Bill Text: IL SB2127 | 2023-2024 | 103rd General Assembly | Introduced

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Bill Title: Creates the Illinois Clean Elections Act. Establishes a voluntary method of public financing of the campaigns of candidates for statewide constitutional offices and the General Assembly. Amends the State Finance Act to create the Illinois Clean Elections Fund as a special fund in the State treasury. Amends the Illinois Income Tax Act to create an individual tax return checkoff in support of the Fund. Effective immediately.

Spectrum: Partisan Bill (Democrat 1-0)

Status: (Introduced) 2023-03-10 - Rule 3-9(a) / Re-referred to Assignments [SB2127 Detail]

Download: Illinois-2023-SB2127-Introduced.html

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103RD GENERAL ASSEMBLY State of Illinois 2023 and 2024 SB2127 Introduced 2/10/2023, by Sen. Rachel Ventura SYNOPSIS AS INTRODUCED:
New Act
30 ILCS 105/5.990 new
35 ILCS 5/507MMM new
Creates the Illinois Clean Elections Act. Establishes a voluntary method of public financing of the campaigns of candidates for statewide constitutional offices and the General Assembly. Amends the State Finance Act to create the Illinois Clean Elections Fund as a special fund in the State treasury. Amends the Illinois Income Tax Act to create an individual tax return checkoff in support of the Fund. Effective immediately.
LRB103 28347 BMS 54726 b
A BILL FOR
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AN ACT concerning elections.
Be it enacted by the People of the State of Illinois,
represented in the General Assembly:
Section 1. Short title. This Act may be cited as the
Illinois Clean Elections Act.
Section 5. Definitions. As used in this Act:
"Certified candidate" means a candidate running for
Governor, Secretary of State, Attorney General, State
Treasurer, State Comptroller, State Senator, or State
Representative, in a primary election, and Governor, Secretary
of State, Attorney General, State Treasurer, State
Comptroller, State Senator, or State Representative, in a
general election who chooses to participate in this Act and
who is certified as an Illinois Clean Elections Act candidate
under subsection (e) of Section 20 of this Act.
"Contribution" has the same meaning as in Article 9 of the
Election Code.
"Fund" means the Illinois Clean Elections Fund established
in Section 15 of this Act.
"Nonparticipating candidate" means a candidate running for
Governor, Secretary of State, Attorney General, State
Treasurer, State Comptroller, State Senator, or State
Representative, in a primary election, and Governor, Secretary

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of State, Attorney General, State Treasurer, State
Comptroller, State Senator, or State Representative, in a
general election who does not choose to participate in this
Act and who is not seeking to be certified as an Illinois Clean
Elections Act candidate.
"Participating candidate" means a candidate who is running
for Governor, Secretary of State, Attorney General, State
Treasurer, State Comptroller, State Senator, or State
Representative, in a primary election, and Governor, Secretary
of State, Attorney General, State Treasurer, State
Comptroller, State Senator, or State Representative, in a
general election who is seeking to be certified as an Illinois
Clean Elections Act candidate.
"Qualifying contribution" means a donation:
(1) Of $5 in the form of a check or a money order
payable to the Fund in support of a candidate;
(2) Made by a registered voter within the district for
the office a candidate is seeking;
(3) Made during the designated qualifying period and
obtained with the knowledge and approval of the candidate;
and
(4) That is acknowledged by a written receipt that
identifies the name and address of the donor on forms
provided by the State Board.
"Qualifying period" means the following:
(1) For a participating candidate for Governor,

