Why did the Arkansas AG reject both the popular name and the ballot title for a lobbyist-gifts and campaign-finance amendment?

Plain-English summary

Attorney David A. Couch submitted an initiated constitutional amendment relating to lobbyist gifts and campaign finance for AG certification under Ark. Code Ann. § 7-9-107. AG Leslie Rutledge rejected both pieces. The popular name was misleading "in several respects," and the ballot title failed to sufficiently inform voters about the proposed changes to current law.

This is the earlier of the AG's two 2016 opinions on Mr. Couch's lobbyist-gifts and campaign-finance proposal; the May 11, 2016 follow-up (Opinion No. 2016-051) substituted and certified a corrected popular name but again rejected the ballot title. The pair illustrates how a more aggressive AG rejection (both pieces) at the front end can yield a tighter resubmission later in the cycle.

The substantive standards are familiar from the AG's ballot-title body of work. A misleading popular name "tinged with partisan coloring" is grounds for rejection (Crochet v. Priest, Christian Civic Action Committee v. McCuen, both 1996). A ballot title that omits essential facts about how the amendment changes current law fails the Bailey v. McCuen "serious ground for reflection" test. The AG's job here is not to assess the policy merits but to make sure voters who see the title can fairly understand what they are voting on.

Currency note

This opinion was issued in 2016. Subsequent statutory amendments, court decisions, or later AG opinions may have changed the analysis. Treat this page as historical context, not current legal advice. Verify current law before relying on any specific rule, deadline, or remedy mentioned here.

Common questions

What does a "misleading" popular name look like?
The Arkansas Supreme Court has described misleading popular names as those "tinged with partisan coloring," language that "creates a fatally misleading tendency" (Crochet v. Priest), or that conveys "only the impression that the proponents of the proposed amendment wish to convey of the activity represented by the words" (Christian Civic Action Committee v. McCuen). The opinion did not detail the specific wording it found misleading, only that the name was misleading "in several respects."

What does it mean for a ballot title to fail to inform voters of "proposed changes in current law"?
The Bailey v. McCuen standard requires that essential facts be disclosed. If the amendment changes contribution limits from one number to another, the ballot title needs to say so. If it repeals or amends an existing provision, the title should identify what is being repealed or amended. Listing the new rules without context can leave voters unable to compare against the existing baseline.

How does this opinion connect to Op. 2016-051?
Opinion 2016-041 (April 26, 2016) rejected the whole package. Opinion 2016-051 (May 11, 2016) addressed Mr. Couch's revised submission: the popular name was now acceptable enough to substitute and certify, but the ballot title still needed to be redesigned to inform voters about the changes.

Did the amendment ultimately reach the ballot?
No. The 2016 initiated process did not produce a certified, circulated, and qualifying campaign-finance and lobbyist-gifts constitutional amendment from this set of submissions.

What is the AG's standard practice when both pieces fail?
The AG explains the specific defects in each piece (sometimes in considerable detail) so the sponsors can address them and resubmit. The statute lets the AG substitute corrected language when practicable, but where misleadingness runs through both popular name and ballot title, substitution may not be a clean option and outright rejection is the more efficient route.

Background and statutory framework

Ark. Code Ann. § 7-9-107 (Supp. 2015) governs the AG's certification of popular names and ballot titles. The AG can certify, substitute and certify, or reject. Sponsors then have the chance to revise and resubmit (which Mr. Couch did, producing Op. 2016-051 in May).

The substantive standards from Bailey v. McCuen, 318 Ark. 277 (1994), require any essential fact that would give voters serious ground for reflection to be disclosed in the ballot title. The popular-name standards in Crochet v. Priest, 326 Ark. 338 (1996), and Christian Civic Action Committee v. McCuen, 318 Ark. 241 (1994), prohibit partisan coloring and misleading tendency. Opinion 2016-058 provides a comprehensive overview of the framework applied across all of these certifications.

Citations

Statutes: Ark. Code Ann. § 7-9-107 (Supp. 2015).

Cases: Bailey v. McCuen, 318 Ark. 277, 884 S.W.2d 938 (1994); Crochet v. Priest, 326 Ark. 338, 931 S.W.2d 128 (1996); Christian Civic Action Committee v. McCuen, 318 Ark. 241, 884 S.W.2d 605 (1994).

Companion opinion: Op. Att'y Gen. 2016-051 (revised submission, popular name substituted and certified, ballot title again rejected).

Source

• Landing page: https://arkansasag.gov/divisions/opinions-foia/attorney-general-opinions-search/

