Political Campaign Contributions and Congress: A Legal Primer

Political Campaign Contributions and Congress: A Legal Primer

Political Campaign Contributions and
September 8, 2020
Congress: A Legal Primer
L. Paige Whitaker
To help curb corruption in the political process and safeguard First Amendment rights to freedom
Legislative Attorney
of speech and association, Congress has enacted laws that regulate political campaig n

contributions. These laws include political patronage and campaign finance laws.
Federal political patronage laws serve to protect federal employees—including congressional

staff—from being required to make campaign contributions as a condition of employment. These
criminal laws include a prohibition on Members of Congress, congressional candidates, and congressional staff from
knowingly soliciting federal office campaign contributions from another such officer, employee, or person receiving
compensation for services from money derived from the U.S. Treasury. Similarly, federal law prohibits congressional staff
from making contributions to a Member of Congress who is the staffer’s employer. Members of Congress and congressional
staff are also prohibited from discharging, demoting, or promoting, or threatening to d o so, another congressional employee
for making or failing to make a campaign contribution to candidates for federal, state, and local office. Relating to federal
workspace, federal law prohibits any person from soliciting or receiving a donation of money or other thing of value in
connection with a federal, state, or local election from anyone located in federal workspace. In support of the policy
underlying such laws, the Supreme Court has determined that, with the exception of policymaking and confidential
government positions, personnel decisions made solely on the basis of political party association violate employee First
Amendment rights to freedom of speech and association.
Federal campaign finance laws regulate campaign contributions made to congressional candidates by establishing limits,
source restrictions, and disclosure requirements. The Federal Election Campaign Act (FECA) defines a contribution to
include money or anything of value that is made for the purpose of influencing any federal election. A contribution can be
distinguished from an expenditure in that a contribution involves giving money to an entity, such as a candidate’s campaign
committee, while an expenditure involves spending money directly fo r advocacy of the election or defeat of a candidate. For
knowing and willful violations of FECA, criminal penalties may be imposed.
Campaign Contribution Limits
Contribution limits refer to how much a donor can contribute as well as how they can contribute. Contribution limits include
specific limits on how much money individuals may contribute to a congressional candidate, which are known as base limits.
In the current 2019-2020 federal election cycle, an individual can contribute up to $2,800, per electio n, to a candidate. These
limits are periodically adjusted for inflation in odd-numbered years. FECA also provides for related restrictions, including the
ban on contributions made through a conduit; the ban on converting campaign contributions for personal use; and the
treatment of communications a donor makes in coordination with a candidate or party as contributions. The Supreme Court
has generally upheld the constitutionality of these restrictions to protect against quid pro quo corruption and its appearance.
Although the Court has generally upheld reasonable base limits, the Court has struck down FECA’s aggregate limits, which
capped the total amount of money a donor could contribute to all candidates, parties, and political committees; limits on
contributions to candidates whose opponents self-finance; and limits on contributions by minors. In addition, based on
Supreme Court precedent, an appellate court ruling provided the legal underpinning for the establishment of super political
action committees (s uper PACs), ruling that limits on contributions to groups that make only independent expenditures are
unconstitutional.
Campaign Contribution Source Restrictions
FECA contains several bans, referred to as source restrictions, on who may make campaign contributions. Source restrictions
include the ban on corporate and labor union campaign contributions directly from their treasury funds—although the
Supreme Court has held that limits on corporate and labor union independent spending are unconstitutional, the Court has
upheld limits on contributions. Source restrictions also include the ban on federal contractor contributions—known as the
“pay-to-play” prohibition—and the ban on foreign national contributions.
Campaign Contribution Disclosure Requirements
Under FECA, candidate campaign committees must register with the Federal Election Commission (FEC) and comply with
disclosure requirements. Such requirements include filing periodic reports that include the total amount of all contributions
received, and the identity, address, occupation, and employer of any person who contributes more than $200 during a
calendar year. The Supreme Court has generally upheld the constitutionality of disclosure requirements as substantially
related to the governmental interest of safeguarding the integrity of the electoral process by promoting transparency and
accountability.
Congressional Research Service

link to page 4 link to page 5 link to page 6 link to page 6 link to page 7 link to page 7 link to page 8 link to page 8 link to page 12 link to page 12 link to page 12 link to page 12 link to page 13 link to page 16 link to page 19 link to page 20 link to page 20 link to page 20 link to page 22 link to page 23 link to page 24 link to page 25 link to page 9 link to page 27 link to page 34 Political Campaign Contributions and Congress: A Legal Primer

Contents
Political Patronage Laws .................................................................................................. 1
Prohibition on Soliciting Campaign Contributions .......................................................... 2
Prohibition on Making Campaign Contributions ............................................................. 3
Prohibition on Intimidating to Secure Campaign Contributions ......................................... 3
Prohibition on Soliciting or Receiving Campaign Contributions in Federal Workspace ......... 4
Penalties .................................................................................................................. 4
Campaign Finance Laws .................................................................................................. 5
Campaign Contribution Limits and Related Restrictions .................................................. 5
Treatment of Loans............................................................................................... 9
Prohibition on Campaign Contributions Made in the Name of Another:
“Straw Donor” or Conduit Ban ............................................................................ 9
Prohibition on Converting Campaign Contributions for Personal Use ........................... 9
Coordinated Communications Treated As Campaign Contributions ............................ 10
Campaign Contribution Limits Held Unconstitutional .............................................. 13
Campaign Contribution Source Restrictions................................................................. 16
Prohibition on Corporate and Labor Union Campaign Contributions:
PAC Required ................................................................................................. 17
Prohibition on Federal Contractor Campaign Contributions: “Pay-to-Play” Ban ........... 17
Prohibition on Foreign National Campaign Contributions ......................................... 19
Campaign Contribution Disclosure Requirements ......................................................... 20
Penalties ................................................................................................................ 21
Constitutional Considerations for Policy Options ............................................................... 22

Tables
Table 1. Major Federal Contribution Limits, 2019-2020 ........................................................ 6

Appendixes
Appendix. Reference List of Federal Statutes .................................................................... 24

Contacts
Author Information ....................................................................................................... 31

Congressional Research Service

link to page 27 link to page 4 link to page 4 link to page 4 link to page 8 link to page 16 link to page 16 Political Campaign Contributions and Congress: A Legal Primer

o help curb corruption in the political process and safeguard First Amendment rights to
freedom of speech and association, Congress has enacted laws that regulate political
T campaign contributions.1 For example, federal political patronage laws serve to protect
federal employees—including congressional staff—from being required to make campaign
contributions as a condition of employment.2 In support of the policy underlying such laws, the
Supreme Court has determined that, with the exception of policymaking and confidential
government positions, personnel decisions made solely on the basis of political party association
violate employee First Amendment rights to freedom of speech and association.3 Moreover,
federal campaign finance law sets forth a complex set of limits, restrictions, and requirements on
campaign contributions made to congressional candidates.4 The Supreme Court has general y
upheld the constitutionality of these regulations in order to maintain the integrity of the
democratic process by protecting against quid pro quo corruption and its appearance.5 Essential y,
quid pro quo corruption involves “a direct exchange of an official act for money.”6
In the midst of the 2020 federal election cycle, this report outlines select federal laws that regulate
political campaign contributions relevant to Members of Congress, congressional candidates, and
congressional staff. First, the report addresses four federal political patronage laws that restrict
the soliciting, receiving, and making of campaign contributions based on employment or federal
workspace. Then, the report examines several federal campaign finance laws that regulate
campaign contributions, focusing on limits, source restrictions, and disclosure requirements.
Integrated throughout, the report also assesses court rulings that have a significant impact on the
constitutionality or regulatory scope of the law. The report concludes with a review of key
constitutional considerations should Congress decide to enact legislation that would further
regulate campaign contributions. For convenient reference, the Appendix sets forth the text of the
prominent federal statutes discussed throughout the report.
Political Patronage Laws7
In certain circumstances relating to federal employment status or workspace, federal criminal
laws prohibit Members of Congress and congressional staff from soliciting, receiving, and

1 Federal law broadly defines a “contribution” to include money or anything of value given for the purpose of
influencing an election for federal office. See 52 U.S.C. § 30101(8)(A).
2 See infra “Political Patronage Laws” section of this report.
3 See, e.g., Elrod v. Burns, 427 U.S. 347, 372 (1976) (plurality opinion) (determining that dismissal of employees for
lack of political loyalty unconstitutionally burdens employee free speech rights), discussed infra “ Political Patronage
Laws” section of this report.
4 See infra “Campaign Finance Laws” section of this report.
5 See, e.g., Buckley v. Valeo, 424 U.S. 1, 27 (1976) (holding that both the reality and appearance of corruption as a
result of large campaign contributions was a sufficiently compelling interest to warrant infringements on First
Amendment liberties “to the extent that large contributions are given to secure a quid pro quo from [a candidate]”),
discussed infra § Campaign Contribution Limits and Related Restrictions. For discussion of the Supreme Court’s
campaign finance jurisprudence, see CRS Report R43719, Cam paign Finance: Constitutionality of Lim its on
Contributions and Expenditures, by L. Paige Whitaker.
6 McCutcheon v. Fed. Election Comm’n, 572 U.S. 185, 192 (2014), discussed infra “Campaign Contribution Limits
Held Unconstitutional” section of this report.
7 T his portion of the report focuses on four federal political patronage laws. For discussion of other related criminal
laws, see CRS Report R45479, Bribery, Kickbacks, and Self-Dealing: An Overview of Honest Services Fraud and
Issues for Congress, by Michael A. Foster and CRS Report R41930, Mail and Wire Fraud: A Brief Overview of
Federal Crim inal Law, by Charles Doyle.
Congressional Research Service
1

Political Campaign Contributions and Congress: A Legal Primer

making campaign contributions.8 These statutes are often referred to as political patronage laws
because they prohibit government employees from inducing or rewarding partisan political
activity.9 As observed by the U.S. Department of Justice (DOJ), patronage crimes occur most
frequently when one political party is dominant, but under threat from credible opposition, and in
jurisdictions where other types of public corruption occur and are tolerated.10
In a line of cases beginning in the 1970s, the Supreme Court has general y held that, with the
exception of policymaking and confidential government positions, personnel decisions made
solely on the basis of partisan association or loyalty violate employees’ First Amendment rights to
freedom of speech and association.11 For example, in Elrod v. Burns, a plurality of the Court
determined that the dismissal of employees for lack of political loyalty is “tantamount to coerced
belief,” thereby burdening employee free speech rights.12 Further, the plurality concluded that
asserted government interests in support of patronage do not justify that burden because they are
not the least restrictive means to achieve those interests.13 Later, the Court in Rutan v. Republican
Party of Illinois extended that reasoning to patronage hiring decisions.14 According to the Court,
much like patronage dismissals, patronage hiring also burdens employee rights to freedom of
speech and association under the First Amendment.15
Prohibition on Soliciting Campaign Contributions
Federal criminal law prohibits Members of Congress, congressional candidates, and
congressional staff, among other federal employees, from knowingly soliciting federal office
campaign contributions from another such officer, employee, or person receiving compensation
for services from money derived from the U.S. Treasury.16 This prohibition is limited to
contributions made to influence federal elections and does not extend to contributions for state