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Secretary of State, Attorney General, State Treasurer, or
State Comptroller, the qualifying period begins November 1
immediately preceding the election year and ends at 5:00
p.m. on April 15 of the election year unless the candidate
is unenrolled, in which case the period ends at 5:00 p.m.
on June 2 of the election year.
(2) For State Senate or State House of Representatives
participating candidates, the qualifying period begins
January 1 of the election year and ends at 5:00 p.m. on
April 15 of that election year unless the candidate is
unenrolled, in which case the period ends at 5:00 p.m. on
June 2 of the election year.
"Seed money contribution" means a contribution of no more
than $100 per individual made to a contribution from the
candidate or the candidate's family. To be eligible for
certification, a candidate may collect and spend only seed
money contributions subsequent to becoming a candidate as
defined by Article 9 of the Election Code and throughout the
qualifying period. A participating candidate who has accepted
contributions or made expenditures that do not comply with the
seed money restrictions under this Act may petition the State
Board to remain eligible for certification as an Illinois
Clean Elections Act candidate in accordance with rules of the
State Board, if the failure to comply was unintentional and
does not constitute a significant infraction of these
restrictions. Prior to certification, a candidate may obligate

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an amount greater than the seed money collected if the value of
the goods and services received from a vendor does not exceed
the amount paid to the vendor. A candidate may not collect or
spend seed money contributions after certification as an
Illinois Clean Elections Act candidate. A seed money
contribution must be reported according to procedures
developed by the State Board.
"State Board" means the State Board of Elections.
Section 10. Alternative campaign financing option. This
Act establishes an alternative campaign financing option
available to candidates running for Governor, Secretary of
State, Attorney General, State Treasurer, State Comptroller,
State Senator, and State Representative. This alternative
campaign financing option is available to candidates for
elections to be held beginning in the year 2024. The State
Board shall administer this Act and the Fund. Candidates
participating in this Act must also comply with all other
applicable election and campaign laws and regulations.
Section 15. The Illinois Clean Elections Fund established;
sources of funding.
(a) The Illinois Clean Elections Fund is established as a
special fund in the State treasury to finance the election
campaigns of certified Illinois Clean Elections Act candidates
running for Governor, Attorney General, Secretary of State,

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State Treasurer, State Comptroller, State Senator, and State
Representative and to pay administrative and enforcement costs
of the State Board related to this Act. Any interest generated
by the Fund is credited to the Fund. The State Board shall
administer the Fund.
(b) The following must be deposited into the Fund:
(1) The qualifying contributions required under
Section 20 of this Act when those contributions are
submitted to the State Board.
(2) $40,000,000 of the revenues from the taxes imposed
by the Illinois Income Tax Act and credited to the General
Revenue Fund, transferred to the Fund by the State
Treasurer on or before January 1 of each year, beginning
January 1, 2024. These revenues must be offset in an
equitable manner by an equivalent reduction within the
administrative divisions of the legislative branch and
executive branch agencies. If the State Board determines
that the Fund will not have sufficient revenues to cover
the likely demand for funds from the Illinois Clean
Elections Fund in an upcoming calendar year, by January 1
the State Board shall provide a report of its projections
of the balances in the Illinois Clean Elections Fund to
the General Assembly and the Governor and may request that
the State Treasurer make the following transfers to the
Illinois Clean Elections Fund from the General Revenue
Fund:

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(A) Up to $20,000,000 no later than February 28,
2024, reflecting an advance of the transfer of the
amounts that would be received on or before January 1,
2025 pursuant to this paragraph.
(B) Up to $15,000,000 no later than July 31, 2024,
pursuant to this paragraph reflecting an advance of
the transfer of the amounts that would be received on
or before January 1, 2025 pursuant to this paragraph.
(C) Up to $5,000,000 no later than September 1,
2026, reflecting a partial advance of the transfer of
the amounts that would be received on or before
January 1, 2027 pursuant to this paragraph.
(3) Revenue from a tax checkoff program allowing a
resident of the State who files a tax return with the
Department of Revenue to designate that $3 be paid into
the Fund. If a husband and wife file a joint return, each
spouse may designate that $3 be paid. The Department of
Revenue shall report annually the amounts designated for
the Fund to the State Treasurer, who shall transfer that
amount to the Fund.
(4) Seed money contributions remaining unspent after a
candidate has been certified as an Illinois Clean
Elections Act candidate.
(5) Fund revenues that were distributed to an Illinois
Clean Elections Act candidate and that remain unspent
after the candidate has lost a primary election or after

