- ences are due to candidates having dropped out at some point during the election cycle, and their being included in one database but not another. CLEAN ELECTION REFORM SHOWS THE WAY FORWARD 4 CONTENTS Executive Summary 7 I. Introduction: The Problem of Money in Politics 11 II. How Clean Election Reform