8 18 U.S.C. §§ 602, 603, 606, 607.
9 Political patronage has been described as “ the right to select key personnel and to reward the party ‘faithful.’” Branti
v. Finkel, 445 U.S. 507, 529 (Powell, J., dissenting); see also Richard L. Hasen, An Enriched Econom ic Model of
Political Patronage and Cam paign Contributions: Reform ulating Supreme Court Jurisprudence, 14 CARDOZO L. REV.
1311, 1311 (1993) (quoting Martin T olchin & Susan T olchin, T O THE VICTOR … : POLITICAL PATRONAGE FROM THE
CLUBHOUSE TO THE WHITE HOUSE 55 (1971)) (defining political patronage as “ the allocation of the discretionary favors
of government in exchange for political support.”).
10 U.S. DEP’T OF JUSTICE, FEDERAL PROSECUTION OF ELECTION OFFENSES 3 (8th ed. 2017) [hereinafter DOJ Manual]
https://www.justice.gov/criminal/file/1029066/download.
11 See Elrod v. Burns, 427 U.S. 347, 372 (1976) (plurality opinion) (acknowledging a need for “ government efficiency
and effectiveness,” but concluding that political patronage dismissals are not the least restrictive way to achieve that
goal); Branti v. Finkel, 445 U.S. 507, 516 (1980) (rejecting the argument that Elrod v. Burns should be interpreted as
prohibiting only dismissals result ing from an employee’s failure to capitulate to political coercion). See also Rutan v.
Republican Party of Illinois, 497 U.S. 62, 64 (1990) (announcing that “[t]o the victor belong only those spoils that may
be constitutionally obtained.”)
12 Elrod, 427 U.S. at 355 (citing Buckley v. Valeo, 424 U.S. 1, 19 (1976))
13 See id. at 369.
14 497 U.S. 62, 74-76 (1990).
15 See id. at 77.
16 18 U.S.C. § 602(a). T he statute expressly exempts from the prohibition any activity of an employee, as defined in 5
U.S.C. § 7322(1), which generally includes employees in the executive branch of the federal government, other than
the Government Accountability Office, or a position within the competitive service that is not in an Executive agency,
but does not include a member of the uniformed services or an individual employed or holding office in the
government of the District of Columbia or any employee of the U.S. Postal Service or the Postal Regulatory
Commission, unless that activity is prohibited under provisions of the Hatch Act at 5 U.S.C. §§ 7323 or 7324. For
discussion of the Hatch Act, see CRS In Focus IF11512, The Hatch Act: A Prim er, by Whitney K. Novak.
Congressional Research Service
2

link to page 8 Political Campaign Contributions and Congress: A Legal Primer

and local elections.17 According to the legislative history, Congress intended that for a solicitation
to violate this prohibition, “it must be actual y known” by the solicitor that the person being
solicited is a federal employee, and therefore, “[m]erely mailing to a list [that] wil no doubt
contain names of federal employees is not a violation.”18 DOJ has interpreted this prohibition not
to apply to federal employees soliciting voluntary contributions from other non-subordinate
federal employees, but cautions that contributions solicited from a subordinate are not considered
voluntary.19 Although DOJ interpretation of the law does not constitute binding precedent, it
appears to inform DOJ prosecutorial decisions.20
The Supreme Court has upheld the constitutionality of the statutory predecessor to this
prohibition on soliciting contributions.21 According to the Court, Congress has the authority to
prevent its officers and employees from engaging in or being subjected “to pressure for money
for political purposes.”22 Moreover, the Court has observed that the prohibition serves to shield
public servants “against exactions through fear of personal loss.”23
Prohibition on Making Campaign Contributions
In a similar vein, federal criminal law prohibits congressional staff, among other federal
employees, from making contributions to a Member of Congress who is the staffer’s “employer
or employing authority.”24 Similar to the prohibition on soliciting contributions, the law applies
only to contributions for federal office.25
Prohibition on Intimidating to Secure Campaign Contributions
Federal criminal law also prohibits Members of Congress and congressional staff from
discharging, demoting, or promoting, or threatening to do so, another congressional employee for
making or failing to make “any contribution of money or other valuable thing for any political
purpose.”26 DOJ has interpreted this law to encompass “coerced donations of anything of value
(including services)” to candidates for federal, state, and local office.27 In the view of the
Criminal Division of DOJ, this prohibition is not intended, however, to restrict a Member of

1718 U.S.C. § 602(a)(4) (providing that it is a violation “ to knowingly solicit any contribution within the meaning of
section 301(8) of the Federal Election Campaign Act of 1971 (FECA) [52 U.S.C. § 30101(8)]”). As discussed infra
“Campaign Finance Laws” section of this report, FECA defines a contribution to include “any gift, subscription, loan,
advance, or deposit of money or anything of value” that is made “for the purpose of influencing any election for
Federal office” or a payment that is made for compensation of personal services that are rendered to a political
committee free of charge. 52 U.S.C. § 30101(8)(A)(i), (ii).
18 H.R. REP. NO. 96-422, at 25 (1970).
19 See DOJ Manual, supra note 10, at 102.
20 T he DOJ Manual states that “[i]t addresses how the Department handles all federal election offenses” and
“summarizes the Department’s policies, as well as key legal and investigative considerations, related to the
investigation and prosecution of election offenses.” Id. at 1.
21 See U.S. v. Wurzbach, 280 U.S. 396, 399 (1930).
22 Id. at 398.
23 Ex parte Curtis, 106 U.S. 371, 373-374 (1882) (“A feeling of independence under the law conduces to faithful public
service, and nothing tends more t o take away this feeling than a dread of dismissal.”)
24 18 U.S.C. § 603.
25 Id.
26 Id. § 606.
27 See DOJ Manual, supra note 10, at 104.
Congressional Research Service
3

Political Campaign Contributions and Congress: A Legal Primer

Congress from considering political factors, such as ideology, when employing staff who perform
policymaking or confidential duties.28
Prohibition on Soliciting or Receiving Campaign Contributions in
Federal Workspace
Relating to federal workspace, federal criminal law prohibits any person from soliciting or
receiving a donation of money or other thing of value in connection with a federal, state, or local
election from anyone located within a room or building in which federal employees are engaged
in official duties.29 Although the prohibition covers the legislative branch of government, it
specifical y exempts a campaign contribution received in a Member of Congress’s congressional
office so long as certain criteria are met. First, the solicitation must not direct the contributor to
mail or deliver the contribution to the congressional office, and second, within seven days of
receipt, the office must transfer the contribution to a FECA-regulated political committee.30
DOJ has interpreted this law to apply to contribution solicitations received through the mail, as
wel as in person.31 However, according to DOJ, most infringements of this prohibition, involved
computer-generated direct mail campaigns that inadvertently sent fundraising solicitations to
prohibited federal workplaces.32 DOJ has indicated that prosecution in such instances is
“unlikely” and wil general y prompt a request to remove federal government addresses from the
relevant mailing lists.33 Nonetheless, DOJ cautions that prosecutable violations of this prohibition
may arise when solicitations of campaign contributions are considered “shakedowns” of federal
employees or in cases of “systematic refusal or failure to comply with” requests to remove
addresses of federal properties from mailing lists.34
Penalties
DOJ enforces the four political patronage laws outlined above. Violators of the prohibitions on
soliciting, making, and intimidating to secure political contributions may be fined under the
federal criminal code,35 or imprisoned not more than three years, or both.36 Violators of the

28 See id. (“In the Criminal Division’s view, Section 606 was not intended to prohibit the consideration of political
factors (such as ideology) in the hiring, firing, or assignment of the small category of federal employees who perform
policymaking or confidential duties for the President or Members of Congress. In the executive branch, these senior
officials either hold jobs on Schedule C of the excepted service, which by law may be offered or terminated on the
basis of such factors, or hold direct presidential appointments and by statute serve at the President’s pleasure. Section
606 does, however, protect all federal officials, including senior policym akers, from being forced by job-related threats
or reprisals to donate to political candidates or causes.”).
29 18 U.S.C. § 607(a)(1). In the Bipartisan Campaign Reform Act of 2002 (BCRA), Congress clarified that the
prohibition is not limited to campaign funds for federal office, but also applies to the solicitation and receipt of
campaign funds for state and local elections. PUB. L. NO. 107-155, Title III, § 302, 116 Stat. 96 (2002).
30 18 U.S.C. § 607(b).
31 See DOJ Manual, supra note 10, at 105 (citing U.S. v. T hayer, 209 U.S. 39 (1908) (holding that the statutory
predecessor to 18 U.S.C. § 607 applies to a written solicitation sent by mail)).
32 See DOJ Manual, supra note 10, at 107.
33 Id.
34 Id. at 106-107.
35 18 U.S.C. § 3571.
36 Id. §§ 602(a)(4), 603(a), 606.
Congressional Research Service
4

link to page 9 Political Campaign Contributions and Congress: A Legal Primer

prohibition on soliciting or receiving campaign contributions may be fined up to $5,000,
imprisoned as long as three years, or both.37
Campaign Finance Laws38
In addition to political patronage laws discussed above, federal campaign finance law regulates
campaign contributions made to congressional candidates by establishing limits, source
restrictions, and disclosure requirements. The Federal Election Campaign Act (FECA)39 defines a
contribution to include “any gift, subscription, loan, advance, or deposit of money or anything of
value” made “for the purpose of influencing any election for Federal office” or a payment made
for compensation of personal services that are rendered to a political committee40 free of charge.41
A contribution can be distinguished from an expenditure in that a contribution involves giving
money to an entity, such as a candidate’s campaign committee, while an expenditure involves
spending money directly to advocate for the election or defeat of a candidate.42
Campaign Contribution Limits and Related Restrictions
FECA provides specific limits on how much individuals can contribute to a congressional
candidate.43 In the current 2019-2020 federal election cycle, an individual can contribute up to
$2,800, per election, to a candidate.44 Therefore, an individual can contribute up to $5,600, per
candidate, per two-year election cycle, for both the primary and general elections. These limits
are adjusted for inflation in odd-numbered years.45 Moreover, FECA prohibits cash contributions
that, in the aggregate, exceed $100.46 Table 1, below, outlines the major federal campaign
contribution limits applicable to the 2019-2020 cycle.