Original opinion text

Opinion No. 2016-041
April 26, 2016
David A. Couch
Attorney at Law
STATE OF ARKANSAS
ATTORNEY GENERAL
LESLIE RUTLEDGE
1501 North University, Suite 228
Little Rock, AR 72207
Dear Mr. Couch:
I am writing in response to your request for certification, pursuant to Ark. Code
Ann. § 7-9-107 (Supp. 2015), of the popular name and ballot title for a proposed
initiated measure.
At the outset, I wish to make clear to you that the decision to certify or reject
a popular name and ballot title is in no way a reflection of my view of the
merits of a particular proposal. I am not authorized to, and do not consider
the merits of the measure when making my determination to certify or reject
a popular name and ballot title.
The Attorney General is required, pursuant to Ark. Code Ann. § 7-9-107, to certify
the popular name and ballot title of all proposed initiative and referendum acts or
amendments before the petitions are circulated for signature. The law provides that
the Attorney General may, if practicable, substitute and certify a more suitable and
correct popular name and ballot title. Or, if the proposed popular name and ballot
title are sufficiently misleading, the Attorney General may reject the entire
petition.
Section 7-9-107 neither requires nor authorizes this office to make legal
determinations concerning the merits of the act or amendment, or concerning the
likelihood that it will accomplish its stated objective. In addition, consistent with
Arkansas Supreme Court precedent, unless the measure is "clearly contrary to
323 CENTER STREET, SUITE 200 · LITTLE ROCK, ARKANSAS 72201
TELEPHONE (501) 682-2007 · FAX (501) 682-8084
ARKANSASAG.GOV David A. Couch
Attorney at Law
Opinion No. 2016-041
Page 2
law,"1 this office will not require that a measure's proponents acknowledge in the
ballot title any possible constitutional infirmities.2 Consequently, this· review has
been limited primarily to a determination, pursuant to the guidelines that have
been set forth by the Arkansas Supreme Court, discussed below, of whether the
popular name and ballot title you have submitted accurately and impartially
summarize the provisions of your proposal.
The purpose of my review and certification is to ensure that the popular name and
ballot title honestl~, intelligibly, and fairly set forth the purpose of the proposed
amendment or act.
REQUEST
You have requested certification, pursuant to Ark. Code Ann. § 7-9-107, of
the following popular name and ballot title for a proposed constitutional
amendment:
Popular Name
An Amendment to Prohibit Lobbyist Gifts to Certain Elected and Appointed
Officials, Prohibiting Political Action Committees that Accept Contributions from
Corporations from Contributing to Candidates, Requiring Disclosure of Sources of
Independent Expenditures and Reducing Campaign Contributions to Candidates
Ballot Title
An amendment to the Arkansas Constitution prohibiting persons
elected or appointed to certain offices from accepting certain gifts
from lobbyists, specifically food or drink at a planned activity,
payments by regional or national organizations for travel to regional
or national conferences, and gifts that are not used and which are
1 See Kurrus v. Priest, 342 Ark. 434, 445, 29 S.W.3d 669, 675 (2000); Donovan v. Priest, 326 Ark. 353,
359, 931 S.W.2d 119, 121 (1996); Plugge v. McCuen, 310 Ark. 654, 841 S.W.2d 139 (1992).
2 As part of my review, however, I may address constitutional concerns for consideration by the measure's
proponents.
3 See Arkansas Women's Political Caucus v. Riviere, 283 Ark. 463, 466, 677 S.W.2d 846 (1984). David A. Couch
Attorney at Law
Opinion No. 2016-041
Page 3
returned within thirty (30) days after receipt; removing the ability of
the General Assembly to amend Article 19, Section 30 of the
Arkansas Constitution; prohibiting political action committees that
accepts [sic] contributions for [sic] corporations or limited liability
companies from making contributions to candidates for public
office; removing the ability of the General Assembly to amend
Article 19, Section 28 of the Arkansas Constitution; requiring a
person who makes and [sic] independent expenditure or covered
transfer in the amount of two thousand dollars ($2,000.00) or more
in a calendar year to file a report with the secretary of state or county
clerk (whichever is appropriate), providing that the report shall
include the name of the person, the amount of the independent
expenditure or covered transfer, the election to which the
independent expenditure pertains and the name of the candidate
identified and whether the independent expenditure was made in
support or in opposition to the candidate; defining covered transfers,
disbursements and independent expenditures; defining independent
expenditure to mean an expenditure for a communication clearly
identifying a candidate and either advocating the election or defeat
of that candidate or being published within 60 days of an election;
defining covered transfer to mean a payment of funds designated to
be used for independent expenditures, made in response to a
solicitation indicating the funds will be used for independent
expenditures, or made under other specified circumstances
indicating the funds would likely be used for independent
expenditures; requiring informational disclaimers on political
advertisements; providing that the Arkansas Ethics Commission
shall have jurisdiction over independent expenditures and setting
criminal and civil penalties for violations; and reducing the
maximum amount a candidate for public office can accept from two
thousand seven hundred dollars ($2,700.00) to one thousand five
hundred dollars ($1,500.00)
RESPONSE
The popular name is primarily a useful legislative device. 4 It need not contain
detailed information or include exceptions that might be required of a ballot title,
4 Paffordv. Hall, 217 Ark. 734, 739, 233 S.W.2d 72, 75 (1950). David A. Couch
Attorney at Law
Opinion No. 2016-041
Page 4
but it must not be misleading or give partisan coloring to the merit of the
proposal. 5 The popular name is to be considered together with the ballot title in
determining the ballot title's sufficiency.6
The ballot title must include an impartial summary of the proposed amendment or
act that will give the voter a fair understanding of the issues presented. 7 According
to the Court, if information omitted from the ballot title is an "essential fact which
would give the voter serious ground for reflection, it must be disclosed."8 At the
same time, however, a ballot title must be brief and concise;9 otherwise voters
could run afoul of Ark. Code Ann. § 7-5-309's five-minute limit in voting booths
when other voters are waiting in line.10 The ballot title is not required to be perfect,
nor is it reasonable to expect the title to cover or anticipate every possible legal
argument the proposed measure might evoke. 11 The title, however, must be "free
of any misleading tendency whether by amplification, omission, or fallacy, and it
must not be tinged with partisan coloring." 12 The ballot title must be honest and
impartial, 13 and it must convey an intelligible idea of the scope and significance of
a proposed change in the law. 14
