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HomeMy WebLinkAbouta. Study Session - Timing and Options related to the General Municipal Election DATE: March 2, 2021 TO: Honorable Mayor and City Council FROM: Dominic Lazaretto, City Manager By: Michael Bruckner, Deputy City Manager Linda Rodriguez, Assistant City Clerk SUBJECT: REPORT, DISCUSSION AND DIRECTION REGARDING TIMING AND OPTIONS RELATED TO THE 2022 GENERAL MUNICIPAL ELECTION, REDISTRICTING, CAMPAIGN FINANCE REFORM, AND ASSOCIATED LOCAL ELECTION MATTERS Recommendation: Provide Direction SUMMARY The City of Arcadia’s general municipal elections have historically occurred in April of even-numbered years. Due to changes in state law (Senate Bill 415), the City believed it was required to change its election date to coincide with a statewide election. The City, therefore, adopted Ordinance No. 2352 to move its general municipal election to November of even-numbered years, the date of each statewide general election, starting in November 2022. A recent legal challenge by the City of Redondo Beach affirmed that charter cities need not follow SB 415. As a result, Ordinance No. 2352 is now in conflict with the City Charter and should be rescinded. The result of this action would mean that the City should conduct its next regularly scheduled election in April 2022. Options exist to move the election to November in future elections, but would require a Charter Amendment and a vote of the electorate to approve it. The City is also required to redistrict after every new federal Census. The US Census Bureau has indicated that the results of the 2020 Census will be significantly delayed, which creates some logistical and legal hurdles that will impact City redistricting for the 2022 election cycle given that the next City Council election may now be held as soon as April 2022. As a result, if the City Council moves the election date to April 2022, it will be necessary for the City Council to conduct the election using the current district boundaries. However, it will still be necessary for the City Council to adopt updated district boundaries before any further elections. Finally, recent changes in State law have enacted a default campaign contribution limit for City Council candidates at $4,900 per election per source, unless the City enacts its Timing and Options related to the 2022 Municipal Election March 2, 2021 Page 2 of 9 2 own local limits. Arcadia has not enacted local campaign contribution limits in the past; with the timing of this discussion about other election related matters, it is appropriate to review this issue within this context. Therefore, it is recommended that the City Council provide direction regarding the timing and options related to the 2022 municipal election, redistricting, campaign finance reform, and associated election matters, including the timing of City Council reorganization. BACKGROUND Below is a brief history of issues regarding City Council districts, redistricting, the timing of City Council elections, and related campaign finance issues. City Council Districts & Redistricting On June 6, 2017, the City received a letter from attorney Kevin Shenkman alleging that the City’s at-large City Council election system violated the California Voting Rights Act (“CVRA”) and demanded that the City change to a by-district election system, in accordance with Assembly Bill 350. By way of background, AB 350 amended the Elections Code to cap the attorneys’ fees a prospective plaintiff may recover if a public agency adopts the necessary resolutions/ordinances to change to a by-district election system within a specified time frame after the receipt of a plaintiff’s demand letter alleging a CVRA violation. In an effort to avoid costly litigation, on July 21, 2017, the City Council adopted Resolution No. 7179, a resolution declaring the City’s intent to transition from at-large to district- based elections. After holding a series of AB 350 required public hearings, on October 17, 2017, the City Council adopted Ordinance No. 2350 establishing by-district elections, defining district boundaries, and scheduling elections within the districts. Two subsequent elections have been held using the by district format, with all five seated Council Members now representing specific districts of the community (Attachment A). Cities that use by district voting systems are required to update their adopted district boundaries in conjunction with each decennial Census to ensure that the districts remain numerically and demographically balanced. As a result of the 2020 Census, the City of Arcadia is required to review new population data and to rebalance its districts. The canvassing for the 2020 Census was completed last year; however, the US Census Bureau recently announced that it will deliver the final data to all states by September 30, 2021, which is six months later than the statutory deadline of March 31, 2021. Additionally, the State of California will take another month to review the Census data to incorporate certain state-specific information – resulting in a practical arrival date of October 31, 2021. The seven-month delay in delivering the Census data creates procedural and legal hurdles for adopting new maps prior to the next