The Florida Senate
BILL ANALYSIS AND FISCAL IMPACT STATEMENT
(This document is based on the provisions contained in the legislation as of the latest date listed below.)
Prepared By: The Professional Staff of the Committee on Ethics and Elections
BILL: SPB 7016
INTRODUCER: For consideration by the Ethics and Elections Committee
SUBJECT: Initiative Petitions Proposing an Amendment to the State Constitution
DATE: March 7, 2025
ANALYST STAFF DIRECTOR REFERENCE ACTION
1. Biehl Roberts Pre-meeting
I. Summary:
SPB 7016 makes the following changes to provisions governing initiative petitions proposing an
amendment to the Florida Constitution:
• Limits the number of cycles a petition sponsor can remain active without achieving the
signature threshold for Supreme Court review to three general elections and limits
sponsorship of initiative petitions to one per political committee.
• Requires additional personal identifying information for voters signing petition forms and for
applicants for petition circulators.
• Prohibits certain felons and noncitizens from acting as petition circulators and increases fines
for late submission or nonsubmission of petition forms.
• Requires a person who collects more petition forms than his or her own, those of his or her
immediate family members, plus two more to register as a petition circulator.
• Requires training for petition circulators.
• Requires supervisors of elections to notify voters whose signatures are verified and provide
an opportunity for such persons to report that their signatures were forged or misrepresented.
• Revises petition form retention and reporting requirements.
• Clarifies processes for certification of and challenge of constitutional amendments.
• Provides for inclusion of the financial impact statement on the petition form and adds the
financial impact statement to the issues subject to automatic Supreme Court review.
• Provides additional civil and criminal penalties for violations of laws governing citizens’
initiatives.
The bill also prescribes timelines for implementation. Except as otherwise specified, the bill
takes effect upon becoming a law.
REVISED: BILL: SPB 7016 Page 2
II. Present Situation:
Political Committees
Florida law defines “political committee” to mean:
• A combination of two or more individuals, or a person other than an individual, that, in an
aggregate amount in excess of $500 during a single calendar year:
o Accepts contributions for the purpose of making contributions to any candidate,
1
political
committee, affiliated party committee, or political party;
o Accepts contributions for the purpose of expressly advocating the election or defeat of a
candidate or the passage or defeat of an issue;
o Makes expenditures that expressly advocate the election or defeat of a candidate or the
passage or defeat of an issue; or
o Makes contributions to a common fund, other than a joint checking account between
spouses, from which contributions are made to any candidate, political committee,
affiliated party committee, or political party.
o The sponsor of a proposed constitutional amendment by initiative who intends to seek the
signatures of registered electors.
2
Each political committee must:
• File a statement of organization within 10 days after its organization.
3
• Through a designated campaign treasurer, file regular reports of all contributions received,
and all expenditures made, by or on behalf of the political committee.
4
Proposed Constitutional Amendments, Generally
Amendments to the Florida Constitution can be proposed by five distinct methods: 1) joint
legislative resolution, 2) the Constitutional Revision Commission, 3) citizens’ initiative, 4) a
constitutional convention, or 5) the Taxation and Budget Reform Commission.
5
Depending on
1
Section 106.011(3), F.S., defines “candidate” to mean a person to whom any of the following applies: 1) a person who seeks
to qualify for nomination or election by means of the petitioning process; 2) a person who seeks to qualify for election as a
write-in candidate; 3) a person who receives contributions or makes expenditures, or consents for any other person to receive
contributions or make expenditures, with a view to bring about his or her nomination or election to, or retention in, public
office; 4) a person who appoints a treasurer and designates a primary depository; or 5) a person who files qualification papers
and subscribes to a candidate’s oath as required by law. The definition excludes any candidate for a political party executive
committee.
2
Section 106.011(16)(a), F.S. The following entities are not considered political committees: 1) national political parties, the
state and county executive committees of political parties, and affiliated party committees; 2) corporations or other business
entities formed for purposes other than to support or oppose issues or candidates, if their political activities are limited to
contributions to candidates, political parties, affiliated party committees, or political committees or expenditures in support of
or opposition to an issue from corporate or business funds and if no contributions are received by such corporations or
business entities; or 3) electioneering communications organizations (s. 106.011(16)(b), F.S.).