5 E.g., Chaney v. Bryant, 259 Ark. 294, 297, 532 S.W.2d 741, 743 (1976); Moore v. Hall, 229 Ark. 411,
316 S.W.2d 207 (1958). For a better understanding of the term "partisan coloring," see infra at note 12.
6 May v. Daniels, 359 Ark. 100, 105, 194 S.W.3d 771, 776 (2004).
7 Becker v. Riviere, 270 Ark. 219, 226, 604 S.W.2d 555, 558 (1980) (internal citations omitted).
8 Bailey v. Mccuen, 318 Ark. 277, 285, 884 S.W.2d 938, 942 (1994).
9 See Ark. Code Ann. § 7-9-107(b).
10 Bailey at 284, 884 S. W .2d at 944.
11 Id. at 293, 844 S.W.2d at 946-47.
12 Id. at 284, 884 S.W.2d at 942. Language "tinged with partisan coloring" has been identified by the
Arkansas Supreme Court as language that "creates a fatally misleading tendency" (Crochet v. Priest, 326
Ark. 338, 347, 931 S.W.2d 128, 133 (1996)) or that "gives the voter only the impression that the
proponents of the proposed amendment wish to convey of the activity represented by the words."
(Christian Civic Action Committee v. McCuen, 318 Ark. 241, 249, 884 S.W.2d 605, 610 (1994)).
13 Becker v. McCuen, 303 Ark. 482, 489, 798 S. W.2d 71, 74 (1990).
14 Christian Civic Action Committee, 318 Ark. at 245, 884 S. W.2d at 607 (internal quotations omitted). David A. Couch
Attorney at Law
Opinion No. 2016-041
Page 5
It is my opinion that the popular name and ballot title you have submitted fail to
meet these guidelines.
Popular Name
Article 19, Section 30(a) of the Arkansas Constitution currently prohibits certain
officials from accepting gifts from lobbyists. However, a voter might logically
conclude from your proposed popular name-"An Amendment to Prohibit
Lobbyists Gifts"-that there currently is no prohibition on gifts from lobbyists.
The popular name you have proposed is therefore misleading in this respect.
It is also misleading to refer, in the popular name, to "Contributions from
Corporations," given that the proposal's text in this regard includes limited
liability companies.
The popular name's reference to "Candidates" may also lead a voter to mistakenly
think your proposed amendment applies to candidates for federal office.
I believe the proposed popular name may also suggest to the voter that Arkansas
law currently does not require disclosure of sources of independent expenditures.
That plainly is not the case.15 While your proposed measure, if approved, would
make disclosing independent expenditures a constitutional requirement, I believe
it is potentially misleading to call it a measure requiring such disclosures. That is
particularly true given the ballot title's failure to inform voters of your measure's
effects on current law (as discussed below).
Additionally, calling the amendment one "Reducing Campaign Contributions to
Candidates" will inaccurately suggest to the voter that the proposed measure, if
approved, will impose an overall limit on contributions.
I must conclude that the popular name you have submitted is deficient for the
foregoing reasons.
15 See Ark. Code Ann. A.C.A. §§ 7-6-206 (Repl. 2011) requiring reports of all contributions and
expenditures) and 7-6-20 I ( 11) (Supp. 2015) (defining "inqependent expenditure.") David A. Couch
Attorney at Law
Opinion No. 2016-041
Page 6
Ballot Title
As I pointed out in Op. Att'y Gen. 2016-035, issued to you on April 11, 2016, the
ballot title must both accurately summarize the proposed measure's text and
sufficiently inform the voters about the changes in current law they are being
asked to approve. I must again draw your attention to the latter requirement.
Your proposal's adoption would significantly change current Arkansas law
relating to election spending. However, the ballot title you have submitted
evidences little or no effort to summarize the changes.
The Arkansas Supreme Court has elaborated on the duty to describe the changes in
law a proposal is to make:
It is evident that before determining the sufficiency of the present
ballot title we must first ascertain what changes in the law would be
brought about by the adoption of the proposed amendment. For the
elector, in voting upon a constitutional amendment, is simply
making a choice between retention 9f the existing law and the
substitution of something new. It is the function of the ballot title to
provide information concerning the choice that he is called upon to
make. Hence the adequacy of the title is directly related to the degree
to which it enlightens the voter with reference to the changes that he
is given the opportunity of approving.16
Without information regarding the extent to which your proposal would change
current law, it will be impossible for a voter to make an informed "choice between
retention of the existing law and the substitution of something new."17
The court has held that "a ballot title is not insufficient merely because it fails to
reflect the current state of the law."18 But a ballot title will be deemed insufficient
if it does not give the voters a clear understanding of the "extent and import" of
the proposal, particularly when they are being asked to amend the constitution:
16 Bradley v. Hall, 220 Ark. 925, 927, 251 S.W.2d 470, 471 (1952).
11 Id.
18 May at 116, 194 S.W.3d at 783. David A. Couch
Attorney at Law
Opinion No. 2016-041
Page 7
If the voter knows the extent and import of such a proposal, it is the
voter's decision, not ours, as to the wisdom of the proposal. But at
the same time the voters have placed on this court the duty and
responsibility to see that when they vote that change, or decline to
vote that change, especially one to alter their constitution, they are
allowed to make an intelligent choice, fully aware of the
consequences of their vote.19
In my opinion, your ballot title fails to adequately convey the proposed change(s)
in law so that the voters will have a fair understanding of the issue(s).20 It fails to
give the voter a full understanding of how the proposed constitutional amendment
relates to the current statutes that address election spending and that deal with
matters that overlap your proposal.21 A more complete effort to summarize and
explain to voters how the proposal would change current law in this respect must
be undertaken. Without such, the ballot title is deficient.
The precise manner in which you acknowledge your proposal's effects on existing
law is a matter for you to determine and submit to this office in draft form. While I
can modify a proposed ballot title to render it a more accurate summary of the
measure, I am not authorized to craft a ballot title that amounts to an independent
product. Where a proposed ballot title does not comply with the rules governing
the initiative process, including the requirement to summarize the proposal and its
effects in a fair, accurate, and complete manner, and the ballot title is therefore
significantly misleading, this office may decline to prepare a substitute. 22
CONCLUSION
My office, in the certification of ballot titles and popular names, does not address
the merits, philosophy, or ideology of proposed measures. I have no constitutional
role in the shaping or drafting of such measure.s. My statutory mandate is
embodied only in Ark. Code Ann. § 7-9-107, and my duty is to the electorate.
19 Dust v. Riviere, 277 Ark. I, 4, 638 S.W.2d 663, 665 (1982).
2° Compare Scott v. Priest, 326 Ark. 328, 332, 932 S.W.2d 746, 747 (1996).