municipal election. Most specifically, new Timing and Options related to the 2022 Municipal Election March 2, 2021 Page 3 of 9 3 district boundaries must be adopted at least 174 days prior to a municipal election and the adoption must be preceded by a lengthy public input process. Timing of Elections & Council Terms Under the City Charter, Arcadia’s regular City Council elections are held in April of even- numbered years. On September 7, 2017, the City Council was presented with a detailed report regarding SB 415 (Election Code Sections 14050 – 14057). The intent of SB 415 was to improve voter turnout at local elections. SB 415 requires that a local public agency with a “non-concurrent election date” change the election date if the agency’s voter turnout for a local non-concurrent election was at least 25% lower than its average voter turnout for the last four statewide general elections (November 2016, 2014, 2012, and 2010). An agency moving its election could choose to move their elections either to the date of the statewide primary (traditionally in June) or the general election (November). The report noted that the Attorney General had issued an opinion earlier in 2017 finding that SB 415 applied to charter cities because improving voter turnout at elections is a “matter of statewide concern” rather than a “municipal affair.” Further analysis at the time revealed that turnout for Arcadia’s municipal elections demonstrated at least a 25% decline in voter participation as defined in SB 415. As a result, the City believed, at the time, that it was required to change its general municipal election date to either the date of the statewide primary or the November statewide general election. SB 415 did not require this change to be immediate. Rather, SB 415 only required that the City have a plan in place by 2018 to change election dates by no later than November 2022. State law also allows the City to extend or decrease the terms of current elected officials by up to 12 months, in order to match their terms with a changed municipal election date (Elections Code Section 10403.5(b)). On January 16, 2018, the City Council adopted Ordinance No. 2352 changing the general municipal election date from April of even-numbered years to the statewide general election in November of even-numbered years, commencing with the November 2022 election. In addition, Ordinance No. 2352 extended the terms of City Council members whose terms were set to expire in April 2022 by 7 months to November 2022 (Districts 2, 3, & 5). Subsequently, the City of Arcadia held its regularly scheduled election in 2020 for Council Districts 1 and 4 for a term of 4 years, 7 months to comply with Ordinance No. 2352. In 2018, the City Council expressed its displeasure with the state intruding upon municipal affairs and agreed that SB 415 was an affront to local control; however, given the circumstances and understanding of the law at the time, the City Council chose to adopt Ordinance No. 2352 in order to avoid being challenged by the state. Part of the reasoning behind choosing the latest date possible to transition Arcadia’s election was to allow time for any lawsuits to play out that might give local control back to the City. Timing and Options related to the 2022 Municipal Election March 2, 2021 Page 4 of 9 4 During this time, the City of Redondo Beach, another charter city, legally challenged SB 415’s application to charter cities and prevailed. The Court ruled that Redondo Beach does not have to change its election dates because the explicit language of SB 415 does not state it applies to charter cities. The Court, however, did not decide the larger issue of whether this kind of law, regardless of how it is worded, may ever apply to charter cities in contravention of their “home rule” powers. Meaning, it is possible that the Legislature could propose new legislation that explicitly says that it applies to charter cities. Should that occur, Arcadia may need to adopt another ordinance to comply with the new law. Moreover, another charter city may litigate this issue. While there is no known pending legislation in this regard, it is consistent with the Legislature’s overall push in recent years to expand voter turnout whenever possible. Now that SB 415 has been found not to apply to charter cities, the City Attorney’s office has opined that Arcadia’s City Charter governs, which would automatically revert City elections to April of even-numbered years. In order to avoid any confusion later and to keep the “paper trail” clear, it is recommended that the City Council officially rescind Ordinance 2352. Should the City Council now wish to transition to November anyway (or any other date on the calendar), it would be necessary to update the City Charter, which would require a general election and approval of the City’s voters. City Council Reorganization The City Charter requires that the City Council reorganize in April of each year, typically occurring in the second meeting of that month. In prior election years, the City Clerk’s Office was able to certify election results in time to meet the Charter requirements. However, with recent changes to the elections law that allow more time for ballots to be received and counted, formal certification