Columbus City Council Through The Years

Columbus City Council By Ernie J. Shannon October 2009 The old Brooklyn Dodgers had a saying after continually losing to the New York Yankees in the World Series — “Wait ’til next year!” Franklin County Republicans might say the same thing, with a slight caveat — “Wait two more years!” That’s because Democrats will likely extend their control of Columbus City Council to nearly five decades this November when three hapless Republican candidates for council give new meaning to the term “swimming upstream” and join their brothers and sisters in the proverbial trash heap of failed GOP campaigns. Even more impressive: it will be seven years since the last Republican served on council. That kind of political domination one would expect to see in such traditional Democratic strongholds as Chicago, Detroit, or even Cleveland. But Columbus? A historian would have to go back to December 1965 to find the last Columbus City Council led by Republicans.1 That November’s vote catapulted Democrats to a majority of seats on council effective in January 1966, and Democrats have never looked back. In 2002, the last Republican left council chambers, and the party has effectively been locked out of city hall ever since.2 That this disappearance from city hall may be more than a momentary swing of the political pendulum is evidenced by Columbus population demographics that heavily favor Democrats in citywide races.3 In fact, the question may no longer be whether the city might ever enjoy a two-party presence downtown again, but whether the ruling Democratic party is willing to broaden debate within its own ranks. And those ranks have become so closed that Democratic candidates for re-election to council have taken to running as a team, sharing campaign dollars and advertising, further overwhelming their Republican opponents and any Democrat foolish enough to buck the party and run as a lone ranger.4 Since 2003, Democrats on council have had no other party or persuasion to get in their way as they’ve had full sway on all issues coming to council chambers. Hence, 1

“Democratic control of council since 1965” (Columbus Dispatch article Nov. 4, 1987; online archives - Article 71 of 341)

“The last Republican leaving city hall in 2002” (Columbus Dispatch article Nov. 7, 2007; online archives - Article 44 of 123) 3 “Columbus population demographics” (Columbus Dispatch article Nov. 7, 2007 when Franklin County GOP referred to Columbus not your father’s city; online archives - Article 44 of 123) 2

“Democratic candidates running as a team and sharing campaign dollars” (Columbus Dispatch article Nov. 5, 1997 referring to Team Coleman; online archives - Article 41 of 103) 4

there’s no mystery what policy the council will follow on most issues, rather what flavor they will choose. For while Columbus is not the only city with a Democratic-controlled government, it is one of the very few of its size that has as few as seven council members, exercises no term limits, and elects each one from an at-large arrangement rather than a district representation.5 Perhaps most unusual, Columbus may well be the only large city in the United States in which every council member who has served in the last 25 years has been initially appointed rather than elected — save three. And two of those were Republicans. 6 In a comparison with four other Midwest communities, Cleveland, Cincinnati, Indianapolis, and Pittsburgh, Columbus clearly has the least accessible city council in terms of diversity and innovative thinking. In this case, diversity does not refer to race or gender, but to new blood. For instance, Cincinnati, with a population of more than 333,000 (Columbus has a population of nearly three quarters of a million), has nine council members who are elected as at-large candidates and who serve only two-year terms.7 The two-year service means that they come before the voters as an entire council more frequently than the Columbus council and are therefore more accountable for their policies during those 24 months. This makes retiring from or being appointed to council more problematic and, thus, a rarity in Cincinnati.8 In Cleveland, with a population of more than 433,000, council is made up of 21 members serving wards. At least eight of the current crop of council members have been appointed.9 While all 21 councilmen and councilwomen are declared Democrats, the 5

“For while Columbus is not the only city with a Democraticcontrolled government . . .” (I came to this conclusion not only by referencing Cleve, Cinc, Indi, and Pitts specifically, but also in briefly looking at Wikipedia’s “Cities by Population” and looking at Jacksonville, Austin, Fort Worth and Charlotte. Because these comparisons were not detailed, I left the door open by saying “very few” rather than saying “the only”).

6

: “Perhaps most unusual . . .” (I drew similar conclusions here. I’m assuming there aren’t too many cities with councils functioning exactly like Columbus, but my research only involved the abovementioned communities).