21 See note 15, supra.
22 See Op. Att'y Gen. 2012-033 (and opinions cited therein). David A. Couch
Attorney at Law
Opinion No. 2016-041
Page 8
Based on what has been submitted, my statutory duty is to reject your proposed
popular name and ballot title for the foregoing reasons and instruct you to redesign
the proposed measure and ballot title and popular name. 23 You may resubmit your
proposed amendment along with a proposed popular name and ballot title at your
convemence.
Sincerely,
~~
LESLIE RUTL~
Attorney General
Enclosure
23 Ark. Code Ann. § 7-9-107(c). Popular Name:
An Amendment to Prohibit Lobbyist Gifts to Certain Elected and
Appointed Officials, Prohibiting Political Action Committees that Accept
Contributions From Corporations from Contributing to Candidates,
Requiring Disclosure of Sources of Independent Expenditures and
Reducing Campaign Contributions to Candidates.
Ballot Title:
An Amendment to the Arkansas Constitution Prohibiting Persons Elected
or Appointed to Certain Offices from Accepting Certain Gifts From
Lobbyists, Specifically Food or Drink at a Planned Activity, Payments by
Regional and National Organizations for Travel to Regional or National
Conferences, and Gifts that are not used and which are Returned within
Thirty (30) days after receipt; Removing the ability of the General
Assembly to Amend Article 19, Section 30 of the Arkansas Constitution;
Prohibiting Political Action Committees that Accepts Contributions for
Corporations or Limited Liability Companies from Making Contributions
to Candidates for Public Office; Removing the Ability of the General
Assembly to Amend Article 19, Section 28 of the Arkansas Constitution;
Requiring a Person Who Makes and Independent Expenditure or Covered
Transfer in the Amount of Two Thousand Dollars ($2,000.00) or More in
a Calendar Year to File a Report With the Secretary of State or County
Clerk (whichever is appropriate), Providing that the Report Shall Include
the Name of the Person, The Amount of the Independent Expenditure or
Covered Transfer, the Election to Which the Independent Expenditure
Pertains and the Name of the Candidate Identified and Whether the
Independent Expenditure Was Made In Support or In Opposition to the
Candidate; Defining Covered Transfers, Disbursements and Independent
Expenditures; Defining independent expenditure to mean an
Expenditure for a Communication Clearly Identifying a Candidate and
Either Advocating the Election or Defeat of That Candidate or Being
Published Within 60 Days of an Election; Defining Covered Transfer to
Mean a Payment of Funds Designated to Be Used for Independent
Expenditures, Made in Response to a Solicitation Indicating the Funds
Will be Used for Independent Expenditures, or Made Under Other
Specified Circumstances Indicating the Funds Would Likely Be Used for
Independent Expenditures; Requiring Informational Disclaimers on
Political Advertisements; Providing that The Arkansas Ethics
Commission Shall have Jurisdiction Over Independent Expenditures and
Setting Criminal and Civil Penalties for Violations; and Reducing the
Maximum Amount a Candidate for Public Office Can Accept From Two
Thousand Seven Hundred Dollars ($2,700.00) to One Thousand Five
Hundred Dollars ($1,500.00) Stricken language would be deleted from and underlined language would be
added to the law as It existed.
Article 19, § 28, Arkansas Constitution, is amended to read as follows:
Contributions
(a)(1) It is unlawful for a candidate for public office or a person acting on the candidate's
behalf to:
(A) Accept a contribution from other than:
(i) An individual;
(ii) A political party that meets the definition of a political party under Arkansas Code§
7-1-101;
(iii) A political party that meets the requirements of Arkansas Code§ 7-7-205;
(iv) A county political party committee;
(v) A legislative caucus committee; or
(vi) An approved political action committee; or
(B) Accept a contribution in excess of the maximum amount allowed by la'lt' one
thousand five hundred dollars ($1.500.00) per election from:
(i) An individual;
(ii) A political party that meets the definition of a political party under Arkansas Code §
7-1-101;
(iii) A political party that meets the requirements of Arkansas Code§ 7-7-205;
(iv) A county political party committee;
(v) A legislative caucus committee; or
(vi) An approved political action committee.
(2) A candidate may accept a contribution or contributions up to the maximum amount
allowed by law from a prospective contributor for each election, whether opposed or
unopposed.
(b)(1) It is unlawful for an individual, a political party that meets the definition of a political party under Arkansas Code § 7-1-1 O 1 , a political party that meets the
requirements of Arkansas Code§ 7-7-205, a county political party committee, a
legislative caucus committee, or an approved political action committee to make a
contribution to a candidate for public office, or to a person acting on the candidate's
behalf, that in the aggregate exceeds the maximum amount allowed by law.
(2) The following entities may make a contribution or contributions up to the maximum
amount allowed by law to a candidate, whether opposed or unopposed, for each
election:
(A) An individual;
(8) A political party that meets the definition of a political party under Arkansas Code §
7-1-101;
(C) A political party that meets the requirements of Arkansas Code§ 7-7-205;
(D) A county political party committee;
(E) A legislative caucus committee; or
(F) An approved political action committee.
(c) As used in this section:
(1)
(A) "Approved political action committee" means any person that:
(i) Receives contributions from one (1) or more persons, but not from any limited liability
company or corporation, in order to make contributions to a candidate, ballot question
committee, legislative question committee, political party, county political party
committee, or other political action committee;
(ii) Does not accept any contribution or cumulative contributions in excess of five
thousand dollars ($5,000) from any person in any calendar year; and
(iii) Registers pursuant to Arkansas Code§ 7-6-215 prior to making contributions.
(8) "Approved political action committee" does not include an organized political party
as defined in§ 7-1-101, a county political party committee, the candidate's own
campaign committee, an exploratory committee, or a ballot question committee or
legislative question committee as defined in§ 7-9-402;
(2) "Candidate" means an individual who has knowingly and willingly taken affirmative action, including solicitation of funds, for the purpose of seeking nomination for or
election to any public office;
(3)
(A) "Contribution" or "contributions" means, whether direct or indirect, advances,
deposits, or transfers of funds, contracts, or obligations, whether or not legally
enforceable, payments, gifts, subscriptions, assessments, payment for services, dues,
advancements, forbearance, loans, or pledges or promises of money or anything of
value, whether or not legally enforceable, to a candidate, committee, or holder of
elective office made for the purpose of influencing the nomination or election of any
candidate.
(8)