does not typically occur until May. If the City updates the Charter for any other reason, this section should be clarified to adhere to modern regulations. Should the City Council decide to place a Charter Amendment on the ballot to move the election date, the City Council may also want to update that provision as well. For example, if the City Council were to propose to voters to move its elections to November, the City Council may want to consider moving the reorganization to one of the meetings in December or the first meeting in January with language that considers that the City Council frequently cancels a meeting around the winter holidays. It should also be noted that the Mayor’s Breakfast and State of the City Address is usually held in February or March each year and is one of the final events a Mayor presides over. If the City Council moved the reorganization date to coincide with the calendar year, instead of the State of the City being a retrospective event, it can be a prospective event, outlining not only the prior year’s accomplishments but outlining an agenda for the upcoming year. Timing and Options related to the 2022 Municipal Election March 2, 2021 Page 5 of 9 5 Campaign Contribution Limits In 2019, Governor Newsom signed AB 571, which took effect on January 1, 2021, imposing default campaign contribution limits upon city elected offices. In passing AB 571, the California Legislature noted that the vast majority of counties and cities in the State have not independently imposed local campaign contributions limits — although they maintain the local authority to do so. Under prior law, cities and counties were empowered to impose their own local contribution limits and to administer and enforce those limits. This discretion remains under AB 571. However, if a city or county does not adopt a local limit, AB 571 sets a default limit identical to that for an elected state Assembly or Senate member: currently $4,900 from a single source per election year, subject to increase by the Fair Political Practices Commission for inflation every odd-numbered year (January 1, 2021, 2023, etc.). DISCUSSION Options for Municipal Elections It is clear that Ordinance 2352 was made irrelevant with the Court’s ruling and should be rescinded in order to avoid confusion later. The City now regains full control over establishing its election date. That being said, in order to avoid additional legal exposure, the next municipal election should be held in April 2020 in accordance with the adopted City Charter. If the City Council wishes to revert to its traditional election date in April, no further action is needed; staff will bring forward the necessary documents to hold an election on April 12, 2022 and all future elections would follow on the date prescribed in the Charter. Holding the upcoming elections in April would have the effect of removing the seven month term extensions given to City Council members elected in April 2018 (Districts 2, 3, & 5) and April 2020 (Districts 1 & 4). In order to change the City’s election date to November (or any other desired date), a Charter Amendment would need to be placed on the ballot at a regularly scheduled municipal election, with a majority of voters approving the measure. The question would be for voters to decide, by simple majority, if the City should change its municipal election date. As previously outlined, the next regularly scheduled municipal election under the Charter would be April 12, 2022. The Charter Amendment could also be brought forward at either the June 2022 or November 2022 statewide general elections. There are no statewide general elections prior to June 2022 that the City could utilize for a Charter Amendment. A modified timeline of events is outlined in Attachment B. Timing and Options related to the 2022 Municipal Election March 2, 2021 Page 6 of 9 6 If voters approve a measure that included one of the statewide general election dates, it would mitigate any future legislation that might amend SB 415 to cover charter cities. The alternative would be to keep the April election cycle and wait for the Legislature to act first. Many Arcadians traditionally favored the off-cycle election date, feeling that while turnout was generally lower, the voters that participated were focused only on Arcadia issues and not drawn into larger statewide or national matters. It should be noted that, under SB 970, the Statewide Primary Election now “floats” in order to give California a larger importance in the Presidential Primaries. As a result, the State Primary will be in June for 2022, but in March for 2024, then June for 2026, March for 2028 and so on. Therefore, if the City Council wishes to join its election cycle with the Primary, language would need to be crafted to state that the City’s election date would also fluctuate. A November election date stays the same every two years and is far easier for voters to understand. This was one of the primary reasons for selecting November previously. Districting and the Census Repealing Ordinance No. 2352 is relatively straightforward. The challenge with reverting back to the April 2022 election date is that the delayed Census data will not arrive in time for the City to adjust its district boundaries