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all general elections.
(6) Other unspent Fund revenues distributed to any
Illinois Clean Elections Act candidate who does not remain
a candidate throughout a primary or general election
cycle.
(7) Voluntary donations made directly to the Fund.
(8) Fines collected under this Act.
(c) By September 1 preceding each election year, the State
Board shall publish an estimate of revenue in the Fund
available for distribution to certified candidates during the
upcoming year's elections and an estimate of the likely demand
for clean elections funding during that election. The State
Board may submit legislation to request additional funding.
Section 20. Terms of participation.
(a) A participating candidate must file a declaration of
intent to seek certification as an Illinois Clean Elections
Act candidate and to comply with the requirements of this Act.
The declaration of intent must be filed with the State Board
prior to or during the qualifying period, except as provided
in subsection (l) of this Section, according to forms and
procedures developed by the State Board. A participating
candidate must submit a declaration of intent within 5
business days after collecting qualifying contributions under
this Act or the qualifying contributions collected before the
declaration of intent has been filed will not be counted

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toward the eligibility requirement in subsection (c) of this
Section.
(b) Subsequent to becoming a candidate defined by and
prior to certification, a participating candidate may not
accept contributions, except for seed money contributions. A
participating candidate must limit the candidate's seed money
contributions to the following amounts:
(1) $50,000 for a gubernatorial candidate.
(2) $25,000 for a candidate for Secretary of State,
Attorney General, State Treasurer, or State Comptroller.
(3) $10,000 for a candidate for the State Senate.
(4) $5,000 for a candidate for the State House of
Representatives.
The State Board may, by rule, revise these amounts to
ensure the effective implementation of this Act.
(c) Participating candidates must obtain qualifying
contributions during the qualifying period as follows:
(1) For a candidate for Governor, Secretary of State,
Attorney General, State Treasurer, or State Comptroller,
the minimum number of qualifying donations from verified
registered voters of this State is equal to the minimum
number of signatures required for a candidate petition for
a statewide office under subsection (a) of Section 7-10 of
this Code.
(2) For a candidate for the State Senate, the minimum
number of qualifying donations from verified registered

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voters of this State is equal to the minimum number of
signatures required for a candidate petition for a State
Senator under Section 8-8 of this Code.
(3) For a candidate for the State House of
Representatives, the minimum number of qualifying
donations from verified registered voters of this State is
equal to the minimum number of signatures required for a
candidate petition for a Representative in the General
Assembly under Section 8-8 of this Code.
A payment, gift, or anything of value may not be given in
exchange for a qualifying contribution. A candidate may pay
the fee for a money order in the amount of $5, which is a
qualifying contribution, as long as the donor making the
qualifying contribution pays the $5 amount reflected on the
money order. Any money order fees paid by a participating
candidate must be paid for with seed money and reported in
accordance with State Board rules.
(d) A participating candidate must submit qualifying
contributions to the State Board during the qualifying period
according to procedures developed by the State Board, except
as provided under subsection (l) of this Section.
(e) Upon receipt of a final submittal of qualifying
contributions by a participating candidate, the State Board
shall determine whether or not the candidate has:
(1) Signed and filed a declaration of intent to
participate in this Act.

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(2) Submitted the appropriate number of valid
qualifying contributions.
(3) Qualified as a candidate by petition or other
means.
(4) Not accepted contributions, except for seed money
contributions, and otherwise complied with seed money
restrictions.
(5) Not run for the same office as a nonparticipating
candidate in a primary election in the same election year.
(6) Otherwise met the requirements for participation
in this Act.
The State Board shall certify a candidate complying with
the requirements of this Section as an Illinois Clean
Elections Act candidate as soon as possible and no later than 3
business days after final submittal of qualifying
contributions. Upon certification, a candidate must transfer
to the Fund any unspent seed money contributions. A certified
candidate must comply with all requirements of this Act after
certification and throughout the primary and general election
periods. Failure to do so is a violation of this Act.
(f) After certification, a candidate must limit the
candidate's campaign expenditures and obligations, including
outstanding obligations, to the revenues distributed to the
candidate from the Fund and may not accept any contributions
unless specifically authorized by the State Board. Candidates
may also accept and spend interest earned on bank accounts.