37 Id. § 607(a)(2)
38 For a discussion of campaign finance policy, see CRS Report R41542, The State of Campaign Finance Policy:
Recent Developm ents and Issues for Congress, by R. Sam Garrett .
39 Codified, as amended, at 52 U.S.C. §§ 30101-30145.
40 Id. § 30101(4).
41 Id. § 30101(8)(A)(i), (ii). According to regulations promulgated under FECA, individuals are permitted to volunteer
services to a campaign without it constituting a campaign contribution on the condition that the individual is not
compensated by anyone else. If the individual is compensated, however, with the exception of certain legal and
accounting services, the services generally will constitute an in-kind contribution under FECA. However, the
regulations specify that no compensation will be considered paid to any employee under the following conditions:
“(a) Paid on an hourly or salaried basis. If an employee is paid on an hourly or salaried basis and is expected to work a
particular number of hours per period, no contribution results if the employee engages in political activity during what
would otherwise be a regular work period, provided that the taken o r released time is made up or completed by the
employee within a reasonable time. (b) Paid on commission or piecework basis. No contribution results where an
employee engages in political activity during what would otherwise be normal working hours if the employee is paid
on a commission or piecework basis, or is paid only for work actually performed and the employee's time is considered
his or her own to use as he or she sees fit. (c) Vacation or earned leave time. No contribution results where the time
used by the employee to engage in political activity is bona fide, although compensable, vacation time or other earned
leave time.” 11 C.F.R. §§ 100.74, 100.54.
42 52 U.S.C. § 30101(9)(A)(i), (ii).
43 Id. § 30116(a).
44 See Fed. Election Comm’n, “Contribution Limits for 2019-20 Federal Elections,” available at
https://www.fec.gov/resources/cms-content/documents/contribution_limits_chart_2019 -2020.pdf (last visited Aug. 14,
2020).
45 52 U.S.C. § 30116(a).
46 Id. § 30123.
Congressional Research Service
5

Political Campaign Contributions and Congress: A Legal Primer

Table 1. Major Federal Contribution Limits, 2019-2020
(see table notes below for additional information)

Recipient
Multicandidate
State,
Principal
Committee (most
National Party
District, Local
Campaign
PACs, including
Committee
Party
Contributor
Committee
leadership PACs)
(DSCC; NRCC, etc.)
Committee
Individual
$2,800 per electiona
$5,000 per year
$35,500 per yeara
$10,000 per
Additional $106,500 limit
year (combined
for each special party
limit)
accounta,b
Principal
$2,000 per election
$5,000 per year
Unlimited transfers to
Unlimited
Campaign
party committees
transfers to
Committee
party
committees
Multicandidate
$5,000 per election
$5,000 per year
$15,000 per year
$5,000 per year
Committee (most
Additional $45,000 limit for
(combined limit)
PACs, including
each special party accountb
leadership PACs)c
State, District,
$5,000 per election
$5,000 per year
Unlimited transfers to
Unlimited
Local Party
(combined limit)
(combined limit)
party committees
transfers to
Committee
party
committees
National Party
$5,000 per election
$5,000 per year
Unlimited transfers to
Unlimited
Committee
party committees
transfers to
party
committees
Source: Table1 in CRS Report R41542, The State of Campaign Finance Policy: Recent Developments and Issues for
Congress, by R. Sam Garrett, adapted from FEC, “Contribution Limits for 2019-2020 Federal Elections,”
https://www.fec.gov/resources/cms-content/documents/contribution_limits_chart_2019-2020.pdf (last visited
Aug. 14, 2020).
Notes: The table assumes that leadership political action committees (PACs)47 would qualify for multicandidate
status. The original source, noted above, includes additional information and addresses non -multicandidate PACs
(which are relatively rare). The national party committee and the national party Senate committee (e.g., the
Democratic National Committee (DNC) and the Democratic Senatorial Campaign Committee (DSCC), or the
Republican National Committee (RNC) and the National Republican Senatorial Committee (NRSC)) share a
combined 2019-2020 per-candidate limit of $49,600 per six-year cycle. This limit is adjusted biennial y for
inflation.
a. These limits are adjusted biennial y for inflation.
b. National party committees may accept these contributions for separate accounts for (1) presidential
nominating conventions; (2) recounts and other legal compliance activities; and (3) party buildings. For
additional discussion, see CRS Report R43825, Increased Campaign Contribution Limits in the FY2015 Omnibus
Appropriations Law: Frequently Asked Questions, by R. Sam Garrett.
c. Multicandidate committees are those that have been registered with the FEC (or, for Senate committees, the
Secretary of the Senate) for at least six months; have received federal contributions from more than 50
people; and (except for state parties) have made contributions to at least five federal candidates. See 11
C.F.R. § 100.5(e)(3). In practice, most PACs attain this status automatical y over time.

47 FECA generally defines a “leadership PAC” as a political committee that is established or controlled by a federal
office candidate or officeholder, but is not a candidate committee or political party committee. Id. § 30104(i)(8)(B).
Congressional Research Service
6

Political Campaign Contributions and Congress: A Legal Primer

The Supreme Court has general y upheld the constitutionality of FECA’s contribution limits
against First Amendment free speech chal enges. In the landmark ruling Buckley v. Valeo, the
Court determined that contribution limits wil be upheld if the government can demonstrate that
they are a “closely drawn” means of achieving a “sufficiently important” governmental interest.48
Unlike expenditure limits, which reduce the amount of an individual’s or group’s expression, the
Court opined, contribution limits involve “little direct restraint” on the speech of a contributor.49
Although the Court acknowledged that a contribution limit restricts an aspect of a contributor’s
freedom of association, that is, his or her ability to support a candidate, the Court nonetheless
determined that a contribution limit stil permits symbolic expressions of support and does not
infringe on a contributor’s freedom to speak about candidates and issues.50 Reasonable
contribution limits, the Court announced, stil permit people to engage in independent political
expression, associate by volunteering on campaigns, and assist candidates by making limited
contributions.51 Regarding whether a contribution limit is closely drawn, the Court reasoned that
it was relevant to examine the amount of the limit.52 Limits that are too low could significantly
impede a candidate or political committee from amassing the necessary resources for effective
communication.53 The Court concluded, however, that the FECA contribution limit at issue in
Buckley would not negatively affect campaign funding.54
On the other hand, the Buckley Court determined that because they impose a substantial restraint
on speech and association, expenditure limits are subject to strict scrutiny, requiring that they be
narrowly tailored to serve a compel ing governmental interest.55 Specifical y, under the First
Amendment, the Court determined that expenditure limits restrict the amount of money a
candidate can spend on communications, thereby reducing the number and depth of issues
discussed and the size of the audience reached.56 Such restrictions, the Court determined, are not
justified by an overriding governmental interest. That is, because expenditures do not involve
money flowing directly to the benefit of a candidate’s campaign fund, the risk of quid pro quo
corruption does not exist.57 Further, the Court in Buckley rejected the government’s asserted
interest in equalizing the relative resources of candidates, and in reducing the overal costs of
campaigns.58 Based on a similar premise, the Court rejected the government’s interest in limiting
a wealthy candidate’s ability to draw upon personal wealth to finance his or her campaign, and
struck down a law limiting expenditures from personal funds, reasoning that when a candidate
self-finances, the risk of corruption is lessened because his or her dependence on outside
contributions is reduced.59

48 424 U.S. at 25.
49 Id. at 21.
50 See id. at 21, 24.
51 See id. at 28-29.
52 See id. at 21.
53 See id.
54 See id. (determining that there was no indication that the subject contribution limitations “ would have any dramatic
adverse effect on the funding of campaigns and political associations”).
55 See id. at 23.
56 See id.
57 See id.
58 See id. at 53.
59 See id.
Congressional Research Service
7

Political Campaign Contributions and Congress: A Legal Primer

In the years since, the Court has applied the doctrinal framework of Buckley to uphold what it
considers reasonable campaign contribution limits, while invalidating limits it determines are too
low to al ow a candidate to amass necessary resources for effective campaigning. For example, in
Nixon v. Shrink Missouri Government PAC, the Court upheld a state law imposing limits on
contributions made to candidates running for state office.60 While observing that contribution
limits must be closely drawn to a sufficiently important interest, the Court announced that the
amount of the limitation “need not be ‘fine tuned.’”61 In contrast, in Randall v. Sorell, in a
plurality opinion, the Court invalidated a Vermont law that provided that individuals, parties, and
political committees were limited to contributing $400 to certain state candidates, per two-year
election cycle, without providing for inflation adjustment.62 While unable to reach consensus on a
single opinion, six Justices agreed that Vermont’s contribution limits violated First Amendment
free-speech guarantees. The plurality opinion written by Justice Breyer, joined by two other
Justices, determined that the contribution limits in Randall were substantial y lower than limits
the Court had previously upheld, as wel as limits in effect in other states, and that they were not
narrowly tailored.63 The opinion also concluded that the limits substantial y restricted candidates,
particularly chal engers, from being able to raise the funds necessary to run a competitive
campaign; impeded parties from getting their candidates elected; and deterred individual citizens
from volunteering on campaigns (because the law counted certain volunteer expenses toward a
volunteer’s individual contribution limit).64
In 2019, the Supreme Court, in Thompson v. Hebdon,65 clarified that when considering whether a
contribution limit is too low to survive a First Amendment chal enge, reviewing courts should
apply the test articulated by the plurality in Randall. The Thompson Court vacated a U.S. Court of
Appeals for the Ninth Circuit (Ninth Circuit) opinion that had upheld an Alaska law limiting to
$500 per year the amount that an individual can contribute to a candidate or an outside group
other than a political party.66 In an unsigned opinion, the Court held that the Ninth Circuit erred
by not applying the “precedent” established by the plurality opinion in Randall, and remanded the
case.67 According to the Court, a contribution limit wil evidence the “danger signs” of being
unconstitutional y low if it is “substantial y lower” than limits previously upheld by the Court or
in effect in other states, and is not adjusted for inflation.68

60 528 U.S. 377 (2000).
61 Id. at 387-88 (quoting Buckley, 424 U.S. at 30, n. 3).
62 548 U.S. 230, 262 (2006).
63 See id. at 261.
64 See id. at 253, 259-60. The opinion agreed with the district court “that the Act’s contribution limits ‘ would reduce the
voice of political parties’ in Vermont to a ‘whisper.’” Id. at 259 (quoting Landell v. Sorrell, 118 F. Supp. 2d 459, 487
(D. Vt. 2000)).
65 140 S. Ct. 348 (2019) (per curiam).
66 See id. at 349-51.
67 Id. at 350-51.
68 Id. T his decision has prompted at least one commentator to argue that while the Supreme Court’s ruling in Randall
was partially based on an assumption that low contribution limits hinder competition in elections generally, and the
campaigns of challengers specifically, empirical data belies that assumption. See Ciara T orres-Spelliscy, The Suprem e
Court Is Killing Contribution Lim its Softly; A Few Years from Now They Likely Will Be Dead, HARV. L. REV. BLOG,
(Dec. 29, 2019), https://blog.harvardlawreview.org/the-supreme-court -is-killing-contribution-limits-softly-a-few-years-
from-now-they-likely-will-be-dead/.
Congressional Research Service
8

link to page 24 Political Campaign Contributions and Congress: A Legal Primer

Treatment of Loans
As mentioned above, FECA expressly defines contributions to include loans made to campaign
committees, but exempts from this definition loans that are made from banks, so long as they are
made in compliance with applicable law and “in the ordinary course of business.”69 Further, the
act specifies that a bank loan to a campaign committee must be evidenced by a written
instrument, ensuring repayment on a date certain or in accordance with an amortization schedule,
and subject to the lending institution’s “usual and customary interest rate.”70 However, the
outstanding balance of other loans made to a campaign—for example, personal loans—is
considered a campaign contribution.71 Therefore, the amount of unpaid loans, coupled with other
contributions made by an individual to a given candidate or committee, cannot exceed the
applicable contribution limit.72 A loan is considered a contribution until it is fully repaid.73
Prohibition on Campaign Contributions Made in the Name of Another:
“Straw Donor” or Conduit Ban
In one of the most frequently violated provisions of federal campaign finance law,74 FECA
prohibits contributions made by one person “in the name of another person,” and bans candidates
from knowingly accepting such contributions.75 This “straw donor” prohibition serves to prevent
an individual, who has already contributed the maximum amount to a given candidate, from
circumventing contribution limits by giving money to someone else to contribute to that same
candidate.76 Regulations promulgated under FECA further specify that a corporation is prohibited
from reimbursing employees for their campaign contributions through a bonus, expense account,
or other form of compensation.77 Moreover, as discussed below, FECA provides for specific
penalties for knowing and wil ful violations of this provision.78
Prohibition on Converting Campaign Contributions for Personal Use
FECA also prohibits a candidate from converting campaign funds for personal use.79 The act
considers a contribution as converted to personal use if it “is used to fulfil any commitment,
obligation, or expense . . . that would exist irrespective of the candidate’s” campaign or duties as
a federal officeholder.80 Examples of such expenses include home mortgage, rent, or utility
payments; clothing purchases; non-campaign-related car expenses; country club memberships;

