Campaign Guide For Congressional Candidates And Committees .
Federal Election Commission Campaign GuideCongressionalCandidates andCommitteesJune 2014
' -CongressionalCandidates andCommitteesJune 2014Editor’s Note:In January 2010, the Supreme Court announced its decision in Citizens United v. FEC. In response to the Court’sdecision, the Commission announced it would no longer enforce the statutory provisions or regulationsprohibiting corporations and labor organizations from making independent expenditures and electioneeringcommunications. Corporations and unions engaged in those activities should comply with the disclaimer andreporting requirements, since the Court upheld those provisions.The Commission said it would address otherregulations that may have been affected by the Court’s decision in a forthcoming rulemaking.Rules affected by the Court’s decision include: 11CFR 114.2(b)(2) and (3), which implement the Federal Election Campaign Act’s prohibition oncorporate and labor organization independent expenditures and electioneering communications; 11 CFR 114.4, which restricts the types of communications corporations and labor organizationsmay make to those not within their restricted class; 11 CFR 114.10, which permits certain qualifed nonproft corporations to use their treasury fundsto make independent expenditures and electioneering communications under certain conditions; 11 CFR 114.14, which places restrictions on the use of corporate and labor union funds forelectioneering communications; and 11 CFR 114.15, which the Commission adopted to implement the Supreme Court’s decision inWisconsin Right to Life, Inc. v. FEC.This publication refects the guidance provided in the Commission’s public statement, which is available on theFEC website at sUnited.shtml.
About this GuideThis Campaign Guide for Congressional Candidatesand Committees replaces the August 2011 edition. Itsummarizes the federal campaign fnance laws applicable to candidate committees as of June 2014.Federal Election CommissionWashington, DC 20463Commissioners:Lee E. Goodman, ChairmanAnn M. Ravel,Vice ChairCaroline C. HunterMatthew S. PetersenSteven T. WaltherEllen L. WeintraubStaff Director:Alec PalmerPrepared by theInformation Division of theOffce of CommunicationsGreg J. Scott, DirectorZainab S. Smith, Editor
INTRODUCTIONThis Guide was written to help U.S. House andSenate Candidates comply with the Federal ElectionCampaign Act and FEC regulations. It may be usedby committees supporting Presidential candidateswho are not seeking public funding. However, special reporting rules apply to Presidential candidates,as explained in footnotes to the reporting chapters.This publication provides guidance on certainaspects of federal campaign fnance law. It is notintended to replace the law or to change its meaning, nor does this publication create or confer anyrights for or on any person or bind the FederalElection Commission (Commission) or the public.The reader is encouraged also to consult theFederal Election Campaign Act of 1971, as amended(52 U.S.C. §30101 et seq.), Commission regulations (Title 11 of the Code of Federal Regulations),Commission advisory opinions and applicable courtdecisions. For further information, please contact:Federal Election Commission1050 First Street, N.E.Washington, DC 20463800/424-9530 (toll free)202/694-1100 (local)202/219-3336 (for the hearing impaired)info@fec.gov (e-mail)www.fec.gov (website)Using This GuideCitationsAuthorities primarily cited in this Guide includethe Federal Election Campaign Act, FEC regulationsand FEC Advisory Opinions (AOs).All regulatorycitations are to Title 11 of the Code of FederalRegulations (CFR), Parts 100–116, 300, 400 and9001–9039 (2011). Statutory citations are to Titles26 and 52 of the United States Code (U.S.C.). Copies of AOs may be obtained from the FEC’s PublicRecords Offce (800/424-9530 or 202/694-1120) orthe FEC website (http://saos.fec.gov/saos/searchao);in addition, each AO is summarized in the Commission’s online newsletter, the Record.Getting