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All revenues distributed to a certified candidate from the
Fund must be used for campaign-related purposes. The
candidate, the treasurer, the candidate's political committee,
or any agent of the candidate and committee may not use these
revenues for any but campaign-related purposes. The State
Board shall publish guidelines outlining permissible
campaign-related expenditures.
(g) The State Board shall distribute to certified
candidates revenues from the Fund in amounts determined under
subsection (h) in the following manner.
(1) Within 3 days after certification, for candidates
certified prior to March 15 of the election year, revenues
from the Fund must be distributed as if the candidates are
in an uncontested primary election.
(2) Within 3 days after certification, for all
candidates certified between March 15 and April 15 of the
election year, revenues from the Fund must be distributed
according to whether the candidate is in a contested or
uncontested primary election.
(3) For candidates in contested primary elections
receiving a distribution under paragraph (1) of this
subsection, additional revenues from the fund must be
distributed within 3 days of March 15 after the election
year.
(4) Within 3 days after the primary election results
are certified, for general election certified candidates,

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revenues from the Fund must be distributed according to
whether the candidate is in a contested or uncontested
general election.
Funds may be distributed to certified candidates under
this Section by any mechanism that is expeditious, ensures
accountability, and safeguards the integrity of the Fund.
(h) The candidate or committee shall deposit all revenues
from the Fund in a campaign account with a bank or other
financial institution. The campaign funds must be segregated
from, and may not be commingled with, any other funds.
(i) By July 1, 2024 and at least every 4 years after that
date, the State Board shall determine the amount of funds to be
distributed to participating candidates based on the type of
election and office as follows:
(1) For contested legislative primary elections, the
amount of revenues to be distributed is the average amount
of campaign expenditures made by each candidate during all
contested primary election races for the immediately
preceding 2 primary elections, as reported in the initial
filing period subsequent to the primary election, for the
respective offices of State Senate and State House of
Representatives.
(2) For uncontested legislative primary elections, the
amount of revenues distributed is the average amount of
campaign expenditures made by each candidate during all
uncontested primary election races for the immediately

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preceding 2 primary elections, as reported in the initial
filing period subsequent to the primary election, for the
respective offices of State Senate and State House of
Representatives.
(3) For contested legislative general elections, the
amount of revenues distributed is the average amount of
campaign expenditures made by each candidate during all
contested general election races for the immediately
preceding 2 general elections, as reported in the initial
filing period subsequent to the general election, for the
respective offices of State Senate and State House of
Representatives.
(4) For uncontested legislative general elections, the
amount of revenues to be distributed from the Fund is 40%
of the amount distributed to a participating candidate in
a contested general election.
(5) For gubernatorial primary elections, the amount of
revenues distributed is $2,000,000 per candidate in the
primary election.
(6) For gubernatorial general elections, the amount of
revenues distributed is $4,000,000 per candidate in the
general election.
(7) For contested primary elections for Attorney
General the amount of revenues distributed per candidate
is $500,000 per candidate.
(8) For the general election for Attorney General, the

