The Local Government Elections Task Force Recommendations are released today.
The big recommendations are including an expense limit, and extending the municipal terms to four years.
I’ll go through the recommendations one by one with some opinion:
* Implement expense limits for all campaign participants (e.g. electors, elector organizations and 3rd party advertisers)
* Development of the expense limits should be guided by some key considerations:
o Expense limits should be high enough for campaign participants to mount reasonable campaigns and express their views, but not so high as to allow a few participants to dominate election discourse
o Expense limits need to work in different‐sized communities (i.e. formula cannot be based only on an amount per number of electors or population)
o Expense limits for elector organizations should have a neutral effect on decisions to create elector organizations or not (i.e. formula should be based on the number of candidates supported)
I disagree with this decision. The reason, as I pointed out earlier in my own submission to the task force, is that expense limits would increase the bureaucratic burden for candidates (how will you audit expenses?) and promote incumbency protection.
I also completely reject the rationale given by the task force, as they present it as follows:
(page 22) The task force believes that expense limits could increase accessibility and fairness by levelling the playing field among candidates; encouraging candidate participation; and reducing the need for large contributions to fund expensive campaigns. Expense limits are expected to be more effective than contribution limits in promoting accessibility. Unlike contribution limits, expense limits reduce the need for large contributions, yet they do not limit the democratic discourse and the variety of voices that can be heard in an election.
…
(page 37) Arguments for expense limits for local government election campaigns include: such limits would enhance accessibility and fairness, by ensuring that rising campaign costs do not erode the ability of ordinary citizens to run for office; limits encourage participation as candidates, thereby allowing all points of view to be expressed in local elections (not just those of candidates with greater means); expense limits are in place in B.C. provincial elections; limits may reduce the need for large donations and the accompanying possibility of undue influence; and limits encourage candidates to pursue grass roots approaches to building support instead of relying on more expensive advertising.
Contrary to this conventional wisdom, spending limits do not promote accessibility. Just as an example, look at the last federal or provincial election, where parties dominate despite the fact that there is a spending limit.
Limits do not encourage candidates to participate, and “all points of view to be expressed” are not curtailed because of spending limits. The media will always concentrate on those people that have a realistic chance of winning an election and this will be the case no matter how much or how little money is spent.
This decision will present a barrier for candidates, rather than promoting the “accessibility” that it claims to bring. Introducing restrictions never promotes accessibility.
What’s even worse is that there will be many ways to skirt around these rules, via elector organizations, campaign organizers, and third party groups to effectively raise the floor. Also, having media control (which is considered to be “free advertising”) becomes more important when there are money limits.
My recommendation to combat the accessibility rule is simple: let people spend whatever they can freely raise (either on their own, or from third parties) but be very strong on the disclosure – large contributions should be reported in near real-time. This will do more for accessibility than any spending limit.
Finally, the recommendations mention nothing about individual vs. corporate/union contributors, although it is given text on page 35 of the report. Implementing an individual-only contribution to candidates would have done far more than implementing expense limits. The federal election model has clearly demonstrated this.
* Ban anonymous contributions
This is fine, although even Elections Canada has a $20 limit (mainly used as a “fudge factor” when you can’t account for your revenues properly, but this is usually less than 1% of the total take-in).
* Do not implement general contribution limits or restrictions
This is status-quo, which is correct given the recommendation to not introduce tax credits on candidate donations.
* Require all election advertising to disclose who sponsored (paid for) the advertising
* Sponsorship information should be in English and the language of the advertisement
* Make it an offence to publish ads without required sponsorship information
* Explore establishing some automatic (administrative) penalties in relation to election advertising (e.g. for failing to comply with the proposed requirement for advertising to include sponsorship information)
These are simple compliance rules that will enable people to determine how the ad they are looking at is paid for.
* Establish that third party advertisers must register and must disclose what they spent on ads and who contributed to them (possibly for advertising expenditures over a certain threshold)
* Prohibit advertising by unregistered third parties
* Explore establishing some automatic (administrative) penalties for failure to comply with third party advertising rules, such as exceeding expense limits or failing to file a disclosure statement.
Sounds good in theory, but this is another bureaucratic web of compliance that will have to be established to actually enforce these provisions.
* Continue to regulate people or organizations (currently referred to as “campaign organizers”) that undertake election campaigns that support (or operate in place of) a candidate or elector organization’s campaign and conduct political activity such as collecting campaign contributions.
Campaign organizers are effectively third parties.
* Apply “third party advertising” rules for election campaigns to referendums by requiring:
o individuals and groups taking out referendum‐related advertisements to register
o advertisements to include sponsorship information
o disclosure of contributions received and expenses incurred by registered third party advertisers to be made after the referendum
This is harmonizing referendum spending rules with candidate election rules. Again, bureaucratic compliance needs to be established, incurring costs and hassle.
* Do not implement public financing (tax credits or rebates for campaign contributions or campaign expenses)
Good decision.
* Require campaign finance disclosure statements to be submitted no later than 90 days after general voting day
* Require campaign finance disclosure information to be published online and made centrally accessible though Elections BC
* Develop standard campaign finance disclosure statement forms
* Require local governments to use best efforts to provide notice of the remaining 30 day late filing period to those candidates who have not filed at the end of initial filing period
* Make the rules for disclosing volunteer and candidate “in kind” contributions consistent with the provincial rules
I know the disclosure of major donors before voting day occurs is a pipe dream, so notwithstanding that, the above recommendations are well constructed.