More HelpAdvisory OpinionsAny person or group requiring a clarifcation of theelection law with regard to an activity that they planto undertake may request an advisory opinion fromthe FEC. Individuals and organizations involved inthe activity specifcally addressed in an AO (or in anactivity that is materially indistinguishable) may relyon the opinion for legal guidance.Advisory opinionrequests may be addressed to the Offce of GeneralCounsel at:Federal Election Commission1050 First Street, N.E.Washington, DC 20463For more information on how to request an AO,consult the FEC’s “Advisory Opinions” brochure athttp://go.usa.gov/8hBC.Toll-Free LineMany questions about federal campaign fnancelaw do not require formal advisory opinions. Suchquestions may be addressed to trained FEC staffmembers by calling the FEC’s 800 number, below.Persons in the Washington, DC, area may call locally.The numbers are:800/424-9530202/694-1100202/219-3336 (for the hearing impaired)Hearing-impaired persons may reverse the chargeswhen calling long distance.Questions may also be submitted by e-mail toinfo@fec.gov.Free PublicationsIn addition to this Guide, the FEC publishes a seriesof brochures and other publications on several aspects of campaign fnancing and election law. E-mailor call the FEC for a list of publications currentlyavailable, or visit the FEC website.Please note that congressional campaign committees have to comply with other laws outside theFEC’s jurisdiction; see Appendix G.World Wide WebVisit the FEC’s home page at www.fec.gov. Information on the site includes campaign fnance statisticaldata; committee reports for candidates, parties andiii
PACs; FEC news releases; reporting dates; forms;the newsletter; brochures and campaign guidesThe FEC website also offers the capability to searchthe Commission’s regulatory database. Users canperform full text searches of Commission AdvisoryOpinions (AOs) (1977-present) using the name of arequestor or other keyword information. In addition, the FEC’s Enforcement Query System allowsusers to search closed enforcement cases by suchsearch criteria as respondent name or case number.SERS, the FEC’s Searchable Electronic RulemakingSystem, allows searches of completed and ongoingrulemakings, Commission regulations and Explanations and Justifcations. Users can also use SERS tosubmit comments to ongoing rulemakings.Compliance with Small Business RegulatoryEnforcement Fairness Act of 1996This Guide serves as the small entity complianceguide for congressional candidates and committees,as required by Section 212 of the Small BusinessRegulatory Enforcement Fairness Act of 1996, Pub. L.No. 104-121,Title II, Stat. 857 (1996).iv
CONTENTSCHAPTER 1 Testing the Waters1CHAPTER 5 Prohibited Contributions311. Prohibited Sources312. Questionable Contributions331. Testing the Waters vs. Campaigning12. Contribution Limits and Prohibitions13. Recordkeeping and Accounting24. Organizing a Testing the Waters Committee31. Bank Loans35CHAPTER 2 Starting the Campaign52. Brokerage Loans and Other Lines ofCredit Obtained by Candidate361. Candidate Registration Threshold53. Overdrafts362. Candidate and Committee Registration54. Investment Income363. Treasurer65. Offsets to Operating Expenditures364. Statement of Candidacy86. Legal and Accounting Ser vices375. Statement of Organization96. AmendmentsCHAPTER 3 Understanding Contributions1113CHAPTER 6 Other Reportable ReceiptsCHAPTER 7 Sources of Support35391. Contributions392. Free Legal and Accounting Services391. What is a Contribution133. Volunteer Activity392. Types of Contributions134. Travel Cost Exemptions41CHAPTER 4 Contribution Limits171. Overview of Limits172. How Limits Work203. Contributions to UnauthorizedCommittees224. Designated and UndesignatedContributions225. Vendor Discounts on Food and Beverages416. Support from Other Campaigns427. Party Support438. Corporate/Labor Exceptions459. Use of Corporate/Labor Facilities andResources4810. Fundraisers for Candidates4811. Independent Expenditures5012. Electioneering