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amount of funds distributed per candidate is $2,000,000.
(9) For primary elections for Secretary of State the
amount of revenues distributed per candidate is $500,000
per candidate.
(10) For the general election for Secretary of State,
the amount of funds distributed per candidate is
$2,000,000.
(11) For contested primary elections for State
Treasurer, the amount of revenues distributed per
candidate is $200,000.
(12) For the general election for State Treasurer, the
amount of funds distributed per candidate is $800,000.
(13) For contested primary elections for State
Comptroller, the amount of revenues distributed per
candidate is $200,000.
(14) For the general election for State Comptroller,
the amount of funds distributed per candidate is $800,000.
(15) For any uncontested primary or general election
for the office of Governor, Attorney General, Secretary of
State, State Treasurer, or Comptroller, the amount of
funds distributed shall be 40% of those otherwise
distributed in a contested primary or general election.
If the immediately preceding election cycles do not
contain sufficient electoral data, the State Board shall use
information from the most recent applicable elections.
(j) When any campaign, finance, or election report shows

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that the sum of a candidate's expenditures or obligations, or
funds raised or borrowed, whichever is greater, alone or in
conjunction with independent reported expenditures, exceeds
the distribution amount under subsection (h) of this Section,
the State Board shall issue immediately to any opposing
Illinois Clean Elections Act candidate an additional amount
equivalent to the reported excess. Matching funds are limited
to 2 times the amount originally distributed under paragraph
(1), (3), (5), or (6) of subsection (h) of this Section,
whichever is applicable.
(k) An unenrolled candidate certified by January 15
preceding the primary election is eligible for revenues from
the Fund in the same amounts and at the same time as an
uncontested primary election candidate and a general election
candidate as specified in subsections (g) and (h) of this
Section. For an unenrolled candidate not certified by January
15 at 5:00 p.m. the deadline for filing qualifying
contributions is 5:00 p.m. on June 2 preceding the general
election. An unenrolled candidate certified after January 15
at 5:00 p.m. is eligible for revenues from the Fund in the same
amounts as a general election candidate, as specified in
subsections (g) and (h) of this Section.
(l) The State Board shall establish by rule procedures for
qualification, certification, disbursement of Fund revenues,
and return of unspent Fund revenues for races involving
special elections, recounts, vacancies, withdrawals, or

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replacement candidates.
(m) Notwithstanding any other provision of law,
participating and certified candidates shall report any money
collected, all campaign expenditures, obligations, and related
activities to the State Board according to procedures
developed by the State Board. Upon the filing of a final report
for any primary election in which the candidate was defeated
and for all general elections that candidate shall return all
unspent Fund revenues to the State Board. In developing these
procedures, the State Board shall utilize existing campaign
reporting procedures whenever practicable. The State Board
shall ensure timely public access to campaign finance data and
may utilize electronic means of reporting and storing
information.
(n) The treasurer shall obtain and keep:
(1) Bank or other account statements for the campaign
account covering the duration of the campaign.
(2) A vendor invoice stating the particular goods or
services purchased for every expenditure of $50 or more.
(3) A record proving that a vendor received payment
for every expenditure of $50 or more in the form of a
cancelled check, receipt from the vendor, or bank or
credit card statement identifying the vendor as the payee.
The treasurer shall preserve the records for 2 years
following the candidate's final campaign finance report for
the election cycle. The candidate and treasurer shall submit

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photocopies of the records to the State Board upon its
request.
(o) The State Board may not distribute revenues to
certified candidates in excess of the total amount of money
deposited into the Fund as set forth in Section 15.
Notwithstanding any other provisions of this Act, if the State
Board determines that the revenues in the Fund are
insufficient to meet distributions under subsections (h) or
(i) of this Section, the State Board may permit certified
candidates to accept and spend contributions, reduced by any
seed money contributions, aggregating no more than $500 per
donor per election for gubernatorial candidates and $250 per
donor per election for State Senate and State House
candidates, up to the applicable amounts set forth in
subsections (h) and (i) of this Section according to rules
adopted by the State Board.
(p) A candidate who has been denied certification as an
Illinois Clean Elections Act candidate, the opponent of a
candidate who has been granted certification as an Illinois
Clean Elections Act candidate, or other interested persons may
challenge a certification decision by the State Board as
follows:
(1) A challenger may appeal to the full State Board
within 7 days after the certification decision. The appeal
must be in writing and must set forth the reasons for the
appeal.