3
Section 106.03(1)(a), F.S. A political committee which is organized to support or oppose statewide, legislative, or
multicounty candidates or issues to be voted upon on a statewide or multicounty basis must file its statement of organization
with the Department of State’s Division of Elections (s. 106.03(3)(a), F.S.).
4
Section 106.07(1), F.S. Generally, such reports must include a list of specified information, including, but not limited to, the
full name, address, and occupation, if any, of each person who made one or more contributions to or for such committee
within the reporting period, together with the amount and date of such contributions (s. 106.07(4)(a), F.S.).
5
See FLA. CONST. art XI, ss. 1-4 and 6. BILL: SPB 7016 Page 3
the method, all proposed amendments or revisions to the Florida Constitution must be submitted
to the electors at the next general election held more than 90 days after the joint resolution or
report of revision commission, constitutional convention or taxation and budget reform
commission proposing it is filed with the custodian of state records, or for citizen initiatives, if
all the required signatures were submitted prior to February 1 of the year in which the general
election will be held.
6
The Florida Constitution mandates that all proposed amendments or revisions
7
be adopted by at
least a 60 percent affirmative vote of those electors voting on the measure.
Citizens’ Initiatives
The Florida Constitution provides citizens with the right to propose constitutional amendments
through an initiative petition process.
8
The process includes the following signature
requirements:
• The total number of signatures must be equal to at least eight percent of the number of voters
in the last presidential election.
• The signatures must come from voters in at least one-half of the congressional districts of the
state.
9
The steps in the citizens’ initiative petition process are as follows:
• The individual or group wishing to propose an amendment must register as a political
committee with the Department of State’s Division of Elections (Division).
10
• The sponsoring political committee must submit its initiative petition form to the Division for
approval of its format.
11
• After the Division approves the format of a petition form, the Division assigns a serial
number to the initiative petition.
12
• After assignment of a serial number, the sponsoring political committee may begin
circulating petitions for signature by registered Florida voters.
13
6
See FLA. CONST. art XI, s. 5.
7
When the Florida Constitution uses the word ‘amendment’ it is in reference to a section of the constitution, while the word
‘revision’ relates to one or more articles or the whole constitution. See FLA. CONST. art. XI, s. 1.
8
FLA. CONST. art. XI, s. 3.
9
FLA. CONST. art. XI, s. 3.
10
Section 100.371(2), F.S. There is currently no limit on the number of initiatives each political committee may sponsor or
on the number of cycles a political committee sponsoring an initiative may stay active without reaching the signature
threshold required for Florida Supreme Court review.
11
Rule 1S-2.009 (Constitutional Amendment by Initiative Petition), F.A.C. The form must include the amendment title and
summary; sponsor information; the voter’s name, address, voter registration number, and date of birth; the voter’s signature
and the date signed; the petition circulator’s information, if applicable; and notice that the form becomes public record once
filed, that it is a first-degree misdemeanor to knowingly sign the same petition more than once, and that an improperly
completed form will not be validated. In addition, petition forms collected by paid petition circulators must contain an
affirmation by the circulator that the petition was signed in the circulator’s presence (s. 100.371(5)(b), F.S.).
12
Id.
13
See id. and s. 100.371(2), F.S. BILL: SPB 7016 Page 4
• Each signed initiative petition form must be submitted by the sponsoring political committee
to the supervisor of elections’ office in the county of residence of the signee for signature
verification.
14
• When the sponsoring political committee has obtained specified thresholds for verified
signatures,
15
the Secretary of State (Secretary) sends the petition to the Attorney General,
16
who must within 30 days of receipt petition the Florida Supreme Court (Court) for an
advisory opinion as to whether the text of the proposed amendment complies with state
constitutional requirements
17
, whether the proposed amendment is facially invalid under the
United States Constitution, and whether the proposed ballot title and substance comply with
statutory requirements
18
.
19
The Secretary concurrently sends a copy of the petition to the
Financial Impact Estimating Conference, which completes and submits to the Secretary and
Attorney General a financial impact statement for the proposed amendment.