Communications505. Date Contribution is Made vs. Dateof Receipt226. Joint Contributions247. Remedying an Excessive Contribution24CHAPTER 8 Expenditures and Other Usesof Campaign Funds518. Contributions to Retire Debts279. Contributions from Partnerships281. Permissible Uses of Campaign Funds512. Prohibited Uses of Campaign Funds5310. Contributions from Limited LiabilityCompanies2811. Contributions from Minors2812. Candidate’s Personal Funds281. Transfers between Candidate’sCommittees for Same Offce5913. Repayment of Personal Loans fromCandidate292. Transfers between Committees ofCandidate Seeking More Than One Offce593. Transfers from Candidate’s NonfederalCommittee Are Prohibited61CHAPTER 9 Transfers59(Cont.)v
4. Transfers of Joint Fundraising Receipts6115. Reporting Last-Minute Contributions(48-Hour Notice)5. What is NOT a Transfer6110216. Categorizing Disbursements1026317. How to Itemize Disbursements1031. Fundraising6318. When to Itemize Disbursements1042. Disclaimers6519. Reporting Debts Other Than Loans1053. Rates for Political Advertisements6720. Reporting Loans1084. Campaign Travel6721. Reporting Bank Loans, Brokerage Loansand Other Lines of Credit When Madeto Candidates11022. Reporting Refunds, Returns, Bouncedor Uncashed Checks and DisgorgedContributions11223. Reporting Transfers betweenAuthorized Committees11424. Reporting Investments11525. Completing the Report116CHAPTER 10 Conducting the CampaignCHAPTER 11 Keeping Records731. Record Retention732. Recording Receipts733. Recording Disbursements754. Recording Debts and Loans765. Treasurer’s Best Efforts76CHAPTER 12 Filing Reports791. Who Reports792. Where to File Reports803. When to Report804. Administrative Fines for Late Filers andNonflers825. Electronic Filing836. Public Inspection of Reports85CHAPTER 13 Completing FEC Reports871. Reporting Forms and Formats872. Special Rules for First Report883. Categorizing Receipts884. How to Itemize Receipts8911612028. The Summary Page12029. Filing Amendments122CHAPTER 14 Winding Down the Campaign1231. Terminating the Committee1232. Conversion to MulticandidateCommittee1233. Winding Down Costs1244. Sale of Campaign Assets1245. Retiring Debts1256. Settling Debts1255. When to Itemize Receipts896. Reporting Contributions, Loans andAdvances from CandidateAPPENDIX A: Earmarked Contributions129917. Reporting Joint Contributions92APPENDIX B: Contributions fromPartnerships1338. Reporting Redesignations and Reattributions93APPENDIX C: Joint Fundraising137APPENDIX D: Communications1459. Reporting Free Legal and Accounting Services 9410. Reporting In-Kind Contributions9511. Reporting Recount-Related Donationsand Disbursements9712. Reporting Receipt of Refunds of ContributionsMade by the Committee9713. Reporting Reimbursed Advances ofPersonal Funds (Non-Travel)14. Reporting Travel Expensesvi26. The Detailed Summary Page27. Post-Election Detailed Summary Page98100APPENDIX E: Fundraising by FederalCandidates and Officeholders 157APPENDIX F: Lobbyist Bundled Contributions 161APPENDIX G: Compliance with Other Laws168APPENDIX H: Glossary170INDEX179
LIST OF FORM EXAMPLES AND TABLESCHAPTER 2Candidate RegistrationCommittee RegistrationCommittee Registration (Page 2)Committee Registration (Page 3)Committee Registration (Page 4)89101012CHAPTER 4Contribution Limits For 2013 – 1418CHAPTER 12Reporting Deadlines83CHAPTER 13Contributions from Other Political Committeeand OrganizationsAggregation of ContributionsContributions from Candidate’s Personal FundsJoint ContributionsRedesignationsReattributionsFree Legal and Accounting ServicesIn-Kind Contribution (Schedule A)In-Kind Contribution (Schedule B)Unreimbursed Disbursement by Candidate(Schedule A)Unreimbursed Disbursement by Candidate(Schedule B)Appreciated Goods as ContributionsSale of Appreciated Goods as ContributionsRecount DonationRecount DisbursementNontravel ReimbursementsNontravel Staff Advances Made and Reimbursedin Different Reporting PeriodsTravel Expense Reimbursed within Time Limitand in Same Reporting PeriodLast Minute Contributions (48-Hour