When Rookies Rule The Roost

Cut it! cut it!" the young Republicans were getting carried away. During an all-night budget session in late April in the Ohio house of representatives, G.O.P. members were chanting in unison. "Cut it! Cut it!" But they had no idea what they were cutting. With the economy slowing, the state legislature faced an $800 million budget shortfall. And so the Republican leadership was staying up through the night, going through the budget line by line. Then the caucus found an $8.4 million agriculture item no one could explain. "Cut it! Cut it!" The item was slashed. But the next day someone pointed out that the money was earmarked to help prevent the spread of mad-cow and foot-and-mouth diseases. The caucus quickly restored--even increased--the funding.

If it sounds as if these Republicans don't know what they're doing, it's because most are learning on the job. Almost half of Ohio's state representatives are rookies, put in office because statewide term limits, passed in 1992, threw out incumbents after eight years. In the past decade, voters in 18 states imposed such limits. Now they are learning the unintended consequences, as the newbies cope with a slowing economy that forces them to cut budgets or raise taxes for the first time in years.

"I don't understand budgets," says state representative Jim Carmichael, one of Ohio's 45 house rookies. Carmichael worked for a gas utility for 33 years before coming to Columbus, and he admits he depends on colleagues to explain budget matters. "I was talking with a fellow member about an item, and he said, 'Well, it's only $104 million.'" says Carmichael. "I thought 10 bucks was a lot of money." Rookie Derrick Seaver was facing high school math this time last year, running for an open seat at 18. Life as a legislator is a little different. "The amount of time and effort that goes into the job was an overwhelming shock," says Seaver.

Proponents of term limits argued that installing fresh lawmakers every few years would make them more accountable. Legislators would see their jobs not as careers but as brief opportunities to make tough decisions and get things done. Opponents feared lobbyists would gain even more influence. None of the above happened. Lobbyists struggled as their long-term relationships with veteran pols became meaningless. Veteran staff members in the state capitals have had their power enhanced by guiding the rookies. In Maine, the number of bills has almost doubled in recent years, as rookies try to make a mark. But the number of laws passed has shrunk.

No wonder lawmakers in 10 of the 18 states with limits are trying to repeal them or, at least, lengthen how long they can serve--and never mind that voters enacted limits by more than 65% in most states or that support remains high. Oregon was one of the first states to adopt limits, in 1992, but after shuffling through five house speakers in five sessions, the legislature just approved a ballot referendum to repeal limits.

As Ohio's legislature neared its first round of forced retirements last year, 13 of 39 term-limited representatives quit to take jobs in the private sector or in Governor Bob Taft's administration. House speaker Jo Ann Davidson, term-limited herself, had to appoint three finance chairmen in a single year. "You have to run an ongoing orientation throughout the session," she says.