(i) "Contribution" or "contributions" includes the purchase of tickets for events such as
dinners, luncheons, rallies, and
similar fundraising events; the granting of discounts or rebates by television and radio
stations and newspapers not extended on an equal basis to all candidates for the same
office; and any payments for the services of any person serving as an agent of a
candidate or committee by a person other than the candidate or committee or persons
whose expenditures the candidates or committee must report under Arkansas law.
(ii) "Contribution" or "contributions" further includes any transfer of anything of value
received by a committee from another committee.
(C) "Contribution" or "contributions" does not include noncompensated, nonreimbursed,
volunteer personal services or travel;
( 4) "County political party committee" means a person that:
(A) Is organized at the county level for the purpose of supporting its affiliate party and
making contributions;
(8) Is recognized by an organized political party, as defined in Arkansas Code§ 7-1-
101, as being affiliated with that political party;
(C) Receives contributions from one (1) or more persons in order to make contributions
to a candidate, ballot question committee, legislative question committee, political party,
political action committee, or other county political party committee;
(D) Does not accept any contribution or cumulative contributions in excess of five thousand dollars ($5,000) from any person in any calendar year; and
(E) Registers pursuant to Arkansas Code§ 7-6-226 prior to making contributions;
(5)
(A) "Election" means each election held to nominate or elect a candidate to any public
office, including school elections.
(8) For the purposes of this section, a preferential primary, a general primary, a special
election, and a general election shall each constitute a separate election;
(6) "Expenditure" or
11
expenditures
11
means a purchase, payment, distribution, gift, loan,
or advance of money or anything of value, and a contract, promise, or agreement to
make an expenditure, made for the purpose of influencing the nomination or election of
any candidate;
(7)
(A) "Exploratory committee" means a person that receives contributions which are held
to be transferred to the campaign of a single candidate in an election.
(8) "Exploratory committee" does not include:
(i) A political party:
(a) That meets the definition of a political party under Arkansas Code § 7-1-1 O 1 ; or
(b) A political party that meets the requirements of Arkansas Code§ 7:-7-205; or
(ii) The candidate's own campaign committee;
(8)
(A) "Legislative caucus committee" means a person that is composed exclusively of
members of the General Assembly, that elects or appoints officers and recognizes
identified legislators as members of the organization, and that exists for research and
other support of policy development and interests that the membership hold in common.
(8) "Legislative caucus committee" includes, but is not limited to, a political party caucus
of the General Assembly, the Senate, or the House of Representatives.
(C) An organization whose only nonlegislator members are the Lieutenant Governor or
the Governor is a "legislative caucus committee" for the purposes of this section; (9)
(A) "Person" means any individual, proprietorship, firm, partnership, joint venture,
syndicate, labor union, business trust, company, corporation, association, committee, or
any other organization or group of persons acting in concert.
(B) "Person" includes:
(i) A political party that meets the definition of a political party under Arkansas Code § 7-
1-101 or a political party that meets the requirements of Arkansas Code§ 7-7-205;
(ii) A county political party committee; and
(iii) A legislative caucus committee; and
(10) "Public office" means an office created by or under authority of the laws of the State
of Arkansas or of a subdivision thereof that is filled by the voters, except a federal office.
(d)(1) A person who knowingly violates this section is guilty of a Class A misdemeanor.
(2) In addition to the penalty under subdivision (d)(1) of this section, the General
Assembly shall provide by law for this section to be under the jurisdiction of the
Arkansas Ethics Commission, including without limitation authorization of the following
actions by the Arkansas Ethics Commission:
(A) Promulgating reasonable rules to implement and administer this section as
necessary;
(B) Issuing advisory opinions and guidelines on the requirements of this section; and
(C) Investigating complaints of alleged violations of this section and rendering findings
and disciplinary action for such complaints.
(e)(1) Exoept as pro·1ided in subdi..-ision (e)(2) of this seotion, the General Assembly, in
the same manner as required for amendment of laws initiated by the people, may
amend this seotion so long as suoh amendments are germane to this seotion and
consistent ·.vith its policy and purposes. (2) The General Assembly may amend
subseotion (d) of this seotion by a majority \<ote of eaoh house.
Article 19, § 30, Arkansas Constitution, Article 19, § 30, is amended to read as follows:
§ 30. Gifts from lobbyists.
(a) Persons elected or appointed to the following offices shall not knowingly or willfully
solicit or accept a gift from a lobbyist, a person acting on behalf of a lobbyist, or a person employing or contracting with a lobbyist:
(1) Governor;
(2) Lieutenant Governor;
(3) Secretary of State;
(4) Treasurer of State;
(5) Auditor of State;
(6) Attorney General;
(7) Commissioner of State Lands;
(8) Member of the General Assembly;
(9) Chief Justice of the Supreme Court;
(10) Justice of the Supreme Court;
(11) Chief Judge of the Court of Appeals;
(12) Judge of the Court of Appeals;
(13) Circuit courtjudge;
(14) District court judge;
(15) Prosecuting attorney; and
(16) Member of the independent citizens commission for the purpose of setting
salaries of elected constitutional officers of the executive department, members of the General
Assembly, justices, and judges under Article 19, § 31, of this Constitution.
(b) As used in this section:
(1 )(A) "Administrative action" means a decision on, or proposal, consideration, or
making of a rule, regulation, ratemaking proceeding, or policy action by a governmental body.
(8) "Administrative action" does not inc1ude ministeria1 action;
(2)(A) "Gift" means any payment, entertainment, advance, services, or anything of value, unless consideration of equal or greater value has been given therefor.
(8)
11
Gift" does not include:
(i)(a) Informational material such as books, reports, pamphlets,
calendars, or periodicals informing a person elected or appointed to an office under subsection
(a) of this section regarding his or her official duties.
(b) Payments for travel or reimbursement for any expenses
are not informational material;
(ii) Gifts that are not used and whioh, within thirty (30) days after
reoeipt, are returned to the donor;
{iiij (ii) Gifts from the spouse, child, parent, grandparent, grandchild,
brother, sister, parent-in-law, brother-in-law, sister-in-law, nephew, niece, aunt, uncle, or first
cousin of a person elected or appointed to an office under subsection (a) of this section, or the