20
• By February 1 of the year of the general election, the Secretary determines whether the
required number and distribution of signatures has been met.
21
If so, the Secretary issues a
certificate of ballot position to the sponsoring political committee.
22
No later than the next
day, the Division director assigns the designated number for the proposed amendment.
23
Additional details about the current citizens’ initiative process are provided under the
subheadings below.
Petition Circulators
A person may not collect signatures or initiative petitions for compensation without first
registering as a petition circulator with the Department of State (DOS).
24
Compensating a
petition circulator based on the number of petition forms gathered is a third-degree felony.
25
14
Section 100.371(11)(a), F.S. Each signature must be verified by the relevant supervisor of elections.
15
The verified signatures on petitions must be equal to at least 25% of the number of signatures required statewide and in at
least one-half of Florida’s congressional districts.
16
Section 15.21, F.S.
17
FLA. CONST. art. XI, s. 3, in part limits citizens’ initiatives (except those limiting the power of government to raise revenue)
to a single subject.
18
Section 101.161, F.S., provides format and content requirements for ballot titles and summaries. The ballot summary must
be an explanatory statement, not exceeding 75 words in length, of the chief purpose of the measure. The ballot title must
consist of a caption, not exceeding 15 words in length, by which the measure is commonly referred to or spoken of. However,
those requirements do not apply to amendments or revisions proposed by joint resolution of the Legislature. All proposals are
subject to requirements pertaining to a financial impact statement that must be included in the ballot summary.
19
Section 16.061(1), F.S.
20
Section 100.371(13), F.S.
21
Section 100.371(1), F.S.
22
Section 100.371(12), F.S.
23
Rule 1S-2.0011 (Constitutional Amendment Ballot Position), F.A.C.
24
Section 100.371(3)(a), F.S. There are currently no restrictions on who may register as a petition circulator. Applicants for
petition circulator must provide name; permanent address; temporary address, if applicable; and date of birth.
25
Section 104.86, F.S. BILL: SPB 7016 Page 5
Signature Verification
Each signed initiative petition form must be submitted within 30 days
26
by the sponsoring
political committee to the supervisor of elections’ office in the county of residence of the signee
for signature verification.
27
If a petition form collected by any petition circulator is not promptly
delivered to the supervisor, the sponsor is liable for the following fines:
• $50 for each petition received by the supervisor more than 30 days after the elector signed
the petition form, or $250 per petition form if the sponsor or petition circulator acted
willfully.
• $500 for each petition form collected but not submitted, or $1,000 per petition form if the
sponsor or petition circulator acted willfully.
28
Each supervisor must verify signatures within 60 days after receipt of the petition forms and
payment by the sponsor of the actual cost
29
of signature verification, unless the petition forms are
submitted less than 60 days before February 1 of an even-numbered year, in which case the
supervisor must verify the signatures within 30 days after receipt and payment.
30
There is currently no requirement that a voter be notified if his or her signature is verified as
having signed a petition.
Record Retention and Reporting
A supervisor must retain all signature forms for at least one year following the election for which
the petition was circulated.
31
On the last day of each month, or on the last day of each week from December 1 of an odd-
numbered year through February 1 of the following year, each supervisor must post on his or her
website, for each initiative:
• The total number of signatures submitted, invalid signatures, and signatures processed, and
the aggregate number of verified valid signatures and the distribution of such signatures by
congressional district.
• Specific to the reporting period, the total number of signed petition forms received and
verified, the distribution of verified valid signatures by congressional district, and the total
number of verified petition forms forwarded to the Secretary.
32
26
An initiative petition sponsor is liable for a fine of $50 for each day late, per petition, and for a $2,500 fine if willful. There
is no penalty for delivery completed petition forms after the deadline.
27
Section 100.371(11)(a), F.S. Each signature must be verified by the relevant supervisor of elections. The sponsoring
political committee must pay the actual cost of verification to the supervisor of elections.
28
Section 100.371(7)(a), F.S.
29
Each supervisor must post the actual cost of signature verification on his or her website and may increase such cost, as
necessary, on February 2 of each even-numbered year (s. 100.371(11)(b), F.S.).
30
Section 100.371(11)(a), F.S.
31
Id.