* Establish a separate Act dealing with campaign finance rules in local elections
This will make it easier to separate out the financing rules with the other legislation concerning local government elections.
* Provide local Chief Election Officers with additional powers for enforcement during the campaign; for example, to:
o enforce rules against election‐day advertising (e.g. provide clear authority for Chief Election Officers to enter on private property to remove unauthorized campaign signs on election day)
o seek injunctions in order to enforce rules, such as stopping unauthorized advertising
* Clarify the status of the local Chief Election Officer by statutorily establishing that position as impartial
Sounds good.
* Override Offence Act limitation for investigation of an alleged local elections offence, extending it to one year instead of the current six months
* Specify that the one year period starts from when the alleged contravention is brought to the attention of local elections administrators enforcers
Very good.
* Require candidates to make a solemn declaration when filing nomination papers, attesting that the candidate understands the requirements for running for office; for example, requirements to:
o appoint a financial agent
o open a separate bank account for campaign finances
o file a campaign finance disclosure statement within 90 days
o meet eligibility criteria
Useless, but will not hurt.
* Establish a key role for Elections BC in enforcing campaign finance rules in local elections, focusing on:
o Publication and compliance review of campaign finance disclosure statements;
o Provision of guidance on campaign finance rules during elections;
o Response to campaign finance queries and complaints after elections;
o Management of preliminary investigations and, when required, referral to the appropriate law enforcement bodies.
* Continue a role for local government in enforcing campaign finance rules, focusing on local Chief Election Officers as frontline contacts and responders on certain compliance issues that arise during a campaign.
* Build mechanisms to clearly define the responsibilities and relationships of those involved in campaign finance enforcement; support collaborative development of training and education materials, standard forms and provision of guidance; and provide Elections BC and local governments with the authority they need to effectively fulfill their roles.
Good, but having local government issues prosecute violations on people that are their elected bosses is a very bad organizational structure. Basically the only involvement of local government should be conducting the actual election and collecting forms relating to financing and such. Any enforcement functions must go to a higher level beyond the reach of local government elected officials.
* Extend the term of office for local elected officials to four years
I mildly disagree with this decision. The primary reason given is harmonization with some other jurisdictions in Canada (which have increasingly been moving to 4 year terms) but another reason given is “voter fatigue”. I completely disagree with voter fatigue as a reason – if people aren’t interested enough to vote in an election which affects them (and local government elections very much do so yet they are the least voted in), it really is the issue of the non-voters. One would think that voting every three years is not much of a burden, but you could easily imagine that “voter fatigue” can be cited as an excuse to not having elections at all.
You can even make a good argument to running local elections every year, but electing 1/3rd of the council or seats in a staggered arrangement (good for 9-person councils), but the existing 3-year system is a very good balance.
Implicitly in this decision is to harmonize a 4-year term limit to being between the scheduled provincial election dates (currently scheduled for 2013 and every four years after). The only issue with this synchronization is that it is entirely possible that an election can be called earlier than the fixed date (as witnessed by the federal fixed election date law, originally for October 19, 2009, but the election was called for October 14, 2008) and the event that a minority government is elected in BC (which will likely result in an earlier election). Fixing the municipal election schedule because of the provincial election schedule is an invalid reason.
The task force (page 24) did mention they would advise considering changing the election date to October if the UBCM agrees to it in 2010, which I also agree should be done and is a minor, but positive step that will make campaigning a bit easier. I wonder if the guys up in the far north (e.g. Fort St. John) put up campaign signs in November, or whether it’s impossible to drill wood into the ground because it’s minus 20 degrees outside with 6 hours of usable daylight.
* Do not establish a corporate vote
* The Task Force recommends exploring non‐electoral approaches to addressing the concerns of businesses. Local governments and businesses have shared interests in ensuring a competitive property tax climate to encourage investment and support a sustainable, strong and diversified tax base for communities. The Task Force recommends that the UBCM, the Province and business groups work
together to recognize the issues expressed to the task force, and to encourage effective local ways to engage with business, further strong relationships and foster a competitive business climate.
This is funny; the first recommendation was a foregone conclusion, but the second bullet point is futile.
* Clarify that volunteers who receive no direct monetary compensation are not considered to be “employees” for the purposes of determining eligibility to run for, and hold, elected office while continuing to volunteer
Fine.
* Strengthen commitment to collaborative local elections education
o Establish a more formal process for guiding development of elections education
o Involve more participants ‐ organizations such as LGMA, UBCM, Elections BC, Ministries of Education and Community and Rural Development and LGLA.
o Ensure all involved commit staff and/or financial resources to education and advice
Good.
* Provide education and advice
o On new topics resulting from implementation of Task Force recommendations (e.g. third party advertising rules)
o For new audiences (e.g. candidates’ financial agents, third party advertisers, other campaign participants)
o In new ways (e.g. webinars, “candidate schools,” advice line for election administrators on general voting day)
* Enhance education and advice in a phased approach
o Focus first on materials to assist in understanding of new rules, roles and responsibilities for the 2011 elections
o Expand to cover other issues based on feedback from 2011 elections
Good.
All in all, the big recommendation was the implementation of spending limits. There were some parameters the task force mentioned to take into consideration (i.e. not a simple “dollars per voter” metric) and it will be interesting to see what the ministry staff can come up with. I guarantee it will do nothing to promote accessibility.