LEGISLATORS’ HANDBOOK 129th Maine Legislature A GUIDE FOR MAINE LEGISLATORS Procedures, Services & Facts LEGISLATORS’ HANDBOOK November 2018 20th Edition Prepared by the Office of Policy and Legal Analysis Maine State Legislature under the auspices of the Legislative Council PREFACE The operation of the legislative branch is complex, and there are few opportunities for those outside the process to become acquainted with its intricacies. This handbook describes the legislative process. It also provides information about the most significant activities in which legislators are involved, the resources and services available to legislators, the standards that govern legislators’ conduct and other useful information for legislators. This handbook is designed to be a practical reference manual to help newly elected legislators and others become familiar with the Maine legislative process. It is hoped that the information in this handbook will provide newly elected legislators an understanding of the process that will allow them to use their time in the Legislature efficiently and effectively. This, the 20th edition of the handbook, updates the previous edition and covers recent changes affecting the legislative process and legislator conduct. It does not, however, reflect any changes in process, committee structure and jurisdiction or other rules that may be adopted by the 129th Legislature after the printing of the handbook. Each of the legislative staff offices has cooperated in the writing of this handbook. If you have suggestions or comments about the handbook, please contact the Legislative Council Offices at: Executive Director, Legislative Council Room 103, State House 115 State House Station Augusta, ME 04333-0115 Phone: 287-1615 Fax: 287-1621 http://legislature.maine.gov/execdir/ TABLE OF CONTENTS Page PREFACE ....................................................................................................... 1 TABLE OF CONTENTS ................................................................................ i PART I LEGISLATIVE PROCEDURES .................................................... 1 A. THE LEGISLATIVE SETTING ............................................................ 1 1. Membership ........................................................................................ 1 2. Sessions .............................................................................................. 1 3. Terms .................................................................................................. 2 4. Tribal Representation ......................................................................... 2 5. Legislators’ Role and Responsibilities ............................................... 2 6. Legislative Rules and Limits .............................................................. 3 B. THE LEGISLATIVE PROCESS ........................................................... 3 1. Bill Drafting and Introduction of Legislation ..................................... 3 2. Legislative Instruments ....................................................................... 9 3. The Committee Process .................................................................... 10 4. Enactment ......................................................................................... 14 5. Governor’s Options for Bills Enacted by Legislature ....................... 18 6. Publication of Laws .......................................................................... 19 7. Further Action .................................................................................. 20 C. THE BUDGET PROCESS .................................................................... 21 1. Formulation of the Biennial Budget Request.................................... 21 2. Restrictions and Constraints ............................................................. 22 3. Revenue Forecasting ......................................................................... 24 4. Budget Layout .................................................................................. 25 5. Legislative Consideration ................................................................. 26 6. Financial Orders ............................................................................... 26 7. Overview of State Expenditures for Fiscal Year 2017-18 .................................................................................... 27 i 8. Debt .................................................................................................. 29 D. LIMITS ON LEGISLATIVE POWER................................................ 31 1. Constitutional Limitations ................................................................ 31 2. Other Relevant Constitutional Provisions ......................................... 33 3. Federal Laws .................................................................................... 34 4. Legislative Rules .............................................................................. 34 E. SENATE AND HOUSE CALENDARS ............................................... 35 1. Order of Business ............................................................................. 36 2. Calendar Supplements ...................................................................... 38 F. LEGISLATIVE OVERSIGHT ............................................................. 38 1. Legislative Studies ............................................................................ 39 2. State Government Evaluation ........................................................... 39 3. Government Oversight Committee; Performance Reviews ....................................................................... 40 4. Review of Agency Rules .................................................................. 40 5. Oversight of Agency Budgets ........................................................... 41 6. Review of Gubernatorial Appointments ........................................... 41 PART II ADMINISTRATIVE INFORMATION ...................................... 42 A. LEGISLATIVE COMPENSATION, SALARY, ALLOWANCES, EXPENSES AND OTHER BENEFITS ............................................... 42 1. Legislative Salary (estimated) .......................................................... 42 2. Session Allowances ......................................................................... 43 3. Interim Expenses .............................................................................. 43 4. Constituent Service Allowance ......................................................... 43 5. Out-of-State Travel ........................................................................... 44 6. Group Health, Dental and Vision Insurances ................................... 44 7. Group Life Insurance ........................................................................ 45 8. Deferred Compensation .................................................................... 45 9. Legislative Retirement System ......................................................... 46 10. Leave of Absence from Employment to Serve as a Legislator .......................................................................................... 46 ii 11. Legislators’ Federal Income Tax Liability ....................................... 46 B. LAWS GOVERNING CONDUCT OF LEGISLATORS ..................................................................................... 47 1. Income Reporting ............................................................................. 47 2. Conflict of Interest ............................................................................ 48 3. Solicitation and Acceptance of Campaign Contributions .................................................................................... 49 4. Contracts with State Agencies .......................................................... 49 5. Commission on Governmental Ethics and Election Practices ............................................................................................ 49 6. Attendance ........................................................................................ 50 C. LEGISLATIVE EMAIL ....................................................................... 50 D. FREEDOM OF ACCESS & CONFIDENTIALITY .......................... 51 E. AMERICANS WITH DISABILITIES ACT (ADA) ACCOMMODATIONS ......................................................................... 52 F. LOBBYIST DISCLOSURE .................................................................. 53 G. SMOKING POLICY ............................................................................. 53 H. HARASSMENT ..................................................................................... 53 I. VIOLENCE IN THE WORKPLACE .................................................. 55 J. EMERGENCIES ................................................................................... 55 PART III LEGISLATIVE STAFF SERVICES ......................................... 57 A. LEGISLATIVE COUNCIL .................................................................. 57 B. NONPARTISAN STAFF OFFICES .................................................... 58 C. OFFICE OF PROGRAM EVALUATION AND GOVERNMENT ACCOUNTABILITY .............................................. 66 D. SENATE AND HOUSE ADMINISTRATION .................................... 68 E. OTHER STAFF SERVICES ................................................................ 69 1. Leadership Office Staff .................................................................... 69 2. Committee Clerks ............................................................................