69 52 U.S.C. § 30101(8)(B)(vii).
70 Id. § 30101(8)(B)(vii)(II), (III).
71 11 C.F.R. § 100.52(b).
72 Id. § 100.52(b)(2).
73 Id.
74 See DOJ Manual, supra note 10, at 141.
75 52 U.S.C. § 30122.
76 See United States v. O’Donnell, 608 F.3d 546, 549 (9th Cir. 2010), cert. denied, 563 U.S. 929 (2011). (observing that
straw donor contributions “ facilitate attempts by an individual (or campaign) to thwart disclosure requirements and
contribution limits”).
77 11 C.F.R. §114.5(b)(1).
78 See infra “Penalties” section of this report.
79 52 U.S.C. § 30114(b).
80 Id. § 30114(b)(2).
Congressional Research Service
9

Political Campaign Contributions and Congress: A Legal Primer

vacations; household food; tuition payments; admission to sporting events, concerts, theater
performances, or other entertainment not associated with a campaign; and health club fees.81
In a 2018 advisory opinion, the FEC determined that a candidate may use campaign funds to pay
for child care expenses if they are incurred as “a direct result of . . . campaign activity.”82 The
FEC reasoned that paying for these expenses would comply with FECA because “they would not
exist irrespective” of the campaign.83
Coordinated Communications Treated As Campaign Contributions
If an outside group makes a political advertisement or otherwise issues a communication in
coordination with a candidate’s campaign or political party, it may be treated as an in-kind
contribution under FECA.84 Like other contributions, coordinated communications are subject to
FECA regulation, including limits and source restrictions, which are discussed in the next section
of the report.85 Specifical y, FECA provides that a communication wil be considered
“coordinated” if it is made “in cooperation, consultation or concert, with, or at the request or
suggestion of” the candidate or a party.86 By contrast, FECA defines an independent expenditure
to mean an expenditure by an individual or group who expressly advocates the election or defeat
of a clearly identified candidate that “is not made in concert or cooperation with or at the request
or suggestion of” the candidate or a party.87
The regulatory line between coordinated communications and independent expenditures is based
on Supreme Court precedent. In various rulings, the Court has determined that the First
Amendment does not al ow any limits on expenditures that are made independently of a candidate
or party because the money is deployed to advance a political point of view separate from a
candidate’s viewpoint. In other words, the Court has explained, without coordination or
“prearrangement” with a candidate, not only is the value of an expenditure decreased, but so is
“the danger that expenditures wil be given as a quid pro quo for improper commitments from the
candidate.”88 Accordingly, the Court has reasoned that independent expenditures do not raise
heightened governmental interests in regulation.89 As the Court has emphasized, the
“constitutional y significant fact” of an independent expenditure is the absence of coordination
between the candidate and the source of the expenditure,90 and the independence of such spending
is easily distinguishable when it is made “without any candidate's approval (or wink or nod).”91

81 52 U.S.C. § 30114(b)(2); 11 C.F.R. §113.1(g).
82 Fed. Election Comm’n Advisory Opinion (AO) 2018-06.
83 Id. at 3.
84 11 C.F.R. §109.21(b). T his portion of the report contains a summary discussion of what constitutes coordination
under federal campaign finance law. For further information see FECA regulations and the FEC webpage, Coordinated
Com m unications, available at https://www.fec.gov/help-candidates-and-committees/candidate-taking-
receipts/coordinated-communications/ (last visited Aug. 17, 2020). See also CRS Report RS22644, Coordinated Party
Expenditures in Federal Elections: An Overview, by R. Sam Garrett and L. Paige Whitaker.
85 52 U.S.C. § 30116(a)(7)(B)(i),(ii).
86 Id. § 30116(a)(7)(B)(i),(ii).
87 Id. § 30101(17).
88 Citizens United, 558 U.S. 310, 357 (2010) (citing Buckley, 424 U.S. at 47).
89 See Buckley, 424 U.S. 1, 47 (1976); Fed. Election Comm’n v. Nat’l Conservative Political Action Comm. (NCPAC) ,
470 U.S. 480 (1985)); Colorado Republican Fed. Campaign Comm. v. Fed. Election Comm’n (Colorado I) , 518 U.S.
604, 617 (1996).
90 See Colorado I, 518 U.S. at 617.
91 Fed. Election Comm’n v. Colorado Republican Fed. Campaign Comm. (Colorado II), 533 U.S. 431, 442 (2001).
Congressional Research Service
10

link to page 18 Political Campaign Contributions and Congress: A Legal Primer

Hence, individuals, political parties, political action committees (PACs), super PACs,92 and other
organizations can engage in unlimited independent expenditures. Furthermore, as a result of the
Court’s ruling in Citizens United v. Federal Election Commission,93 corporations and labor unions
have a constitutional y protected right to engage in unlimited independent expenditures directly
from their revenue funds or general treasuries and are not required to establish a PAC in order to
conduct such spending.94
As summarized below, regulations promulgated under FECA set forth specific criteria
establishing when a communication by an organization wil be considered coordinated with a
candidate or a party and thereby treated as a campaign contribution.95 Specifical y, the regulations
set forth a three-pronged test whereby if three standards—payment, content, and conduct—are
met, a communication wil be considered coordinated.
Payment. In general, the regulations provide that the “payment” prong is met if the
communication “[i]s paid for, in whole or in part, by a person other than that candidate,
authorized [candidate] committee, or political party.”96
Content. The “content” prong addresses the subject and timing of a communication. The content
standard does not require that a communication contain express advocacy (i.e., expressly
advocating the election or defeat of a clearly identified candidate, using terms such as “vote for,”
“elect,” or “vote against”).97 General y, the regulations provide that the content standard is met if
a communication is
 an electioneering communication, defined to include a broadcast, cable, or
satel ite communication that refers to a federal candidate, made within 60 days of
a general election or 30 days of a primary;98
 a public communication that distributes or republishes, at least in part, candidate
campaign materials, with certain exceptions;
 a public communication “that expressly advocates . . . election or defeat of a
clearly identified candidate or its “functional equivalent”; or
 a public communication that, among other things, refers to a candidate or party
and, for House or Senate elections, is disseminated within 90 days before a
primary or general election or, for presidential and vice presidential elections, is
disseminated within 120 days before a primary or nominating convention or
caucus.99
Conduct. The “conduct” prong addresses interactions between the person paying for the
communication and the relevant candidate or party. General y, the regulations specify that the
conduct standard is met if

92 See infra “Limits on Campaign Contributions to Super PACs” section of this report .
93 558 U.S. 310 (2010).
94 See id. at 337-39. (“ A PAC is a separate association from the corporation. So the PAC exemption from § 441b’s
expenditure ban, § 441b(b)(2), does not allow corporations to speak. Even if a PAC could somehow allow a
corporation to speak--and it does not --the option to form PACs does not alleviate the First Amendment problems with §
441b.”). Id. at 337.
95 11 C.F.R § 109.21.
96 Id. § 109.21(a).
97 Id. § 109.21(c).
98 52 U.S.C. § 30104(f)(3)); 11 C.F.R. §100.29.
99 11 C.F.R §§ 109.21(c), 109.23.
Congressional Research Service
11

Political Campaign Contributions and Congress: A Legal Primer

 the communication is created at the “request or suggestion of” a candidate or
party, or at the suggestion of the funder of the communication and the candidate
or party assents to the suggestion;
 the candidate or party is “material y involved” in decisions regarding the
communication;
 the communication is created after “substantial discussions” between the funder
of the communication and the candidate or party;
 the funder of the communication employs a “common vendor,” who meets
certain criteria, (including having developed a media strategy for the candidate or
a party during the prior 120 days), to create the communication; or
 a person who has been an employee or independent contractor of a candidate or
party during the previous 120 days uses or conveys certain information to the
funder of the communication.100
Exceptions or “Safe Harbors.” FECA regulations also set forth several “safe harbors”
exempting communications from being deemed coordinated. A sampling of these safe harbors are
summarized below.
 Endorsements and Solicitations. A public communication in which a federal
candidate endorses or solicits funds for another federal or nonfederal candidate is
not considered coordinated, unless it “promotes, supports, attacks, or opposes”
the endorsing candidate or another candidate running for the same office.101
 Firewalls. The “conduct” standards are not met if the commercial vendor, former
employee, or political committee enter into and comply with a firewal policy.
The policy must meet certain requirements, including a prohibition on the flow of
information between individuals providing services for the funder of the
communication and individuals providing services to the candidate or the
candidate’s opponent or a party. The firewal policy must be in writing and
distributed to al relevant employees, consultants, and clients.102
 Publicly Available Information. If information material to the creation of a
communication was obtained from a publicly available source, the other
“conduct” standards are not met, unless the communication was made at the
“request or suggestion” of a candidate or party, or at the suggestion of the funder
of the communication and the candidate or party assents to the suggestion.103
 Legislative Inquiries. A candidate’s or party’s response to an inquiry about its
position on a legislative or policy issue does not meet the “conduct” standard,
unless such communication involves the campaign’s plans, projects, activities, or
needs.104

100 Id. § 109.21(d).
101 Id. § 109.21 (g).
102 Id. § 109.21(h).
103 Id. § 109.21(d).
104 Id. § 109.21(f).
Congressional Research Service
12

link to page 9 link to page 16 link to page 17 link to page 17 link to page 18 link to page 18 Political Campaign Contributions and Congress: A Legal Primer

Campaign Contribution Limits Held Unconstitutional
Through a series of cases, the Supreme Court has invalidated several provisions of FECA as
unconstitutional under the First Amendment.105 As discussed below, these FECA provisions
established aggregate contribution limits, limits on contributions to candidates whose opponents
significantly self-finance, and limits on contributions by minors. Furthermore, in a ruling that
provided the legal underpinning for the establishment of super PACs, an appel ate court ruled that
limits on contributions to groups that make only independent expenditures are unconstitutional.106
Should Congress decide to enact legislation that further regulates campaign contributions, these
rulings provide guidance as to the constitutional bounds reviewing courts may apply to such
limits.
Aggregate Limits on Campaign Contributions
In contrast to the base contribution limits depicted in Table 1 above, until the Supreme Court’s
2014 ruling in McCutcheon v. Federal Election Commission,107 FECA also provided for limits on
the amount of money a donor could contribute in total to al candidates, parties, and political
committees.108 These limits are known as aggregate contribution limits. In McCutcheon, the
Supreme Court held that aggregate contribution limits are unconstitutional under the First
Amendment.109 Characterizing them as an “outright ban” on further contributions once the
aggregate amount has been reached, the Court determined that they violate the First Amendment
by infringing on political expression and association rights, without furthering the governmental
interest of preventing quid pro quo corruption or its appearance.110
Notably, it was in McCutcheon that the Court announced that the prevention of “‘quid pro quo’
corruption or its appearance” is the only legitimate governmental interest for restricting campaign
contributions.111 In reviewing prior decisions, the Court noted that it has consistently rejected
campaign finance regulation based on other governmental objectives, such as goals to “level the
playing field,” “level electoral opportunities,” or “equaliz[e] the financial resources of
candidates.”112 Furthermore, while acknowledging that the Court’s campaign finance
jurisprudence has not always discussed the concept of corruption clearly and consistently, and
that the line between quid pro quo corruption and general influence may sometimes seem vague,
the McCutcheon Court held that efforts to ameliorate “influence over or access to” elected
officials or political parties do not constitute a permissible governmental interest.113 Although