for that election. To redistrict, the City would likely need to contract with a professional demographer to analyze the new population data against the current district maps and propose adjustments, if any, to rebalance the districts. Under the State’s Fair Maps Act, the City must then hold at least four public hearings for the community to provide input regarding the composition of the districts. This entire hearing process would take approximately 60-90 days to complete. Further, the Fair Maps Act requires that the new district maps be adopted 174 days prior to the election. For an April 12, 2022, election, the maps must be adopted by October 20, 2021; however, as previously mentioned, the Census data will not even be available until around that same time. This gives the City no time to conduct its analysis, review, and public hearings in time for them to be effective for the April 2022 election. Therefore, it will be necessary to use the existing district boundaries for the April 2022 election. The redistricting process could then take place at any time prior to the run up to the 2024 election cycle. Given the time crunch prior to April 2022, the City Attorney’s Office has opined that any legal challenge attempting to force the City to adopt a new map in time for the April 2022 election would likely fail as it would be demanding the City to do the impossible. Finally, another challenging factor for the April 2022 election is that the City’s previous elections consultant no longer provides administrative services for elections. For the April 2020 election cycle, the City contracted with Los Angeles County for its elections administration, which saved the City considerable dollars. The County is required to conduct an off-cycle election for the City of Arcadia; however, the cost of conducting a Timing and Options related to the 2022 Municipal Election March 2, 2021 Page 7 of 9 7 standalone off-cycle election will be significantly higher than a consolidated election in June or November. There may be other third-party vendors that can provide this service to the City in the future; however, staff will need to research those options more fully. While the City is allowed run its own elections using City employees, the staff does not currently have the expertise nor the equipment to implement such a strategy. Campaign Contribution Limits The City of Arcadia currently does not have campaign contribution limits for local elections and is, therefore, subject to the new default state law limits. There is nothing precluding the City from adopting its own limits that are different than what the state allows. AB 571 specifically addresses limits from individual contributors per election. The default contribution limit amount imposed by the bill is the same as for State elected officers, which is currently $4,900. Although, AB 571 provides cities with the opportunity to establish higher or lower campaign contribution limits, the FPPC will not enforce local campaign contribution limits. Enforcement will be the responsibility of the City to establish appropriate local enforcement methods, such as criminal, civil, or administrative means. Given concerns raised in recent elections over large donations from single entities, it would be beneficial to have established limits for campaigns to follow. Whether it is better to stick with the State default or to adopt a local standard is a value judgment best left to policy makers to decide. The decision may come down to whether it is worth adding enforcement costs and efforts to enjoy having unique local financial standards. Conclusions and Recommendations Given the recent changes in state law due to the court decision, the City Council should repeal Ordinance No. 2352 and conduct its next General Election in April 2022. The City can choose to consolidate its future elections by conducting a Charter Amendment at a future date or wait for the state to eventually mandate it. If the City Council wishes, a Charter Amendment could be placed on the ballot in April 2022 asking voters to conduct future elections in the November election cycle. If voters approve the measure, the first election would be November 2024 (coinciding with the expected termination of the terms for Council Members Cheng and Verlato). If the elections get moved to November each year, it is recommended that the City Council reorganization process take place around the first of the calendar year annually. The delay in the release of US Census data creates logistical and legal hurdles for redistricting by the April 2022 election. It is simply impossible for the City to adopt maps by the 174-day pre-election deadline when the underlying data may not even be available before that date. The City Attorney has advised that the City Council can still conduct the Timing and Options related to the 2022 Municipal Election March 2, 2021 Page 8 of 9 8 redistricting process once the data is available; however, the maps will not become operative until the 2024 election cycle. Finally, recent changes in state law have created new limits for campaign contributions. The City has not adopted limits in the past; however, the option is always available to do so. If the City defaults to state laws and limits, the FPPC will