Notice)Operating ExpendituresContributions to Other Federal CandidatesCredit Card Transactions (Schedule B)Credit Card Transactions (Schedule D)Debts Owed by the Committee (Schedule 5105106Debts Owed by the Committee (Schedule D)Bank Loans Endorsed by CandidateLoan PaymentLoans from Candidate’s Personal Funds(Schedule A)Loans from Candidate’s Personal Funds(Schedule C)Candidate Home Equity Line of Credit(Schedule A)Candidate Home Equity Line of CreditPrincipal PaymentCandidate Home Equity Line of CreditInterest PaymentCandidate Home Equity Line of Credit(Schedule C)Candidate Home Equity Line of Credit(Schedule C-1)Refunded Contributions (Schedule A)Refunded Contributions (Schedule B)Checks Returned Due to Insuffcient FundsDisgorged ContributionsTransfers Between Candidate’s Committees,Same OffceDetailed Summary PageDetailed Summary Page (Continued)Post Election Detailed Summary PageSummary PageSummary Page 113114117118119121122APPENDIX AEarmarked Contribution132APPENDIX BPartnership Contributions135APPENDIX CForm 1 Filed by Joint Fundraising Representative 139Form 1 Filed by PCC Showing Affliation139Joint Fundraising (Schedule A)142APPENDIX FReporting Bundled ContributionsReporting Bundled Contributions (Schedule A)Form 3L Covered Periods and Filing Deadlines163164165vii
Testing the WatersCHAPTER 1TESTING THE WATERSBefore deciding to campaign for federal offce, anindividual may want to “test the waters,” that is,explore the feasibility of becoming a candidate. Forexample, an individual may want to conduct pollsor travel around the state or district to see if thereis suffcient support for his or her candidacy.An individual who merely tests the waters, but does notcampaign for offce, does not have to register or report to the FEC.This is the case even if the individual exceeds the usual 5,000 candidate registrationthreshold. Nevertheless, all funds raised and spentduring the testing the waters period must complywith the Federal Election Campaign Act’s contributionlimits and prohibitions. 100.72(a) and 100.131(a);see also Advisory Opinion (AO) 1985-40.Once an individual begins to campaign or decidesto become a candidate, the testing the waters period ends, and any funds that were raised or spentto test the waters apply to the 5,000 thresholdfor qualifying as a candidate. 100.72(a) and 100.131.Once that threshold is exceeded, the individualmust register with the FEC and begin to fle reports.The frst report must include all activity thatoccurred during the testing the waters period.100.72(a) and 100.131(a).1. TESTING THE WATERSCAMPAIGNINGVS.Testing the WatersAn individual may conduct a variety of activities totest the waters. Examples of permissible testing thewaters activities include conducting polls, travellingand making telephone calls to determine whetherthe individual should become a candidate. 100.72(a)and 100.131(a).CampaigningCertain activities, however, indicate that the individual has decided to become a candidate and isno longer testing the waters. In that case, once theindividual has raised or spent more than 5,000,he or she must register as a candidate. Note that,when an individual decides to run for offce, fundsthat were raised and spent to test the waters applyto the 5,000 threshold.Campaigning (as opposed to testing the waters) isapparent, for example, when individuals: Make or authorize statements that refer tothemselves as candidates (“Smith in 2016” or“Smith for Senate”); Use general public political advertising topublicize their intention to campaign; Raise more money than what is reasonablyneeded to test the waters or amass funds(seed money) to be used after candidacy isestablished; Conduct activities over a protracted periodof time or shortly before the election; or Take action to qualify for the ballot.100.72(b) and 100.131(b).Also, once an individual fles FEC Form 2, Statementof Candidacy, he or she is no longer considered tobe “testing the waters” and must fle FEC Form 1(and subsequently fle fnancial reports) under therules described in Chapter 2,“Starting the Campaign.” AO 1979-51.2. CONTRIBUTION LIMITS ANDPROHIBITIONSFunds raised to test the waters are subject to theAct’s contribution limits. Moreover, the individualwho is testing the waters may not accept fundsfrom prohibited sources. 100.72(a) and 100.131(a).Chapter 11