spouse of any of these persons, unless the person is acting as an agent or intermediary for
any person not covered by this subdivision (b)(2)(B)(iii);
tiV) (iii) Anything of value that is readily available to the general
public at no cost;
(¥)(a)(1) l=ood or drink w1ailable at a planned aoti¥ity to ·11hioh a
specific go'lernmental body is in¥itod, including 1Nithout limitation a governmental body to 'Nhich
a person eleoted or appointed to an o#ice under subsection (a) of this section is not a member.
(2) If a oommittee of the General Assembly is in'lited
to a planned aoti'lity under subdi'lision (b)(2)(8)('1)(a)(1) of this seotion, only members of the
oommittee of the General Assembly may aooept food or drink at the planned aGti'lity.
(b)(1) As used in this subdi'lision (b)(2)(B)(v),
11
planned
aotivity11 means an e'lent for which a ·.witten in'litation is distributed eleotronioally or by other
means by the lobbyist, person acting on behalf of a lobbyist, or a person employing or
oontraoting with a lobbyist to the members of the speoifio go'lernmental body at least twenty
four (24) hours before the e'lent
(2) As used in this subdi•1ision (b)(2)(8)('+'),
11
planned
aoti•1ity" does not include food or drink available at a meeting of a specific governmental body
for which the person eleoted or appointed to an o#ioe under subseotion (a) of this seotion is entitled to receive per diem for attendance at the meeting.
(e) A lobbyist, a person acting on behalf of a lobbyist, or a
person employing or contrasting with a lobbyist shall not otter or pay for food or drink at more
than one (1) planned activity in a seven day period;
(•1i)(a) Payments by regional or national organi2ations for travel to
regional or national eonferenees at whieh the State of ft,rkansas is requested to be represented
by a person or persons elected or appointed to an ottioe under subsection (a) of this section;.
(b) As used in this subdivision (b)(2)(8)(vi), "travel" means
transportation, lodging, and eonforenoe registration foes.
(o) This section does not prohibit the aeoeptanee of:
(1) Food, drink, informational materials, or other
items included in tho eonferenoe registration fee; and
(2) Food and drink at events ooordinated through tho
regional or national conference and provided to persons registered to attend the regional or
national oonforoneo;
(viij (iv) Campaign contributions;
fvHit (v) Any devise or inheritance;
~ (vi) Salaries, benefits, services, fees, commissions, expenses,
or anything of value in connection with:
(a) The employment or occupation of a person elected or
appointed to an office under subsection (a) of this section or his or her spouse so long as the
salary, benefit, service, fee, commission, expense, or anything of value is solely connected
with the person's employment or occupation and is unrelated to and does not arise from the
duties or responsibilities of the office to which the person has been elected or appointed; or
(b) Service as an officer, director, or board member of a
corporation, a firm registered to do business in the state, or other organization that files a state
and federal tax return or is an affiliate of an organization that files a state and federal tax return
by a person elected or appointed to an office under subsection (a) of this section or his or her
spouse so long as the salary, benefit, service, fee, commission, expense, or anything of value is solely connected with the person's service as an officer, director, or board member and is
unrelated to and does not arise from the duties or responsibilities of the office to which the
person has been elected or appointed; and
W (vii) A personalized award, plaque, or trophy with a value of one
hundred fifty dollars ($150) or less;
(3) "Governmental body" or "governmental bodies" means an office, department,
commission, council, board, committee, legislative body, agency, or other establishment of the
executive, judicial, or legislative branch of the state, municipality, county, school district,
improvement district, or any political district or subdivision thereof;
(4)(A) "Income" means any money or anything of value received or to be
received as a claim for future services, whether in the form of a retainer, fee, salary, expense,
allowance, forbearance, forgiveness, interest, dividend, royalty, rent, or any other form of
recompense or any combination thereof.
(B) "Income" includes a payment made under obligation for services or
other value received;
(5) "Legislative action" means introduction, sponsorship, consideration, debate,
amendment, passage, defeat, approval, veto, or any other official action or nonaction on any
bill, ordinance, law, resolution, amendment, nomination, appointment, report, or other matter
pending or proposed before a committee or house of the General Assembly, a quorum court,
or a city council or board of directors of a municipality;
(6) "Legislator" means a person who is a member of the General Assembly, a
quorum court of a county, or the city council or board of directors of a municipality;
(7) "Lobbying" means communicating directly or soliciting others to communicate
with a public servant with the purpose of influencing legislative action or administrative action;
(8) "Lobbyist" means a person who:
(A) Receives income or reimbursement in a combined amount of four
hundred dollars ($400) or more in a calendar quarter for lobbying one (1) or more
governmental bodies;
(B) Expends four hundred dollars ($400) or more in a calendar quarter for
lobbying one (1) or more governmental bodies, excluding the cost of personal travel, lodging, meals, or dues; or
(C) Expends four hundred dollars ($400) or more in a calendar quarter,
including postage, for the express purpose of soliciting others to communicate with a public
servant to influence any legislative action or administrative action of one (1) or more
governmental bodies unless the communication has been filed with the Secretary of State or
the communication has been published in the news media. If the communication is filed with
the Secretary of State, the filing shall include the approximate number of recipients;
(9)(A) "Person" means a business, individual, union, association, firm,
committee, club, or other organization or group of persons.
(8) As used in subdivision (b)(9)(A) of this section, "business" includes
without limitation a corporation, partnership, sole proprietorship, firm, enterprise, franchise,
association, organization, self-employed individual, receivership, trust, or any legal entity
through which business is conducted;
(10)(A) "Public appointee" means an individual who is appointed to a
governmental body.
(8) "Public appointee" does not include an individual appointed to an
elective office;
(11 )(A) "Public employee" means an individual who is employed by a
governmental body or who is appointed to serve a governmental body.
(8) "Public employee" does not include a public official or a public
appointee;
(12) "Public official" means a legislator or any other person holding an elective
office of any governmental body, whether elected or appointed to the office, and shall include
such persons during the time period between the date they were elected and the date they
took office; and