105 See infra “Aggregate Limits on Campaign Contributions”; “Limits on Campaign Contributions to Candidates
Whose Opponents Self-Finance”; and “ Limits on Campaign Contributions Made by Minors” sections of this report.
106 See infra “Limits on Campaign Contributions to Super PACs” section of this report.
107 572 U.S. 185 (2014). For discussion of the policy impact of McCutcheon, see CRS Report R43334, Campaign
Contribution Lim its: Selected Questions About McCutcheon and Policy Issues for Congress, by R. Sam Garrett .
108 52 U.S.C. § 30116(a)(3).
109 See McCutcheon, 572 U.S. at 227 (“ For the reasons set forth, we conclude that the aggregate limits on contributions
do not further the only governmental interest this Court accepted as legitimate in Buckley. T hey instead intrude without
justification on a citizen’s ability to exercise the most fundamental First Amendment activities.”) (citations and internal
quotation marks omitted).
110 Id. at 204.
111 Id. at 192 (citing Citizens United v. Fed. Election Comm’n, 558 U.S. at 359). T he Court explained that “[t]he
hallmark of corruption is the financial quid pro quo: dollars for political favors.” Id. (quoting Fed. Election Comm’n v.
Nat’l Conservative Political Action Comm., 470 U.S. at 480, 497 (1985)).
112 Id. at 207.
113 Id. at 208.
Congressional Research Service
13

Political Campaign Contributions and Congress: A Legal Primer

McCutcheon did not expressly adopt a stricter standard of review, its announcement that the
prevention of quid pro quo corruption or its appearance is the only constitutional y permissible
justification for imposing campaign contribution limits may constrain policy options in this area.
Limits on Campaign Contributions to Candidates Whose Opponents
Self-Finance
In Davis v. Federal Election Commission,114 the Supreme Court held that a statute establishing a
series of staggered increases in contribution limits for candidates whose opponents significantly
self-finance their campaigns violates the First Amendment because the penalty imposed on
expenditures of personal funds is not justified by the compel ing governmental interest of
lessening corruption or its appearance.115 Enacted as part of Bipartisan Campaign Reform Act of
2002 (BCRA), the invalidated provision of law is known as the “Mil ionaire’s Amendment.”116
The Mil ionaire’s Amendment provided a complex statutory formula (using limits that were in
effect at the time the Court considered Davis) requiring that if a candidate for the House of
Representatives spent more than $350,000 of personal funds during an election cycle, the
individual contribution limits applicable to her opponent would increase up to three-fold (from
$2,300 to $6,900, per election, based on limits in-place at the time). Similarly, for Senate
candidates, a separate provision general y raised individual contribution limits for a candidate
whose opponent exceeded a designated threshold level of personal campaign funding based on
the number of eligible voters in the state.117 For both House and Senate candidates, the increased
contribution limits were eliminated when parity in spending was reached between the two
candidates.
While acknowledging the long history of jurisprudence upholding the constitutionality of
individual contribution limits, the Court emphasized its definitive rejection of any limits on a
candidate’s expenditure of personal funds to finance campaign speech.118 The Court reasoned that
limits on a candidate’s right to advocate for his or her own election are not justified by the
compel ing governmental interest of preventing corruption—instead, the use of personal funds
actual y lessens a candidate’s reliance on outside contributions and thereby counteracts coercive
pressures and risks of abuse that contribution limits seek to avoid.119 While conceding that the
Mil ionaire’s Amendment did not directly impose a limit on a candidate’s expenditure of personal
funds, the Court concluded that it impermissibly required a candidate to make a choice between
the right of free political expression and being subjected to discriminatory contribution limits, and
created a fundraising advantage for his or her opponents.120 In contrast, if the law had simply
increased the contribution limits for al candidates—both the self-financed candidate as wel as
the opponent—the Court opined that it would have passed constitutional muster.121 Intrinsical y,

114 554 U.S. 724 (2008).
115 See id. at 740, 744.
116 PUB. L. NO. 107-155, § 319(a), 116 Stat. 81 (2002) (codified at 52 U.S.C. § 30117(a)) (establishing increased
contribution limits for House candidates whose opponents signif icantly self-finance their campaigns).
117 Id. at § 304 (codified at 52 U.S.C. § 30116(i)) (establishing increased contribution limits for Senate candidates
whose opponents significantly self-finance their campaigns).
118 Davis, 554 U.S. at 738.
119 See id. In response to the FEC’s argument that the statute’s “asymmetrical limits” are justified because they level the
playing field for candidates of differing personal wealth, the Court explained that its campaign finance precedent offers
no support for this rationale serving as a compelling governmental interest. Id. at 741.
120 See id.
121 See id. at 737.
Congressional Research Service
14

Political Campaign Contributions and Congress: A Legal Primer

candidates have different strengths based on factors such as personal wealth, fundraising ability,
celebrity status, or a wel -known family name, and by attempting to level electoral opportunities,
the Court reasoned, Congress is deciding which candidate strengths should be al owed to affect
an election.122 And using election law to influence voters’ choices, the Court warned, is a
“dangerous business.”123
Limits on Campaign Contributions Made by Minors
In McConnell v. Federal Election Commission,124 the Court unanimously invalidated as
unconstitutional under the First Amendment a BCRA provision prohibiting individuals age 17 or
younger from making contributions to candidates and political parties.125 Reasoning that minors
enjoy First Amendment protection and that contribution limits impinge on such rights, the Court
determined that the prohibition was not closely drawn to serve a sufficiently important
government interest.126
In response to the government’s assertion that such a prohibition protects against corruption by
conduit—that is, parents donating through their minor children to circumvent contribution
limits—the Court saw little evidence to support the existence of this type of evasion.127
Furthermore, the Court postulated that such circumvention of contribution limits may be deterred
by the FECA provision prohibiting contributions in the name of another person, discussed above,
and the knowing acceptance of contributions made in the name of another person.128 Even
assuming that a sufficiently important interest could be provided in support of the prohibition, the
Court determined that the prohibition was over inclusive.129 While observing that various states
have adopted more tailored approaches to address this issue—for example, by counting
contributions by minors toward the total permitted for a parent or family unit, imposing a lower
cap on contributions by minors, and prohibiting contributions by very young children—the Court
expressly declined to decide whether any such alternatives would pass muster.130
Limits on Campaign Contributions to Super PACs
Providing the legal underpinning for the creation of super PACs, the U.S. Court of Appeals for the
District of Columbia (D.C. Circuit) in 2010 held that limits on contributions to groups making
only independent expenditures are unconstitutional.131 Relying on the Citizens United132 Court’s
holding that independent expenditures do not give rise to corruption, the D.C. Circuit, in

122 See id.
123 Id.
124 540 U.S. 93 (2003).
125 See id. at 232 (invalidating PUB. L. NO. 107-155, § 318, (codified at 52 U.S.C. § 30126)).
126 See id. at 231-32 (citing T inker v. Des Moines Indep. Cmty. Sch. Dist., 393 U.S. 503, 511-513 (1969); Buckley, 424
U.S. at 20-22).
127 See id.
128 See id.
129 See id. at 232.
130 See id.
131 See SpeechNow.org v. Fed. Election Comm’n, 599 F.3d 686 (D.C. Cir. 2010), cert. denied, Keating v. Fed.
Election Comm’n, 562 U.S. 1003 (2010).
132 See Citizens United, 558 U.S. at 310 (2010) (“[t]he absence of prearrangement and coordination of an expenditure
with the candidate or his agent . . . alleviates the danger that expenditures will be given as a quid pro quo for improper
commitments from the candidate.” Citizens United, 558 U.S. at 345 (quoting Buckley, 424 U.S. at 47).
Congressional Research Service
15

link to page 20 link to page 20 link to page 20 link to page 22 link to page 22 Political Campaign Contributions and Congress: A Legal Primer

SpeechNow.org v. Federal Election Commission,133 concluded that campaign contributions to
groups making only independent expenditures similarly do not give rise to corruption.134 In
Citizens United, the Court relied, in part, on its determination in Buckley that the “absence of
prearrangement and coordination of an expenditure” mitigates the risk that expenditures lead to
quid pro quo corruption, and therefore, they cannot be limited.135 Accordingly, the D.C. Circuit
reasoned that the government does not have an anticorruption interest in limiting contributions to
groups that make only independent expenditures, and concluded that FECA contribution limits
are unconstitutional as applied to such groups.136 These groups have come to be known as super
PACs or Independent Expenditure-only Committees.137
Since SpeechNow was decided, the FEC has issued advisory opinions providing guidance about
the establishment and administration of super PACs. For example, the FEC concluded that a
corporation that is exempt from tax under Section 501(c)(4) of the Internal Revenue Code may
establish and administer a political committee that makes only independent expenditures, and
may accept unlimited contributions from individuals.138 The FEC confirmed that such committees
may also accept unlimited contributions from corporations, labor unions, and politic al
committees, in addition to individuals.139 The FEC also determined, however, that when
fundraising for super PACs, federal candidates, officeholders, and party officials are subject to
FECA fundraising restrictions.140 That is, in contrast to others, federal candidates, officeholders,
and party officials can solicit a maximum of $5,000 in contributions from individuals and federal
PACs.
Campaign Contribution Source Restrictions
Referred to as source restrictions, federal campaign finance law contains several bans on who
may make contributions to congressional candidates. As discussed below, FECA prohibits
contributions by corporations and labor unions from their general treasuries; federal government
contractors; and foreign nationals.141

133 599 F.3d 686 (D.C. Cir. 2010), cert. denied, Keating v. Fed. Election Comm’n, 562 U.S. 1003 (2010).
134 See id. at 694-95.
135 Citizens United, 558 U.S. at 357. (“Unlike contributions, such independent expenditures may well provide little
assistance to the candidate’s campaign and indeed may prove counterproductive. The absence of prearrangement and
coordination of an expenditure with the candidate or his agent not only undermines the value of the expenditure to the
candidat e, but also alleviates the danger that expenditures will be given as a quid pro quo for improper commitments
from the candidate.”) (citing Buckley, 424 U.S. at 47).
136 See SpeechNow.org., 599 F. 3d at 694-96. See also, Carey v. Fed. Election Comm’n, 791 F. Supp. 2d 121 (D.D.C.
2011) (enjoining the FEC from enforcing contribution limits against a nonconnected PAC—i.e., a PAC unaffiliated
with a corporation or union—for its independent expenditures, as long as the PAC maintained a bank account for its
unlimited contributions separate from its account subject to limits; proportionally paid related administrative costs; and
complied with the applicable monetary limits of hard money contributions).
137 For further discussion, see CRS Report R42042, Super PACs in Federal Elections: Overview and Issues for
Congress, by R. Sam Garrett .
138 Fed. Election Comm’n AO 2010-09.
139 Fed. Election Comm’n AO 2010-11.
140 Fed. Election Comm’n AO 2011-12.
141 See infra “Prohibition on Corporate and Labor Union Campaign Contributions: PAC Required”; “Prohibition on
Federal Contractor Campaign Contributions: “ Pay-to-Play” Ban”; and “ Prohibition on Foreign National Campaign
Contributions” sections of this report.
Congressional Research Service
16