32
Section 100.371(11)(c), F.S. BILL: SPB 7016 Page 6
Financial Impact Estimating Conference and Financial Impact Statement
The Financial Impact Estimating Conference (FIEC) is established to review, analyze, and
estimate the financial impact of amendments to or revisions of the State Constitution proposed
by initiative. It consists of four principals:
• One person from the Executive Office of the Governor;
• The coordinator of the Office of Economic and Demographic, or his or her designee;
• One person from the professional staff of the Senate; and
• One person from the professional staff of the House of Representatives.
33
A FIEC may be appointed for each initiative. The President of the Senate and the Speaker of the
House of Representatives, jointly, are the sole judge for the interpretation, implementation, and
enforcement of the FIEC process.
34
After the Secretary submits to the FIEC an initiative petition that has received the required
number of verified signatures, the FIEC has 75 days to complete an analysis and financial impact
statement to be placed on the ballot of the estimated increase or decrease in any revenues or costs
to state or local governments and the overall impact to the state budget resulting from the
proposed initiative.
35
If the FIEC fails to reach consensus, the impact is listed as indeterminate.
36
The financial impact statement does not currently get added to the petition form that is signed by
voters.
Fraud in Citizens’ Initiatives
In October 2024, the Office of Election Crimes and Security
37
(Office) issued a report on
investigations concerning initiative petition fraud.
38
Investigated allegations included reports of
petition circulators signing petition forms on behalf of deceased individuals, forging or
misrepresenting elector signatures on petition forms, using electors’ personal identifying
information without consent, and perjury/false swearing. The Office reported nearly all of the
investigations had been referred to law enforcement for further investigation and prosecution.
39
33
Section 100.371(13)(c), F.S.
34
Id.
35
Section 100.371(13)(a), F.S.
36
Section 100.371(13)(d)3., F.S.
37
The Office of Election Crimes and Security is created within the DOS to aid the Secretary in completion of his or her
duties by conducting preliminary investigations into allegations of election law violations, both by initiating independent
inquiries and by receiving complaints (s. 97.022, F.S.).
38
Florida Department of State Office of Election Crimes and Security, Interim Report to Legislature on Initiative Petition
Fraud Related to the Abortion Initiative (23-07), October 11, 2024 (on file with the Senate Committee on Ethics and
Elections).
39
Id. BILL: SPB 7016 Page 7
Certification and Challenge of Election Results
The state Elections Canvassing Commission certifies the returns of the election for each federal,
state, and multicounty office.
40
Each county canvassing board must provide unofficial returns to
the Department of State for each federal, statewide, or multicounty office or ballot measure.
41
The certification of election or nomination of any person to office, or of the result on any
question submitted by referendum, may be contested in the circuit court by any unsuccessful
candidate for such office or nomination thereto or by any elector qualified to vote in the election
related to such candidacy, or by any taxpayer. The grounds for contesting an election are:
• Misconduct, fraud, or corruption on the part of any election official or any member of the
canvassing board sufficient to change or place in doubt the result of the election.
• Ineligibility of the successful candidate for the nomination or office in dispute.
• Receipt of a number of illegal votes or rejection of a number of legal votes sufficient to
change or place in doubt the result of the election.
• Proof that any elector, election official, or canvassing board member was given or offered a
bribe or reward for the purpose of procuring the successful candidate’s nomination or
election or determining the result on any question submitted by referendum.
42
III. Effect of Proposed Changes:
SPB 7016 contains whereas clauses related to fraud in signature gathering for citizens’ initiatives
and provides related legislative findings and legislative intent. The bill accordingly makes
significant changes to provisions governing citizens’ initiatives, as follows.
Sponsors of Initiative Petitions (section 6)
The bill limits sponsorship of initiative petitions to one initiative per political committee.
The bill also limits the number of cycles a sponsor can remain active without achieving the
signature threshold for Court review to three general elections. Proposed amendments filed
before February 1, 2022, must be refiled after February 2, 2026, to remain active. A proposed
amendment that expires under this provision may be refiled as a new initiative.
Petition Forms (section 6)
The bill adds to the petition form that is signed by voters a requirement that a voter provide his
or her Florida driver license or identification card number, or the last four digits of his or her
social security number.