(13) "Public servant" means all public officials, public employees, and public
appointees.
(c)(1) A person who knowingly violates this section is guilty of a Class 8 misdemeanor.
(2) In addition to the penalty under subdivision (c)(1) of this section, the General Assembly shall provide by law for this section to be under the jurisdiction of the Arkansas
Ethics Commission, including without limitation authorization of the following actions by the
Arkansas Ethics Commission:
(A) Promulgating reasonable rules to implement and administer this
section as necessary;
(8) Issuing advisory opinions and guidelines on the requirements of this
section; and
(C) Investigating complaints of alleged violations of this section and
rendering findings and disciplinary action for such complaints.
(8)(A) It is an affirmative defense to proseeution or dis6iplinary aotion under
subdivisions (6)(1) and (2) of this seotion that a person ele6ted or appointed to an o#iee under
subseetion (a) of this seotion takes one (1) of the follo·11ing a6tions within thirty (30) days of
dis6overing or learning of an unintentional violation of this seotion:
(i) Returns the gift to the donor; or
(ii) If the gift is not returnable, pays the donor 6onsideration that is
equal to or greater than the value of the gift.
(B)(i) The Arkansas Ethi6s Commission shall not proeeed •11ith an
investigation of an alleged violation of this seetion if the Arkansas Ethi6s Commission
determines that a person would be eligible to raise the affirmative defense under subdivision
(6)(8)(A) of this seotion.
(ii) If the Arkansas Ethi6s Commission does not proeeed with an
investigation of an alleged violation under subdivision (e)(3)(8)(i) of this seotion, the person
shall not be eonsidered to have eommitted a violation.
(C) This subdivision (6)(8) shall not be eonstrued to authorize a person to
knowingly or •Nillfully solieit or aeoept a gift in violation of this seetion.
(d)(1) Exeept as provided in subdivision (d)(2) of this seetion, the General Assembly, in
the same manner as required for amendment of la·11s initiated by the people, may amend this
se6tion so long as su6h amendments are germane to this seotion and 6onsistent with its polioy
and purposes. (2) The General Assembly may amend subseotion (o) of this section by a majorit)'
vote of eash house.
Article 19, § 32, is added to the Arkansas Constitution.
Independent Expenditures
Section 1. Definitions
(1) (A) "Covered transfer" means any transfer or payment of funds by a person other
than an individual to another person if the first person:
(i) Designates. requests. or suggests that the amounts be used for:
(a) Independent expenditures: or
(b Making a transfer to another person for the purpose of making or paying for
independent expenditures:
(ii) Made such transfer or payment in response to a solicitation or other reguest tor a
donation or payment tor:
(i) The making of or paying for independent expenditures: or
(ii) Making a transfer to another person for the purpose of making or paying
for independent expenditures:
(iii) Engaged in discussions with the recipient of the transfer or payment regarding:
(i) The making of or paying for independent expenditures: or
(ii) Making a transfer to another person for the purpose of making or paying
for independent expenditures:
(iv) Made independent expenditures in an aggregate amount of [two-thousand
dollars ($2.000)] or more during the 1-year period ending on the date of the transfer
or payment. or knew or had reason to know that the person receiving the transfer or
payment made such independent expenditures in such an aggregate amount during
that 1-year period: or
(v) Knew or had reason to know that the person receiving the transfer or payment
would make independent expenditures in an aggregate amount of [two-thousand
dollars ($2.000)] or more during the 1-year period beginning on the date of the
transfer or payment.
(B) However. the term "covered transfer" does not include:
(i) a disbursement made by a person in a commercial transaction in the ordinary course
of any trade or business conducted by that person or in the form of investments made
by that person:
(ii) a disbursement made by a person if that person prohibited. in writing. the use of
such disbursement for campaign-related disbursements and the recipient of the disbursement followed the prohibition and deposited the disbursement in an account
segregated from any account used to make campaign-related disbursements:
{iii) a disbursement made by a vendor or collecting agent to a recipient from an account
established to collect contributions on behalf of such recipient. provided such funds are
transferred to the recipient within 14 days and the recipient reports as a contribution the
entire amount authorized by the original contributor as well as the name and address of
the original contributor and the date on which the contribution was made by the original
contributor.
(2) "Disbursement" means any purchase or payment.
(3)(A) "Independent expenditure" means any expenditure for a communication that is
not a contribution and that:
(i) Refers to a clearly identified candidate for state or local elective office: and
(ii) Is made without arrangement. cooperation. or consultation between any
candidate or any authorized committee or agent of a candidate and the person
making the expenditure or any authorized agent of that person. and is not made
in concert with or at the reguest or suggestion of any candidate or any authorized
committee or agent of the candidate: and
(iii) Satisfies at least one of the following standards:
(a) Contains express advocacy. or its functional equivalent because it is
suggestive of no reasonable meaning other than an exhortation to vote for or
against a candidate. for the election or defeat of a clearly identified candidate
for office: or
(b) Is disseminated. broadcast or otherwise published within 60 days of the
election sought by a candidate and targets the clearly identified candidate's
electorate. For purposes of this sub-paragraph. a communication "targets the
clearly identified candidate's electorate" if it can be received by:
(i) For broadcast. cable. satellite or electronic communications: 15.000 or
more individuals in the state for statewide office. or 5 percent of the
jurisdiction's population or 3.000 or more individuals. whichever is less. for
other offices: or
(ii) For mass mailing. print or telephone bank: 2.500 or more "households"
in the state for statewide office. or 5 percent of the jurisdiction's
"households" or 500 or more "households." whichever is less. for other
offices.
(8) "Independent Expenditure" does not include-
(i) A communication appearing in a news story. commentary. or editorial
distributed through the facilities of any broadcasting station. newspaper. magazine. or other periodical publication. unless such facilities are owned or
controlled by any political party. political committee. or candidate:
(ii) A communication that constitutes a candidate debate or forum conducted
pursuant to regulations adopted by the Arkansas Ethics Commission. or that
solely promotes such a debate or forum and is made by or on behalf of the
person sponsoring the debate or forum: and
(iii) Any other communication exempted under such regulations as the Arkansas