7

“Population quotes” (Wikipedia’s “Cities by Population”). In the following articles, the Dispatch does a good job of not only referencing the winners and losers, but giving a little background as to how the candidates initially came to council.

8

Cincinnati City Council organization (City of Cincinnati official web site; Cincinnati City Council official web site).

9

Cleveland City Council organization (Interview with Patricia

requirement to represent wards of approximately 23,000 citizens each produces competitive intra-party battles and provides for a much broader range of debate and policy development. The large number of wards in a city of less population than Columbus means that individual sections of Cleveland have more direct access to council. There are logical reasons why most legislative bodies across the country represent districts whether they are Congressional, state legislative, or city council bodies. And those reasons revolve around representation and accountability to voters. The city of Indianapolis has an even more unique governmental organization. The city and the surrounding Marion County are governed by the Indianapolis city council. This council consists of 29 members representing 25 districts with four at-large seats. In the 2007 election, Republicans gained a 16 - 13 edge to claim a majority. This relatively even split in party affiliation on council is due to a unique Unigov arrangement between Indianapolis and Marion County, Indiana.10 The city of Indianapolis dominates the county, and so the two governments have merged to form a council that represents the stronger Democratic-controlled inner-city population and the more pervasive Republican population in the county surrounding the capital city. This unusual organization provides county voters who support the city through their daily commutes to and from Indianapolis, a voice in city business. On the other hand, Franklin County, Ohio residents and others who work in Columbus now face the prospect of paying taxes to the city while having no representation in city government thanks to a recent tax increase approved by Columbus voters. Pittsburgh, a city governed by a Democratic mayor and council for as long as anyone can remember (at least back to the mid-1930s), has nine members from nine districts. Council members are restricted by term limits, and elections are often heated as policy debates can be wide-ranging between Democratic candidates. The limitation on terms means that the party must consistently recruit fresh talent, and appointments to council are rare.11

Britt, clerk of council; interview with Martin Hauserman, council historian; City of Cleveland official web site; Cleveland City Council official web site; Google search of individual council members). 10

Indianapolis City Council organization (Indy.Gov web site; city council biographies; Google search of individual council members and Unigov organization).

11

Pittsburgh City Council organization (Pittsburgh.pa.us/council site; city council biographies; Google search of individual council members).

In contrast with these sister cities, Columbus City Council seems almost hidebound. To start with, there are only seven seats on council, meaning that each member represents more than 100,000 people theoretically. Next, the at-large format assures that candidates aren’t derailed by pesky minority voting blocks, and Democrats almost always run as incumbents! In the last 24 years, only two Democratic candidates for council have had to run as a new candidate. All the other men and women running under the Democratic banner since 1985 have been appointed to fill seats left vacant by Democrats departing council early.12

12

The individual council members who have been appointed to or run for council seats. See below: 1985 (Columbus Dispatch article Nov. 6, 1985; online archives - Article 43 of 210) 1987 (Columbus Dispatch article Nov. 4, 1987; online archives - Article 71 of 341) 1989 (Columbus Dispatch article Nov. 8, 1989; online archives - Article 55 of 307) 1991 (Columbus Dispatch article Nov. 6, 1991; online archives - Article 36 of 110) 1993 (Columbus Dispatch article Nov. 3, 1993; online archives - Article 77 of 112) 1995 (Columbus Dispatch article Nov. 9, 1995; online archives - Article 46 of 102) 1997 (Columbus Dispatch article Nov. 5, 1997; online archives - Article 41 of 103) 1999 (Columbus Dispatch article Nov. 3, 1999; online archives - Article 54 of 108) 2001 (Columbus Dispatch article Nov. 7, 2001; online archives - Article 39 of 150) 2003 (Columbus Dispatch article Nov. 5, 2003; online archives - Article 52 of 140) 2005 (Columbus Dispatch article Nov. 9, 2005; online archives - Article 53 of 152)