Campaign Guide for Congressional CandidatesLimitsSeparate Bank AccountKeep in mind that contribution limits apply to allthe support given to an individual who is testingthe waters, even donations from a family memberor friend. (See the chart on contribution limits inChapter 4.) The limits apply, for example, to: Gifts of money, goods and services; Loans (except bank loans); Certain staff advances until repaid (see Chapter 3 for more information on staff advances); Endorsements and guarantees of bank loans;and Funds given or personally loaned to theindividual to pay for his or her living expensesduring the testing the waters period (AO1978-40). 100.52(a).See Chapter 4 for more information on contribution limits.Another consideration, though not a requirement,is the segregation of testing the waters funds frompersonal funds. It is advisable for the individual toset up a separate bank account for the depositof receipts and the payment of expenses. If theindividual later becomes a candidate, a campaignaccount must be established to keep the campaignfunds separate from the individual’s personal funds.102.10, 102.15, 103.2 and 103.3(a).ProhibitionsIn observing the law’s prohibitions, the individualmay not accept money from: Labor organizations (although funds from alabor separate segregated fund—also called aPAC—are permissible); Corporations, including nonproft corporations (although funds from a corporate separate segregated fund—also called a PAC—arepermissible); Foreign nationals; or Federal government contractors.See Chapter 5 for more information on contribution prohibitions.3. RECORDKEEPING ANDACCOUNTINGRecordkeepingAn individual who tests the waters must keep fnancial records. If he or she later becomes a candidate,the money raised and spent to test the watersmust be reported by the campaign as contributionsand expenditures. 101.3. See Chapter 11 for moreinformation on recordkeeping.2Chapter 1EXAMPLEMr. Jones is interested in running for a seat inthe U.S. House of Representatives but is unsurewhether he has enough support within hisdistrict to make a successful bid. He thereforeaccepts up to 2,700 from each of several relatives and friends and uses the money to pay foran opinion poll. He sees that good records arekept on the money raised and spent in his testing the waters effort.The poll results indicategood name recognition in the community, andJones decides to run.By making this decision, Jones has crossed theline from testing the waters to campaigning.The funds he raised earlier now automaticallybecome contributions and the funds he spent,including the polling costs, are now expenditures.These contributions and expenditurescount toward the threshold that triggers candidate status. Once his contributions or expenditures exceed 5,000, he becomes a candidateand must register under the Act. The moneyraised and spent for testing the waters mustbe disclosed on the frst report his principalcampaign committee fles.Had Jones decided not to run for federal offce,there would have been no obligation to reportthe monies received and spent for testing thewaters activity, and the donations made to helppay for the poll would not have counted ascontributions.
Testing the Waters4. ORGANIZING A TESTINGTHE WATERS COMMITTEEAn individual may organize a “committee” for testing the waters.An “exploratory committee” or“testing-t
Federal Election Campaign Act of 1971, as amended (52 U.S.C. §30101 et seq.), Commission regula-tions (Title 11 of the Code of Federal Regulations), Commission advisory opinions and applicable court decisions. For further information, please contact: Federal Election Commission . 1050 First Street, N.E. Washington, DC 20463 . 800/424-9530 .
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