Ethics Commission may promulgate consistent with this Article.
Section 2. Reporting of Independent expenditures and covered transfers.
(A) A person that makes independent expenditures or covered transfers in an
aggregate amount of two-thousand dollars ($2.000) or more in a calendar year shall
file reports with the Secretary of State or County Clerk. whichever is appropriate.
( 1) No later than sixty (60) days prior to preferential primary elections. general
elections. and special elections covering the period beginning January 1 of the
calendar year preceding the year in which the election is held and ending sixty-
five (65) days prior to such elections:
(2) No later than thirty (30) days prior to preferential primary elections. general
elections. and special elections covering the period ending thirty-five (35) days
prior to such elections:
(3) No later than seven (7) days prior to preferential primary elections. runoff
elections. general elections. and special elections covering the period ending ten
(10) days prior to such elections:
(4) Within 24 hours for independent expenditures or covered transfers
aggregating two-thousand dollars ($2.000) or more during the ten (10) days
preceding an election: and
(3) As for a final report. no later than thirty (30) days after the end of the month in
which the last election is held at which the candidate seeks nomination or
election.
(8) Such reports shall include:
(1) The name of the person and the principal place of business of such person.
(2) The amoynt of each independent expenditure and covered transfer made by
such person during the period covered by the statement of two-thousand dollars
($2.000) or more. and the name and address of the person to whom the
independent expenditure or covered transfer was made.
(3) In the case of an independent expenditure. the election to which the
independent expenditure pertains and if the expenditure is made for a public
communication. the name of any candidate identified in such communication and
whether such communication is in support of or in opposition to a candidate. (4) A certification that the independent expenditure is not made in cooperation.
consultation. or concert with or at the request or suggestion of a candidate.
authorized committee. or agent of a candidate. political party. or agent of a
political party.
(5) If the person makes independent expenditures or covered transfers using
exclusively funds in a segregated bank account consisting of funds that were
paid directly to such account by persons other than the person that controls the
account. for each such payment to the account:
(A) the name and address of each person who made such payment or
payments in the aggregate of five-hundred dollars ($500) or more during the
period covered by the report:
(8) the date and amount of such payment: and
{C) the aggregate amount of all such payments made by the person during
the period beginning on the first day of the election reporting cycle and ending
on the disclosure date.
(6) If the person makes independent expenditures or covered transfers using
funds other than funds in a segregated bank account described in subparagraph
(5). for each payment to the person:
(A) the name and address of each person who made such payment or
payments in the aggregate of five-hundred dollars ($500) or more during the
period covered by the report:
(8) the date and amount of such payment: and
{C) the aggregate amount of all such payments made by the person during
the period beginning on the first day of the election reporting cycle and ending
on the disclosure date.
(7) Such reports shall include any additional information required of candidates
for office other than school district. township. municipal. or county office as set
forth in § 7-6-207(b)(1 ).
(8) Exceptions.
(a). AMOUNTS RECEIVED IN ORDINARY COURSE OF BUSINESS. The
requirement to include in a report the information described in subparagraphs
(5) and (6) shall not apply to amounts received by the person in commercial
transactions in the ordinary course of any trade or business conducted by the
person or in the form of investments (other than investments by the principal
shareholder in a limited liability corporation) in the person.
(b) DONOR RESTRICTION ON USE OF FUNDS. The requirement to include
in a report the information described in subparagraph (6) shall not apply if the
person described in such subparagraph prohibited. in writing. the use-of the
payment made by such person for independent expenditures and covered transfers and the receiving person in fact did not use the payment for
independent expenditures or covered transfers and deposited the payment in
an account that is segregated from any account used to make independent
expenditures or covered transfers.
(9) For the purpose of this section. "payment" means any 'contribution. donation.
transfer. payment of dues. or other gift of money or anything of value.
(C) The report shall be verified by an affidavit of the reporting individual or. in the
case of a person other than an individual. an officer of the person stating that to the
best of his or her knowledge and belief the information disclosed is a complete. true.
and accurate financial statement of the person's payments and contributions
received and made.
(D) The report shall be filed using the Secretary of State's Online Filing system.
Section 3. Disclaimers on political advertisements
(A) Whenever any candidate or committee makes a disbursement for the
purpose of financing any communication through any broadcasting station.
newspaper. magazine. outdoor advertising facility. mailing. or any other type of
general public political advertising. or whenever any person other than a committee
makes a disbursement for an independent expenditure or to solicit a contribution.
such communication shall clearly contain the words "Paid for by." followed by the
name. permanent street address. telephone number or World Wide Web address of
the candidate. committee. or person who paid for the message.
(8) Both the person placing and the person publishing the communication shall
be responsible for including the required disclaimer.
Section 4. Jurisdiction and Penalties
(A)(1) A person who knowingly violates this Article is guilty of a Class A misdemeanor.
(2) In addition to the criminal penalty. this Article shall be under the jurisdiction of the
Arkansas Ethics Commission. including without limitation authorization of the following actions
by the Arkansas Ethics Commission:
(A) Promulgating reasonable rules to implement and administer this Article as
necessary:
(8) Issuing advisory opinions and guidelines on the requirements of this Article:
(C) Investigating complaints of alleged violations of this Article and rendering
findings and disciplinary action for such complaints.
(D) If the commission finds a violation then the commission shall do one (1) or more of the following. unless good cause be shown tor the violation:
(a) Issue a public letter of caution or warning or reprimand: and
(b) Impose a fine of not less than fifty dollars ($50.00) nor more
than ten thousand dollars ($10.000) or three times the amount contributed.
received or spent in violation of this Article whichever is greater.