Political Campaign Contributions and Congress: A Legal Primer

Prohibition on Corporate and Labor Union Campaign Contributions:
PAC Required
FECA prohibits contributions by corporations and labor unions from their own funds or “general
treasuries.”142 Candidates, however, may accept contributions from separate segregated funds or
political action committees (PACs) that are established and administered by such entities.143
Although in Citizens United, the Supreme Court invalidated the federal ban on corporate treasury
funding of independent expenditures, it did not affect the ban on corporate contributions to
candidates and parties.144
Providing the most recent precedent on this restriction, in Federal Election Commission v.
Beaumont, the Court in 2003 upheld the constitutionality of the prohibition on corporations
making direct campaign contributions from their general treasuries in connection with federal
elections.145 As a threshold matter, the Court observed that in prior campaign finance cases, it has
determined that limits on contributions are more clearly justified under the First Amendment than
limits on expenditures.146 The Court also noted that large, unlimited contributions can threaten
“political integrity,” necessitating restrictions in order to counter corruption or its appearance.147
Regarding corporations specifical y, the Court determined that the corporate structure requires
careful regulation to counter the “misuse of corporate advantages.”148 Further, the Court
cautioned that without the corporate contribution ban, corporate employees and shareholders
could be “induce[d] to circumvent” their individual contribution limits by funneling money
through the corporation.149 Accordingly, the Beaumont Court reaffirmed the constitutionality of
the prohibition on corporations making direct treasury contributions in connection with federal
elections.150
Prohibition on Federal Contractor Campaign Contributions: “Pay-to-Play” Ban
Another type of source restriction—known as a “pay-to-play” prohibition—bans federal office
candidates from accepting or soliciting contributions from federal government contractors.151
Pay-to-play laws general y serve to restrict officials from conditioning government contracts or
benefits on political support in the form of campaign contributions to the controlling political
party or public officials. This FECA prohibition applies at any time between the earlier of the start

142 52 U.S.C. § 30118(a).
143 Id. § 30118(b)(2)(C). FECA prohibits such PACs from soliciting contributions beyond a restricted class set forth in
the statute, including, for corporate PACs, their stockholders and families and executive or administrative personnel
and their families; and for labor union PACs, their members and families. Id. § 30118(b)(4)(A), (B).
144 558 U.S. 310 (2010). For further discussion of Citizens United, see CRS Report R45320, Campaign Finance Law:
An Analysis of Key Issues, Recent Developm ents, and Constitutional Considerations for Legislation , by L. Paige
Whitaker, at 19-21.
145 See Fed. Election Comm’n v. Beaumont, 539 U.S. 146, 163 (2003).
146 See id. at 155-56 (“ As we said in Colorado Republican, ‘limits on contributions are more clearly justified by a link
to political corruption than limits on other kinds of . . . political spending are.’”) (quoting Colorado II, 533 U.S. at 440-
41)).
147 Id. at 154-55.
148 Id. at 155.
149 Id. (quoting Colorado II, 533 U.S. at 457).
150 See id. at 163 (determining that “the regulatory burdens on PACs, including restrictions on their ability to solicit
funds, [do not] render[] a PAC unconstitutional as an advocacy corporation’s sole avenue for making political
contributions.”)
151 52 U.S.C. § 30119(a).
Congressional Research Service
17

Political Campaign Contributions and Congress: A Legal Primer

of contract negotiations or when the requests for proposals are sent out, and the termination of
negotiations or completion of contract152 performance, whichever is later.153 FECA regulations
further specify that the ban on contractor contributions applies to the assets of a partnership that is
a federal contractor, but permits individual partners to make contributions from personal assets.154
The ban also applies to the business, personal, and other assets under the control of individuals
and sole proprietors who are federal contractors, although the spouses and employees of these
contractors may make contributions from their personal funds.155 As with corporate direct or
“treasury fund” contributions, FECA provides an exception to the ban on government contractor
contributions that permits candidates to accept contributions from PACs that are established and
administered by corporations or labor unions contracting with the government.156
In 2015, a unanimous en banc U.S. Court of Appeals for the D.C. Circuit (D.C. Circuit) upheld
the ban on individual federal government contractors making contributions to candidates, parties,
and traditional PACs.157 The court’s ruling did not address the law as applied to federal
government contractors that are corporations or other entities, that make independent
expenditures, or that make contributions to super PACs.158 The 11-judge court held that the law
comported with both the First Amendment and the equal protection component of the Fifth
Amendment.159 Applying the standard of review for contribution limits articulated by the
Supreme Court in Buckley, the D.C. Circuit held that the federal ban is a “closely drawn” means
of serving the “sufficiently important” government interest of guarding against quid pro quo
corruption and its appearance, and protecting merit-based administration of federal contracts.160
Further, the court held that the ban is closely drawn to the government’s interests because it does
not restrict contractors from engaging in other types of political engagement, including
fundraising or campaigning.161 The number of convictions for pay-to-play infractions, dating back
to when the ban was first enacted in 1940,162 justifies its continued existence, according to the

152 T he term contract includes “[a] sole source, negotiated, or advertised procurement.” 11 C.F.R. §115.1(c)(1).
153 11 C.F.R. § 115.1(b).
154 Id. § 115.4.
155 Id. § 115.5.
156 52 U.S.C. § 30119(b).
157 See Wagner v. Fed. Election Comm’n, 793 F.3d 1 (D.C. Cir. 2015), cert. denied sub nom. Miller v. Fed. Election
Comm’n, 136 S. Ct. 895 (2016).
158 See id. at 3-4.
159 See id. at 32-33.
160 Id. at 21-26.
161 See id. at 25.
162 Congress originally adopted the prohibition in 1940 amendments to the Hatch Act, PUB. L. NO. 76-753, § 5(a), 54
Stat. 772 (1940). Federal procurement contract laws and regulations generally stress competitive selection of vendors
and attempt to protect the federal procurement and contracting process from political or partisan influences. For
example, when using “ simplified acquisition procedures,” contract officers are instructed to “ obtain supplies and
services from the source whose offer is the most advantageous to the Government,” 48 C.F.R. § 13.104; when using
sealed bidding, the contract is t o be made with a “ responsible bidder whose bid . . . will be most advantageous to the
Government, considering only price and the price-related factors,” Id.§ 14.408-1(a)); and when using contracting by
negotiation “cost or price” plays a “dominant role” in source selection, but other “tradeoff” factors, such as “the risk of
unsuccessful contract performance,” may properly be weighed to determine “the best interest of the Government” in a
contract, Id. §§ 15.101, 15.101-1, 15.101-2, 15.304. Contracts may not be awarded on the basis of personal or political
favoritism, and all potential contractors should be treated “with complete impartiality and with preferential treatment
for none,” Id. §§ 1.102-2(c)(3), 3.101-1. General ethical standards in the executive branch similarly note that an
executive official is to “act impartially and not give preferential treatment to any private organization or individual.”
5 C.F.R. § 2635.101(b)(8).
Congressional Research Service
18

link to page 13 Political Campaign Contributions and Congress: A Legal Primer

D.C. Circuit, because the risk of quid pro quo corruption and its appearance has not dissipated.
According to the D.C. Circuit, this suggests that if the ban were no longer in effect, “more money
in exchange for contracts would flow through the same channels already on display.”163 In 2016,
the Supreme Court declined to hear an appeal of the ruling.164
Prohibition on Foreign National Campaign Contributions
FECA general y prohibits foreign nationals from donating or spending money in connection with
any federal, state, or local election.165 For the purposes of this prohibition, a foreign national is
defined to include a foreign government, a foreign political party, and a foreign citizen, excepting
those holding dual U.S. citizenship and those admitted as lawful permanent residents of the
United States (i.e., “green card” holders).166 Specifical y, the law prohibits foreign nationals from
“directly or indirectly” making a contribution or donation of money “or other thing of value” in
connection with any U.S. election, or making a promise to do so, either expressly or implied. The
law also prohibitions foreign nationals from making a contribution or donation to a political
party.167 Furthermore, as with other coordinated expenditures, this ban on contributions includes
any communication that a foreign national makes in coordination with a candidate’s campaign or
political party, which would be treated as an in-kind contribution.168 In addition, FECA expressly
prohibits a candidate from soliciting, accepting, or receiving contributions from foreign
nationals.169
FECA regulations further specify that foreign nationals are prohibited from directing or
participating in the decision making process of entities involved in U.S. elections, including
decisions regarding the making of contributions, donations, expenditures, or disbursements in
connection with any U.S. election or decisions concerning the administration of a political
committee.170 In a series of advisory opinions, the FEC has provided specific guidance for
compliance with the restrictions on foreign nationals. For example, the FEC has determined that a
U.S. corporation that is a subsidiary of a foreign corporation may establish a PAC that makes
contributions to federal candidates as long as the foreign parent does not finance any
contributions either directly or through a subsidiary, and no foreign national participates in PAC
operations and decision making, including regarding campaign contributions.171
In 2012, the Supreme Court summarily affirmed a three-judge federal district court panel ruling
that upheld the constitutionality of the prohibition on foreign nationals making campaign
contributions and independent expenditures.172 In Bluman v. Federal Election Commission, a

163 See Wagner, 793 F.3d at 18. (“ More recent evidence confirms that human nature has not changed since corrupt quid
pro quos and other attacks on merit -based administration first spurred the development of the present legislative
scheme. Of course, we would not expect to find—and we cannot demand—continuing evidence of large-scale quid pro
quo corruption or coercion involving federal contractor contributions because such contributions have been banned
since 1940.”). Id. at 14.
164 See Miller v. Fed. Election Comm’n, 136 S. Ct. 895 (2016).
165 52 U.S.C. § 30121(a).
166 Id. § 30121(b)(2).
167 Id. § 30121(a)(2).
168 See supra “Coordinated Communications T reated As Campaign Contributions” section of this report.
169 52 U.S.C. § 30121(a)(1)(C).
170 Id. § 110.20(i).
171 See Fed. Election Comm’n AOs 2009-14; 2006-15; 2000-17; 1995-15; 1992-16; 1990-08; and 1985-03.
172 See Bluman v. Fed. Election Comm’n, 800 F. Supp. 2d 281 (D.D.C. 2011), summ. aff’d, 565 U.S. 1104 (2012).
Congressional Research Service
19