It also:
• Expands the petition circulator affidavit to specify that that the petition was completed and
signed by the voter in the circulator’s presence.
40
Section 102.111(2), F.S.
41
Section 102.141(7)(c), F.S.
42
Section 102.168, F.S. BILL: SPB 7016 Page 8
• Requires the financial impact statement provided by the FIEC to be added to the petition
form once complete.
Petition Circulators (sections 4 and 6)
The bill limits the number of signed petition forms a person may collect before he or she must
register as a petition circulator. Specifically, a person may not distribute, collect, deliver, or
otherwise physically collect more than two signed petition forms in addition to his or her own
petition form or a signed petition form belonging to an immediate family member. This change
expands the definition of petition circulators to include both paid and unpaid persons.
The bill prohibits the following persons from registering as petition circulators:
• A person who has been convicted of a felony violation and has not had his or her right to
vote restored.
• A person who is not a U.S. citizen.
The bill also:
• Authorizes the Division to revoke a petition circulator’s registration if the circulator violates
statutory requirements.
• Adds to the petition circulator application a requirement that the applicant provide a copy of
his or her driver license or identification card and the last four digits of his or her social
security number.
• Creates a training requirement for petition circulators.
Signature Verification (section 6)
The bill reduces the number of days a sponsor has to submit signed petition forms to the
appropriate supervisor of elections to 10 from 30.
Regarding payment for verification, the bill:
• Clarifies that signatures may not be verified until payment has been received and processed
by the supervisor.
• Allows supervisors to include operational and personnel costs in the verification fee, along
with other costs associated with signature verification.
• Allows supervisors to update costs 90 days after the bill becomes law, and annually on
March 1 thereafter.
• Allows supervisors to post two costs, one for petition forms received more than 60 days
before February 1 of an even-numbered year, and one for petition forms received less than 60
days before that date.
Regarding notification to voters, the bill:
• Requires each supervisor to, upon verifying a signature, mail a notice of such to the voter,
pursuant to a prescribed process.
• Allows a voter who believes his or her signature was misrepresented or forged to notify the
supervisor and have that petition invalidated.
BILL: SPB 7016 Page 9
The bill also, for any reporting period in which the percentage of invalid signatures exceeds 25
percent, requires the supervisor to notify the Office of Election Crimes and Security, and requires
the Office to investigate for potential fraud.
Record Retention and Reporting (section 6)
The bill:
• Requires supervisors of elections to transmit petition forms to the Division at specified
intervals.
• Expands the existing reporting requirement for supervisors regarding verification of
signatures to also require reporting of the total number of signatures reported as fraudulent or
misrepresented and therefore revoked.
Penalties (sections 6, 12, 13, 15, and 18)
The bill revises fines regarding late- or not-submitted signed petition forms to the supervisor of
elections to:
• Increase fines for late-submitted petition forms to $50 per each day late, and to $2,500 for
each petition form if the sponsor or petition circulator acted willfully.
• Increase fines for non-submitted petition forms to $5,000 if the sponsor or petition circulator
acted willfully.
• Create a new fine for submission of a signed petition form after the deadline, specifically
$100 per each day late, up to a maximum of $5,000, for each petition form, or $5,000 for
each petition form if the sponsor or petition circulator acted willfully.
The bill creates a substantive prohibition against basing any kind of compensation for petition
circulators on the number of petition forms gathered. A person who violates the prohibition will
be subject to an existing third-degree felony.
The bill expands:
• The existing third-degree felony for signing another person’s name or a fictitious name to a
petition form to also prohibit filling in missing information on a form.
• The existing racketeering provision to include a violation relating to petition circulators and
sponsors of initiative petitions.
The bill creates the following new prohibitions and penalties:
• A third-degree felony for a person collecting forms on behalf of a sponsor to copy or retain a
voter’s personal identifying information for any reason other than to provide such
information to the sponsor.
• If a person collecting petition forms on behalf of a sponsor is convicted of signing another
person’s name or a fictitious name or of filling in missing information, the sponsor is liable
for a $5,000 fine for each such petition.