be enforcement body for campaign contributions. If the City adopts its own limits, the City Clerk’s Office will become the enforcement body for that policy. There is will be some additional staff time for training and enforcement that will be incurred. It is recommended that the City Council provide direction on adopting a campaign contribution limit policy. CEQA ANALYSIS The transition from at-large to district-based elections is exempt from environmental review under the California Environmental Quality Act (“CEQA”) (Pub. Resources Code, § 21000 et seq.) pursuant to State CEQA Guidelines (Cal. Code Regs., tit. 14, §15000 et seq.) Sections 15061(b)(3), 15320, and 15378(b)(3). The transition process is an organizational and administrative activity of the City, does not have the potential to result in either a direct or reasonably foreseeable indirect physical change in the environment, and is, therefore, not a project for purposes of CEQA. (State CEQA Guidelines, §§ 15061(b)(3); 15378(b)(5).) In the event the transition process does constitute a project, it is categorically exempt under the Class 20 (Changes in the Organization of Local Governments) categorical exemption. (State CEQA Guidelines, § 15320.) None of the exceptions to the exemptions found in State CEQA Guidelines section 15300.2 apply. FISCAL IMPACT The total amount of fiscal impact is unknown at this time. The process of rescinding Ordinance No. 2352 has no fiscal impact beyond minor staff time and publication costs. A professional demographer to assist in the redistricting process will cost an estimated $25,000. The cost of municipal elections varies significantly depending on whether it is run individually or as part of a larger effort. A municipal election in April 2022 for Districts 2, 3, and 5, assuming it is administered by the County as a single stand-alone election, is estimated to cost approximately $78,000. This is based off the April 2020 election for Districts 1 and 4 run by the County, which included a number of other entities sharing costs, costing the City $52,000. It should be noted that in 2020, the City Clerk election was cancelled saving the City approximately $78,000 during that cycle. It is estimated that the range of City elections, depending on the cycle, is $78,000 to $131,000. Prior stand-alone Citywide elections (before districts), when administered by a consultant generally cost the City $240,000. Should the City participate in a November election going forward, staff anticipates the costs to be lower than the cited figures above because of Timing and Options related to the 2022 Municipal Election March 2, 2021 Page 9 of 9 9 the economies of scale generated by consolidated statewide elections where all Arcadia registered voters receive a ballot. If a Charter Amendment is proposed, all registered voters in Arcadia would be asked to vote on the Amendment. Since the April 2022 election would be a general election, the additional cost of adding a Charter Amendment on that ballot would be fairly significant (mailings would be sent to two additional districts and a separate ballot would be required). The matter could also be placed on a June or November election run concurrently with the statewide effort at a reduced cost. In addition, the City will also incur additional legal fees and public outreach costs in order to conduct the ballot measure process. The costs for City Council reorganization are already included in the annual fiscal year operating budget. There is no fiscal impact for applying current State law campaign finance limits. If the City Council were to adopt its own local campaign finance requirements, there would be additional, presumably minor, staff time involved with monitoring and enforcement. RECOMMENDATION It is recommended that the City Council provide direction on the following: 1. Rescind Ordinance No. 2350, changing the general municipal election from April of even-numbered years to November of even numbered years; 2. Placing a Charter Amendment on the ballot at an election in 2022 asking voters to move the general election from April to November of even numbered years, and other related election activities; and, 3. Consider either establishing a local campaign contribution limit ordinance; or take no action and default to the contribution limits of Assembly Bill 571 which is currently $4,900. Attachments: A. District Maps B. 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Cou ncil District City of Arcadia, California 2020 Event D J F M A M J J A S O N D J F M A M J J A S O N D 2020 Census Ends - December 31, 2020 Census Data Due - March 30, 2021 Census Data Delivered - September 30, 2021 Deadline to Adopt Maps for Apr. 12, 2022 (174 days before) - Oct. 20, 2021 (impossible) Census Data Available - October 31, 2021 Typical Redistricting Process (+/- 90 days) Deadline for Submitting Charter Amendment for Apr. 12, 2022 (88 days before) - Jan. 14, 2022 April 12, 2022 Election Deadline for Submitting Charter Amendment for Jun. 7, 2022 (88 days before) - Mar. 11, 2022 Deadline to Adopt Maps for Nov. 1, 2022 (174 days before) - May 21, 2022 June 7, 2022 Election Deadline for Submitting Charter Amendment for Nov. 1, 2022 (88 days before) - Aug. 5, 2022 November 1, 2022 Election 2021 2022