Political Campaign Contributions and Congress: A Legal Primer

federal district court held that for the purposes of First Amendment analysis, the United States has
a compel ing interest in limiting foreign citizen participation in American democratic self-
government, thereby preventing foreign influence over the U.S. political process.173 A key
element of a national political community, the court observed, is that “foreign citizens do not
have a constitutional right to participate in, and thus may be excluded from, activities of
democratic self-government.”174 The district court in Bluman interpreted the ban on independent
expenditures to apply only to foreign nationals engaging in express advocacy and not issue
advocacy.175 In other words, under the court’s interpretation, foreign nationals remain free to
engage in “speaking out about issues or spending money to advocate their views about issues.”176
As to the parameters of express advocacy, the district court defined the term as an expenditure for
“express campaign speech” or its “functional equivalent,” meaning that it “is susceptible of no
reasonable interpretation other than as an appeal to vote for or against a specific candidate.”177
Campaign Contribution Disclosure Requirements
Under FECA, candidate campaign and other political committees must register with the FEC178
and comply with disclosure requirements.179 Such requirements include filing periodic reports
disclosing the total amount of al contributions received, and the name, address, occupation, and
employer of any person who contributes more than $200 during a calendar year.180
The Supreme Court has general y upheld the constitutionality of disclosure requirements as
substantial y related to the governmental interest of safeguarding the integrity of the electoral
process by promoting transparency and accountability.181 In Buckley, the Court identified three
governmental interests justifying FECA disclosure requirements.182 First, the Court determined,
disclosure serves an informational interest by providing the electorate with information as to the
source of campaign money, how it is spent, and “the interests to which a candidate is most likely
to be responsive.”183 Second, the Court stated that disclosure serves to deter corruption and its
appearance by uncovering large contributions and expenditures “to the light of publicity,”
observing that voters with information regarding a candidate’s highest donors are better able to
detect “post-election special favors” by an officeholder in exchange for the contributions.184

173 Id. at 288. T he court in Bluman did not ultimately decide which type of scrutiny to apply because the statute in
dispute involves both the First Amendment and national security, as well as limits on both contributions and
expenditures. T herefore, the court assumed for the sake of argument that it should apply a “ strict scrutiny” analysis
(which requires that a statute be narrowly tailored to serve a compelling governmental interest), and found that the
prohibition at issue passed muster even under that level of scrutiny. Id. at 285.
174 Id.
175 See id. at 290.
176 Id. at 290.
177 Id. at 284-85 (citing Fed. Election Comm’n v. Wisconsin Right to Life, Inc., 551 U.S. 449, 456, 469-70 (2007)).
178 52 U.S.C. § 30103.
179 Id. § 30104.
180 Id. §§ 30104(b)(3), 30101(13).
181 See, e.g., Buckley, 424 U.S. at 68-84; Citizens United, 558 U.S. at 366-371; Doe v. Reed, 561 U.S. 186 (2010).
182 See Buckley, 424 U.S. at 66-68.
183 Id. at 66-67.
184 Id. at 67.
Congressional Research Service
20

Political Campaign Contributions and Congress: A Legal Primer

Third, the Court identified disclosure requirements as an essential method of detecting violations
to refer to law enforcement.185
Expanding on its holding in Buckley, the Court in Citizens United upheld FECA’s disclosure
requirements for electioneering communications as applied to a political movie and broadcast
advertisements promoting the movie.186 Citing Buckley, the Court determined that while they may
burden the ability to speak, disclosure requirements “impose no ceiling on campaign-related
activities” and “do not prevent anyone from speaking.”187 Accordingly, the Court evaluated the
requirements under a standard of “exacting scrutiny,” a less-rigorous standard than the “strict
scrutiny” standard the Court has used to evaluate restrictions on campaign spending.188 Exacting
scrutiny requires a “substantial relation” between the disclosure requirement and a “sufficiently
important” government interest.189 Holding that the “informational interest alone is sufficient to
justify” the disclosure requirements at issue in the case, the Court did not evaluate the
anticorruption and law enforcement interests that it had identified in Buckley.190 In response to the
argument that disclosure requirements could deter donations to an organization because donors
may fear retaliation once their identity becomes known, the Court stated that such requirements
would be unconstitutional as applied to an organization where there was a reasonable probability
that its donors would be subject to threats, harassment, or reprisals.191
Penalties
General y, federal campaign finance law may penalize both the contributor for making an
unlawful contribution as wel as the federal office candidate for receiving an improper
contribution, and provides for both civil and criminal penalties.192 For civil penalties, violators
may be subject to fines that are based on the value of the il egal contribution.193 For criminal
penalties, FECA provides that any person who “knowingly and wil fully” commits a violation of
any provision of the act that involves the making, receiving, or reporting of any contribution,
donation, or expenditure of $25,000 or more per calendar year shal be fined under the federal
criminal code194 or imprisoned for not more than five years, or both.195 If the amount involved is
$2,000 or more per calendar year, but is less than $25,000, the act provides for a fine under the
federal criminal code,196 or imprisonment for not more than one year, or both.197

185 See id. at 66-68.
186 See Citizens United, 558 U.S. at 366-371.
187 Id. at 366 (quoting Buckley, 424 U.S. at 64).
188 See id. at 366-67.
189 Id.
190 Id. at 369.
191 See id. at 370; NAACP v. Alabama, 357 U.S. 449, 462-63 (1958).
192 In addition to the penalties discussed, FECA provides specific penalties for violations of 52 U.S.C. § 30118(b)(3),
the prohibition against coerced contributions to certain PACs, and 52 U.S.C. § 30124, the prohibition on fraudulent
misrepresentation of campaign authority.
193 52 U.S.C. § 30109(a),
194 18 U.S.C. § 3571.
195 52 U.S.C. § 30109(d)(1)(A)(i).
196 18 U.S.C. § 3571.
197 52 U.S.C. § 30109(d)(1)(A)(ii).
Congressional Research Service
21

link to page 12 link to page 8 link to page 16 link to page 16 Political Campaign Contributions and Congress: A Legal Primer

FECA provides for heightened penalties for certain knowing and wil ful violations of the
prohibition on contributions made by one person “in the name of another person,”198 as discussed
earlier in this report.199 In addition to the possibility of fines being imposed, for violations of this
provision involving amounts over $10,000 per calendar year, but less than $25,000, violators
could be subject to imprisonment for not more than two years.200
In most instances, DOJ initiates the prosecution of criminal violations under FECA, but the law
also authorizes the FEC to refer apparent violations to DOJ for criminal prosecution under certain
circumstances.201 Specifical y, the FEC may make referrals to DOJ if, by an affirmative vote of
four, it determines that there is probable cause of a knowing and wil ful violation of FECA
involving a contribution or expenditure aggregating over $2,000 during a calendar year, the FEC
may refer the parent violation to the U.S. Attorney General.202 In such instances, the FEC is not
required to attempt to correct or prevent such violation.203
Constitutional Considerations for Policy Options
Should Congress decide to enact legislation that further regulates campaign contributions, the
Supreme Court’s campaign finance jurisprudence provides guidance as to the constitutional
bounds reviewing courts may apply. As discussed, the Court has invalidated contribution limits in
both federal and state law, including
 individual, party, and political committee contribution limits that the Court
deemed to be unreasonably low;204
 limits on how much money a donor may contribute in total to al candidates,
parties, and political committees, i.e., “aggregate limits”;205

198 Id. § 30122.
199 See supra “Prohibition on Campaign Contributions Made in the Name of Another: “Straw Donor” or Conduit Ban”
section of this report.
200 52 U.S.C. § 30109(d)(1)(D).
201 According to a 2015 media report, since 2008, the FEC had referred no campaign finance enforcement cases to DOJ
for criminal prosecution, and prior to that, such referrals were infrequent. See Kenneth P. Doyle, FEC Rarely Votes to
Refer Crim inal Cases to Justice, Bloomberg BNA Daily Report for Executives (July 29, 2015), http://www.bna.com/
fec-rarely-votes-n17179934048.
202 52 U.S.C. § 30109(a)(5)(C). In addition, FECA provides that the FEC may make referrals to DOJ if, by an
affirmative vote of four, it determines that there is probable cause of a knowing and willful violation of the Presiden tial
Election Campaign Fund Act, codified at 26 U.S.C. § 9001 et seq., or the Presidential Primary Matching Payment
Account Act, codified at id. § 9031 et seq.
203 Id. § 30109(a)(5)(C).
204 See Randall, 548 U.S. at 262 (invalidating a Vermont law that included a limit of $400 on individual, party, and
political committee contributions to certain state candidates, per two -year election cycle, without providing for inflation
adjustment); T hompson, 140 S. Ct. 350-51 (vacating an appellate court ruling that upheld an Alaska law limiting to
$500 per year the amount that an individual can contribute to a candidate or an outside group other than a political
party). See supra “ Campaign Contribution Limits and Related Restrictions” section of this report.
205 See McCutcheon, 572 U.S. at 218 (invalidating FECA’s aggregate contribution limits). See supra “Aggregate Limits
on Campaign Contributions” section of this report.
Congressional Research Service
22

link to page 17 link to page 17 link to page 18 link to page 8 Political Campaign Contributions and Congress: A Legal Primer

 a series of staggered increases in contribution limits applicable to candidates
whose opponents significantly self-finance their campaigns;206 and
 a prohibition on campaign contributions by minors age 17 or younger.207
More broadly, and perhaps most instructive for Congress in evaluating further policy options, the
Court has stated unequivocal y that the only legitimate justification for limiting campaign
contributions is avoiding quid pro quo candidate corruption or its appearance.208 Hence, the Court
has signaled that the likelihood of contribution limits being upheld increases to the degree that
Congress can demonstrate that the limits are narrowly tailored to serve this governmental interest.
In contrast, while acknowledging that Congress may seek to accomplish other “wel intentioned”
policy goals—such as lessening influence over or access to elected officials, decreasing the costs
of campaigns, and equalizing financial resources among candidates—the Court has announced
that such interests wil not serve to justify contribution limits.209 As the Court reiterated in
McCutcheon, when enacting laws that limit speech, the government bears the burden of proving
the constitutionality of such restrictions.210
As discussed in earlier sections of this report, traditional y, the Court has subjected contribution
limits to less rigorous scrutiny under the First Amendment than expenditure limits, and therefore,
with some significant exceptions, the Court has general y upheld such limits.211 Some
commentators have argued that the Supreme Court in McCutcheon may have signaled a
wil ingness in future cases to evaluate contribution limits under a stricter standard of review than
it has in the past.212 Should the Court decide to apply a stricter level of scrutiny to contribution
limits in future cases, legislation providing for enhanced contribution limits would be less likely
to survive constitutional chal enges. Furthermore, a stricter standard of review could likewise
result in successful chal enges to existing contribution limits, including the limits on individual
contributions to candidates and parties.