• Prohibit a sponsor, or a person collecting forms on behalf of a sponsor, from mailing or
otherwise providing a petition form with a voter’s information prefilled, and specify a fine of
$50 for each such petition. BILL: SPB 7016 Page 10
• A third-degree felony for a person who violates the new limit on collecting signed petition
forms.
FIEC and Financial Impact Statement (section 3)
The bill adds compliance of the financial impact statement with statutory requirements to the
subjects the Court must review regarding the initiative petition.
43
It also requires the financial
impact statement to be added to the petition form once completed.
The bill clarifies that:
• The FIEC may be convened only by the President of the Senate and the Speaker of the House
of Representatives, jointly.
• The FIEC principals are professional staff of the Governor and Legislature and not outside
entities.
Certification and Challenge of Election Results (sections 6, 9, 10, and 11)
The bill:
• Directs the Secretary to rescind a petition initiative’s certificate of ballot position if an
advisory opinion issued by the Court pursuant to the automatic initiative review process
deems the initiative petition invalid.
• Adds constitutional amendments to the types of elections the state Elections Canvassing
Commission must certify.
• Adds to the existing contest of elections statute the ability to challenge a constitutional
amendment under specified circumstances.
Implementation/Effective Dates (sections 7, 19, 20, 21, and 22)
The bill “grandfathers” in initiative petitions filed with the Secretary prior to the bill’s effective
date, so no verified petitions are impacted. Thirty days after the bill becomes law, petition forms
for existing initiatives must be updated to include the newly required fields.
Supervisors must pause verification of signatures for 90 days after the bill becomes law to allow
for implementation of new provisions. They must continue to accept signed petitions during that
time.
Petition circulators must re-register 30 days after the bill becomes law to ensure they comply
with new requirements.
The financial impact statement must be included on petitions filed after the bill becomes law.
Except as otherwise provided, the bill takes effect upon becoming a law.
43
The Court has previously declined jurisdiction to review the fiscal impact statement as part of the automatic initiative
review process because it was not part of the petition (see Floridians Protecting Freedom, Inc., et al., v. Passidomo, 392
So.3d 777 (Fla. 2024). BILL: SPB 7016 Page 11
IV. Constitutional Issues:
A. Municipality/County Mandates Restrictions:
None.
B. Public Records/Open Meetings Issues:
None.
C. Trust Funds Restrictions:
None.
D. State Tax or Fee Increases:
None.
E. Other Constitutional Issues:
The United States Supreme Court has issued numerous opinions defining First
Amendment freedom of speech limits on election laws, including some specifically
related to ballot-initiative petitions.
The Court has concluded that the circulation of such petitions represents core political
speech and merits the highest level of protection.
44
However, the Court also has
recognized that regulation of elections is necessary to ensure fairness and order.
45
States
allowing ballot initiatives have considerable leeway to protect the integrity and reliability
of the initiative process, as they have with respect to election processes generally.
46
So,
restrictions on an initiative process will be upheld against a First Amendment challenge if
such restrictions “protect the integrity and reliability of the initiative process” and do not
“unjustifiably inhibit the circulation of ballot-initiative petitions.”
47
In First Amendment challenges to laws governing initiative petitions, the Court has
analyzed whether the restrictions in question significantly inhibit communication with
voters about proposed political change and, if so, whether they are warranted by the state
interests alleged to justify those restrictions.
48
A key factor considered by the Court in
this context is whether the effect of the law will limit the number of persons who carry
the initiative proponents’ message, and, consequently, reduce the size of the audience
initiative proponents can reach.
49
In striking down a ban on paid petition circulators, the
Court held that the challenged restriction reduced the chances that initiative proponents
44
Meyer v. Grant, 486 U.S. 414 (1988).
45
Storer v. Brown, 415 U.S. 724 (1974); see Timmons v. Twin Cities Area New Party, 520 U.S. 351 (1997); Anderson v.
Celebrezze, 460 U.S. 780 (1983).
46
Biddulph v. Mortham, 89 F.3d 1491 (11th Cir. 1996).
47
Buckley v. American Constitutional Law Found., Inc., 525 U.S. 182 (1999).
48
Meyer, 486 U.S. 414; Buckley, 525 U.S. 182 at 192.