To be fair, these departing council members have left early for a variety of reasons, but the fact remains that almost all Columbus City Council members are appointed to office rather than elected to it, something almost unheard of in most cities of comparable size and influence. Starting in December 1985 following that November’s election, six of the Columbus City Council members were Democrats M. D. Portman; Ben Espy; Cynthia Cecil, who had been appointed to council that year; John Maloney; Jerry Hammond; and Charles Mentel. The lone Republican was Arlene Shoemaker. In 1988 Maloney died suddenly, necessitating an appointment, and the Democratic majority selected Thomas Kaplin. He would be defeated in 1991 by Republican Jeannette Bradley who gave Republicans two seats on council for a short duration. Also in 1988, Mentel left council early; that led to the appointment of John Kennedy to his seat. In 1990 Hammond retired early from council, allowing Les Wright to be appointed in his place. Two years later Ben Espy accepted an appointment to the state legislature; that resulted in Michael Coleman being tapped for Espy’s seat. In 1993 Republican Arlene Shoemaker announced her retirement from council, completed her term, and saw Democrat Matt Habash win her seat beginning in 1994. During that year, Democrat Cynthia (Cecil) Lazarus left council to take a judgeship, and she was replaced by Lisa Griffin. For 1995, M. D. Portman retired from council after many years of service, and he was replaced by Richard Sensenbrenner, son of former Democratic M. E. Sensenbrenner, also appointed. That same year Griffin was defeated by Republican Peggy Fisher, a rare feat in Columbus, but Fisher served only two years before losing to Democrat Mary Ellen O’Shaughnessy only the second Democrat since 1985 who has had to run for council for the first time instead of being appointed. The year 1998 proved to be a big year for Democrats when Wright and Kennedy left council early, allowing for the appointments of Charleta Taveras and Michael Mentel, nephew of the former councilman. With Coleman’s election to the mayor’s office in 1999, his seat was filled by Kevin Boyce, by appointment. Patsy Thomas was appointed by the Democratic council to replace Republican Bradley in 2002 when she was elected Lt. Governor. Mary Jo Hudson replaced a retiring Richard Sensenbrenner who moved to Cleveland in 2004. Andrew Ginther was appointed to complete Thomas’s term, and Hearcel Craig was tapped to step in for Matt Habash who also left that year. Finally, with Mary Jo Hudson’s move to the Strickland administration, (Priscilla) Tyson was appointed

2007 (Columbus Dispatch article Nov. 7, 2007; online archives - Article 44 of 123)

to fill her seat. This astonishing 24-year run of council appointments has meant that potential candidates for council spend much more time dressing up for council and the Franklin County Democratic Party than they do Columbus voters. It does little good to compile an impressive record of community service if one hasn’t greased the skids with council and party leadership because the only feasible way onto council if you’re a Democrat is by appointment. The tradition of leaving council early, whatever the reason may be, is so engrained in Columbus that an observer might ask if there is an unstated agreement among council members to arrange an early departure if they plan not to run again when their seat comes up for election. Columbus City Council Spokesman John Ivanic responded: “I’ve been with the city council for two years and in every case during that time, members have left to accept other positions.13” When asked about the historical practice and whether there existed some kind of understanding, he said, “To suggest that people are meeting behind closed doors and agreeing to this is offensive.” That may well be, but Columbus stands in stark contrast with its sister communities in Cleveland, Cincinnati, Indianapolis, and Pittsburgh. In each comparison, Columbus has either the smaller council, longer terms of service, no district representation, or the habit of appointing its members to council, making the central Ohio community extremely conservative in terms of representing its citizens and appearing to lack innovative approaches to governing when compared with other Midwest cities. Columbus voters ought to reflect upon several questions. Does this tightly controlled, one-party legislative body impact the city’s growth and competitiveness? Can council members appointed to office by their fellow members and re-elected as part of a “team” possibly have sufficient independence to think “out of the box” or aggressively oppose other council members? Can this tiny body of seven people really reflect the needs of a community nearly three-quarters of a million in size? Finally, when more than 90 percent of council members who have served since 1985 have been appointed to their seats and then run as incumbents a year or two later, is new talent and fresh thinking being sacrificed for party loyalty?

13

Phone interview with Council Spokesperson John Ivanic on August 23, 2009.