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(2) Within 5 days after an appeal is properly made and
after notice is given to the challenger and any opponent,
the State Board shall hold a hearing. The appellant has
the burden of providing evidence to demonstrate that the
State Board decision was improper. The State Board must
rule on the appeal within 3 days after the completion of
the hearing.
(3) A challenger may appeal the decision of the State
Board in paragraph (2) of this subsection by commencing an
action in circuit court.
(4) A candidate whose certification by the State Board
as an Illinois Clean Elections Act candidate is revoked on
appeal must return to the State Board any unspent revenues
distributed from the Fund.
If the State Board or court finds that an appeal was made
frivolously or to cause delay or hardship, the State Board or
court may require the moving party to pay costs of the State
Board, court, and opposing parties, if any.
Section 25. Rules. The State Board shall adopt rules to
ensure effective administration of this Act. These rules must
include but must not be limited to procedures for obtaining
qualifying contributions, certification as an Illinois Clean
Elections Act candidate, circumstances involving special
elections, vacancies, recounts, withdrawals or replacements,
collection of revenues for the Fund, distribution of Fund

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revenue to certified candidates, return of unspent Fund
disbursements, disposition of equipment purchased with Clean
Elections Funds, and compliance with this Act.
Section 30. Violations.
(a) In addition to any other penalties that may be
applicable, a person who violates any provision of this Act or
rules of the State Board adopted pursuant to Section 25 of this
Act is subject to a fine not to exceed $10,000 per violation
payable to the Fund. The State Board may assess a fine of up to
$10,000 for a violation of reporting requirements if it
determines that the failure to file a timely and accurate
report resulted in the late payment of matching funds. This
fine is recoverable in a civil action. In addition to any fine,
for good cause shown, a candidate, treasurer, consultant, or
other agent of the candidate or the committee authorized by
the candidate found in violation of this Act or rules of the
State Board may be required to return to the Fund all amounts
distributed to the candidate from the Fund or any funds not
used for campaign-related purposes. If the State Board makes a
determination that a violation of this Act or rules of the
State Board has occurred, the State Board shall assess a fine
or transmit the finding to the Attorney General for
prosecution. Fines paid under this Section must be deposited
into the Fund. In determining whether or not a candidate is in
violation of the expenditure limits of this Act, the State

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Board may consider as a mitigating factor any circumstances
out of the candidate's control.
(b) A person who willfully or knowingly violates this Act
or rules of the State Board or who willfully or knowingly makes
a false statement in any report required by this Act commits a
business offense punishable by a fine of at least $1,001 and
not more than $5,000 and, if certified as an Illinois Clean
Elections Act candidate, must return to the Fund all amounts
distributed to the candidate.
Section 35. Study report. By January 30, 2025 and every 4
years after that date, the State Board shall prepare for the
General Assembly a report documenting, evaluating, and making
recommendations relating to the administration,
implementation, and enforcement of this Act and the Illinois
Clean Elections Fund.
Section 90. The State Finance Act is amended by adding
Section 5.990 as follows:
(30 ILCS 105/5.990 new)
Sec. 5.990. The Illinois Clean Elections Fund.
Section 95. The Illinois Income Tax Act is amended by
adding Section 507MMM as follows:

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(35 ILCS 5/507MMM new)
Sec. 507MMM. The Illinois Clean Elections Fund checkoff.
For taxable years ending on or after December 31, 2023, the
Department must print on its standard individual income tax
form a provision indicating that if the taxpayer wishes to
contribute to the Illinois Clean Elections Fund, as authorized
by the Illinois Clean Elections Act, he or she may do so by
stating the amount of the contribution (not less than $3) on
the return and that the contribution will reduce the
taxpayer's refund or increase the amount of payment to
accompany the return. Failure to remit any amount of increased
payment shall reduce the contribution accordingly. This
Section does not apply to any amended return.
Section 99. Effective date. This Act takes effect upon
becoming law.