49
Meyer, 486 U.S. 414 at 422-423. BILL: SPB 7016 Page 12
would gather signatures sufficient in number to qualify for the ballot, and thus limited
proponents’ ability to make the matter the focus of statewide discussion; the restriction
imposed a burden on political expression that the state failed to justify.
50
Additional examples of initiative petition restrictions struck down by the Court include:
• A requirement that petition circulators be registered voters.
51
• A requirement that petition circulators wear a name badge.
52
• A requirement that initiative sponsors disclose specified information about all petition
circulators.
53
• A $250 limit on contributions to committees formed to support or oppose ballot
measure referenda.
54
Examples of initiative petition restrictions upheld by the courts include:
• A minimum age requirement for petition circulators.
55
• A six-month limit on the time period in which petitions can be circulated.
56
• A requirement that a circulator attach to each petition section an affidavit containing
the circulator’s identifying information and a statement that he or she has read and
understands the laws governing the circulation of petitions.
57
• Single subject and unambiguous title requirements.
58
• A requirement that the names of contributors and the amounts contributed be
disclosed.
59
• A prohibition against persons convicted of certain felonies related to elections or
fraud from collecting completed voter registration applications on behalf of a third-
party voter registration organization.
60
V. Fiscal Impact Statement:
A. Tax/Fee Issues:
None.
50
Meyer, 486 U.S. 414 at 423-425.
51
Buckley, 525 U.S. 182 at 197.
52
Buckley, 525 U.S. 182 at 200.
53
Buckley, 525 U.S. 182 at 204.
54
Citizens Against Rent Control/Coalition for Fair Housing v. City of Berkeley, California, 102 U.S. 434 (1981). In this case,
the Court determined that the restraint imposed by the ordinance on rights of association and in turn on individual and
collective rights of expression contravened both the right of association and the speech guarantees of the First Amendment.
55
American Constitutional Law Found., Inc., v. Meyer, 120 F.3d 1092 (10th Cir. 1997).
56
Id. at 1099.
57
American Constitutional Law Found., Inc., 120 F.3d 1092 at 1100.
58
Biddulph, 89 F.3d 1491.
59
American Constitutional Law Found., Inc., 120 F.3d 1092 at 1104-1105. Specifically, the court held that disclosure of the
names of initiative sponsors, and of the amounts they had spent gathering support for their initiatives, responded to a
substantial state interest in maintaining a check on domination of the initiative process by affluent special interest groups.
60
Hispanic Federation, et al., v. Cord Byrd, 719 F.Supp.3d 1236, United States District Court, N.D. Florida, March 2024.
The same order ruled against a prohibition against noncitizens from collecting completed voter registration applications. The
issue is on appeal in the 11th Circuit. BILL: SPB 7016 Page 13
B. Private Sector Impact:
Sponsors of initiative amendments may incur indeterminate costs related to the new
limits on sponsors and increased fines.
C. Government Sector Impact:
The supervisors of elections will incur costs associated with implementation of the new
voter notification requirement. Annual cost estimates provided by supervisors range from
$9,927 for a small county to $301,445 for a large county.
61
The authorization for supervisors to adjust costs for signature verification annually and to
post two costs is likely to have a positive impact on supervisor budgets.
The DOS may incur costs related to implementation of the bill’s provisions. Any such
costs are likely to be managed within existing resources.
VI. Technical Deficiencies:
None.
VII. Related Issues:
None.
VIII. Statutes Affected:
This bill substantially amends the following sections of the Florida Statutes: 15.21, 16.061,
97.021, 99.097, 100.371, 101.161, 102.111, 102.121, 102.168, 104.185, 104.186, 104.187,
106.19, 212.055, and 895.02.
This bill creates the following section of the Florida Statutes: 104.188.
IX. Additional Information:
A. Committee Substitute – Statement of Changes:
(Summarizing differences between the Committee Substitute and the prior version of the bill.)
None.
B. Amendments:
None.
This Senate Bill Analysis does not reflect the intent or official position of the bill’s introducer or the Florida Senate.
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Email from Florida Supervisors of Elections, March 6, 2025 (on file with the Senate Committee on Ethics and Elections).