206 See Davis, 554 U.S. at 740 (invalidating FECA’s limits on contributions to candidates whose opponents
significantly self-finance). See supra “ Limits on Campaign Contributions to Candidates Whose Opponents
Self-Finance” section of this report.
207 See McConnell, 540 U.S. at 232. See supra “Limits on Campaign Contributions Made by Minors” section of this
report.
208 See McCutcheon, 572 U.S. at 192 (citing Citizens United v. Fed. Election Comm’n, 558 U.S. 310, 359 (2010)).
209 Id. at 207-08.
210 See McCutcheon, 572 U.S. at 210 (citing U.S. v. Playboy Entm’t Grp., Inc., 529 U.S. 803, 816 (2000)).
211 See supra “Campaign Contribution Limits and Related Restrictions” section of this report.
212 See Richard Briffault, The Uncertain Future of the Corporate Contribution Ban, 49 VAL. U. L. REV. 397, 398
(2015) (stating that McCutcheon “ subtly ratcheted up the Court’s standard of review of contribution restrictions”);
Robert Yablon, Cam paign Finance Reform Without Law, 103 IOWA L. REV. 185, 201 (2017) (characterizing the
Supreme Court in McCutcheon as “ nudg[ing] the governing standard in the direction of strict scrutiny”). See also James
Bopp, Jr., Randy Elf, and Anita Y. Milanovich, Sym posium: Money In Politics: The Good, the Bad, and the Ugly:
Article and Speech: Contribution Lim its After McCutcheon v. FEC, 49 VAL. U.L. REV. 361, 389 (2015) (maintaining
that “[b]ecause of McCutcheon, key circuit court decisions that previously upheld limits on direct contributions to
candidates are no longer legally sound”).
Congressional Research Service
23

Political Campaign Contributions and Congress: A Legal Primer

Appendix. Reference List of Federal Statutes
18 U.S.C. § 602. Solicitation of political contributions.
(a) It shal be unlawful for-(1) a candidate for the Congress; (2) an individual elected to or serving
in the office of Senator or Representative in, or Delegate or Resident Commissioner to, the
Congress; (3) an officer or employee of the United States or any department or agency thereof; or
(4) a person receiving any salary or compensation for services from money derived from the
Treasury of the United States; to knowingly solicit any contribution within the meaning of section
301(8) of the Federal Election Campaign Act of 1971 from any other such officer, employee, or
person. Any person who violates this section shal be fined under this title or imprisoned not more
than 3 years, or both.
(b) The prohibition in subsection (a) shal not apply to any activity of an employee (as defined in
section 7322(1) of title 5) or any individual employed in or under the United States Postal Service
or the Postal Regulatory Commission, unless that activity is prohibited by section 7323 or 7324
of such title.
18 U.S.C. § 603. Making political contributions.
(a) It shal be unlawful for an officer or employee of the United States or any department or
agency thereof, or a person receiving any salary or compensation for services from money
derived from the Treasury of the United States, to make any contribution within the meaning of
section 301(8) of the Federal Election Campaign Act of 1971 to any other such officer, employee
or person or to any Senator or Representative in, or Delegate or Resident Commissioner to, the
Congress, if the person receiving such contribution is the employer or employing authority of the
person making the contribution. Any person who violates this section shal be fined under this
title or imprisoned not more than three years, or both.
(b) For purposes of this section, a contribution to an authorized committee as defined in section
302(e)(1) of the Federal Election Campaign Act of 1971 shal be considered a contribution to the
individual who has authorized such committee.
(c) The prohibition in subsection (a) shal not apply to any activity of an employee (as defined in
section 7322(1) of title 5) or any individual employed in or under the United States Postal Service
or the Postal Regulatory Commission, unless that activity is prohibited by section 7323 or 7324
of such title.
18 U.S.C. § 606. Intimidation to secure political contributions.
Whoever, being one of the officers or employees of the United States mentioned in section 602 of
this title, discharges, or promotes, or degrades, or in any manner changes the official rank or
compensation of any other officer or employee, or promises or threatens so to do, for giving or
withholding or neglecting to make any contribution of money or other valuable thing for any
political purpose, shal be fined under this title or imprisoned not more than three years, or both.
18 U.S.C. § 607. Place of solicitation.
(a) Prohibition.-(1) In general.-It shal be unlawful for any person to solicit or receive a donation
of money or other thing of value in connection with a Federal, State, or local election from a
person who is located in a room or building occupied in the discharge of official duties by an
officer or employee of the United States. It shal be unlawful for an individual who is an officer or
Congressional Research Service
24

Political Campaign Contributions and Congress: A Legal Primer

employee of the Federal Government, including the President, Vice President, and Members of
Congress, to solicit or receive a donation of money or other thing of value in connection with a
Federal, State, or local election, while in any room or building occupied in the discharge of
official duties by an officer or employee of the United States, from any person. (2) Penalty.-A
person who violates this section shal be fined not more than $5,000, imprisoned not more than 3
years, or both.
(b) The prohibition in subsection (a) shal not apply to the receipt of contributions by persons on
the staff of a Senator or Representative in, or Delegate or Resident Commissioner to, the
Congress or Executive Office of the President, provided, that such contributions have not been
solicited in any manner which directs the contributor to mail or deliver a contribution to any
room, building, or other facility referred to in subsection (a), and provided that such contributions
are transferred within seven days of receipt to a political committee within the meaning of section
302(e) of the Federal Election Campaign Act of 1971.
52 U.S.C. § 30114. Use of contributed amounts for certain purposes.
(a) Permitted uses
A contribution accepted by a candidate, and any other donation received by an individual as
support for activities of the individual as a holder of Federal office, may be used by the candidate
or individual-
(1) for otherwise authorized expenditures in connection with the campaign for Federal office of
the candidate or individual;
(2) for ordinary and necessary expenses incurred in connection with duties of the individual as a
holder of Federal office;
(3) for contributions to an organization described in section 170(c) of title 26;
(4) for transfers, without limitation, to a national, State, or local committee of a political party;
(5) for donations to State and local candidates subject to the provisions of State law; or
(6) for any other lawful purpose unless prohibited by subsection (b) of this section.
(b) Prohibited use
(1) In general
A contribution or donation described in subsection (a) shal not be converted by any person to
personal use.
(2) Conversion
For the purposes of paragraph (1), a contribution or donation shal be considered to be converted
to personal use if the contribution or amount is used to fulfil any commitment, obligation, or
expense of a person that would exist irrespective of the candidate's election campaign or
individual's duties as a holder of Federal office, including-(A) a home mortgage, rent, or utility
payment; (B) a clothing purchase; (C) a noncampaign-related automobile expense; (D) a country
club membership; (E) a vacation or other noncampaign-related trip; (F) a household food item;
(G) a tuition payment; (H) admission to a sporting event, concert, theater, or other form of
entertainment not associated with an election campaign; and (I) dues, fees, and other payments to
a health club or recreational facility.
(c) Restrictions on use of campaign funds for flights on noncommercial aircraft
Congressional Research Service
25

Political Campaign Contributions and Congress: A Legal Primer

(1) In general
Notwithstanding any other provision of this Act, a candidate for election for Federal office (other
than a candidate who is subject to paragraph (2)), or any authorized committee of such a
candidate, may not make any expenditure for a flight on an aircraft unless-(A) the aircraft is
operated by an air carrier or commercial operator certificated by the Federal Aviation
Administration and the flight is required to be conducted under air carrier safety rules, or, in the
case of travel which is abroad, by an air carrier or commercial operator certificated by an
appropriate foreign civil aviation authority and the flight is required to be conducted under air
carrier safety rules; or (B) the candidate, the authorized committee, or other political committee
pays to the owner, lessee, or other person who provides the airplane the pro rata share of the fair
market value of such flight (as determined by dividing the fair market value of the normal and
usual charter fare or rental charge for a comparable plane of comparable size by the number of
candidates on the flight) within a commercial y reasonable time frame after the date on which the
flight is taken.
(2) House candidates
Notwithstanding any other provision of this Act, in the case of a candidate for election for the
office of Representative in, or Delegate or Resident Commissioner to, the Congress, an
authorized committee and a leadership PAC of the candidate may not make any expenditure for a
flight on an aircraft unless-(A) the aircraft is operated by an air carrier or commercial operator
certificated by the Federal Aviation Administration and the flight is required to be conducted
under air carrier safety rules, or, in the case of travel which is abroad, by an air carrier or
commercial operator certificated by an appropriate foreign civil aviation authority and the flight
is required to be conducted under air carrier safety rules; or (B) the aircraft is operated by an
entity of the Federal government or the government of any State.
(3) Exception for aircraft owned or leased by candidate
(A) In general
Paragraphs (1) and (2) do not apply to a flight on an aircraft owned or leased by the c andidate
involved or an immediate family member of the candidate (including an aircraft owned by an
entity that is not a public corporation in which the candidate or an immediate family member of
the candidate has an ownership interest), so long as the candidate does not use the aircraft more
than the candidate's or immediate family member's proportionate share of ownership al ows.
(B) Immediate family member defined
In this subparagraph (A), the term “immediate family member” means, with respect to a
candidate, a father, mother, son, daughter, brother, sister, husband, wife, father-in-law, or mother-
in-law.
(4) Leadership PAC defined
In this subsection, the term “leadership PAC” has the meaning given such term in section
30104(i)(8)(B) of this title.
52 U.S.C. § 30118. Contributions or expenditures by national banks,
corporations, or labor organizations.
(a) In general
It is unlawful for any national bank, or any corporation organized by authority of any law of
Congress, to make a contribution or expenditure in connection with any election to any political
Congressional Research Service
26

Political Campaign Contributions and Congress: A Legal Primer

office, or in connection with any primary election or political convention or caucus held to select
candidates for any political office, or for any corporation whatever, or any labor organization, to
make a contribution or expenditure in connection with any election at which presidential and vice
presidential electors or a Senator or Representative in, or a Delegate or Resident Commissioner
to, Congress are to be voted for, or in connection with any primary election or political
convention or caucus held to select candidates for any of the foregoing offices, or for any
candidate, political committee, or other person knowingly to accept or receive any contribution
prohibited by this section, or any officer or any director of any corporation or any national bank
or any officer of any labor organization to consent to any contribution or expenditure by the
corporation, national bank, or labor organization, as the case may be, prohibited by this section.
(b) Definitions; particular activities prohibited or al owed
(1) For the purposes of this section the term “labor organization” means any organization of any
kind, or any agency or employee representation committee or plan, in which employees
participate and which exists for the purpose, in whole or in part, of dealing with employers
concerning grievances, labor disputes, wages, rates of pay, hours of employment, or conditions of
work.
(2) For purposes of this section and section 79l(h) of title 15,1 the term “contribution or
expenditure” includes a contribution or expenditure, as those terms are defined in section 30101
of this title, and also includes any direct or indirect payment, distribution, loan, advance, deposit,
or gift of money, or any services, or anything of value (except a loan of money by a national or
State bank made in accordance with the applicable banking laws and regulations and in the
ordinary course of business) to any candidate, campaign committee, or political party or
organization, in connection with any election to any of the offices referred to in this section or for
any applicable electioneering communication, but shal not include (A) communications by a
corporation to its stockholders and executive or administrative personnel and their families or by
a labor organization to its members and their families on any subject; (B) nonpartisan registration
and get-out-the-vote campaigns by a corporation aimed at its stockholders and executive or
administrative personnel and their families, or by a labor organization aimed at its members and
their families; and (C) the establishment, administration, and solicitation of contributions to a
separate segregated fund to be utilized for political purposes by a corporation, labor organization,
membership organization, cooperative, or corporation without capital stock.
(3) It shal be unlawful-
(A) for such a fund to make a contribution or expenditure by utilizing money or anything of value
secured by physical force, job discrimination, financial reprisals, or the threat of force, job
discrimination, or financial reprisal; or by dues, fees, or other moneys required as a condition of
membership in a labor organization or as a condition of employment, or by moneys obtained in
any commercial transaction;
(B) for any person soliciting an employee for a contribution to such a fund to fail to inform such
employee of the political purposes of such fund at the time of such solicitation; and
(C) for any person soliciting an employee for a contribution to such a fund to fail to inform such
employee, at the time of such solicitation, of his right to refuse to so contribute without any
reprisal.
(4)(A) Except as provided in subparagraphs (B), (C), and (D), it shal be unlawful-
(i) for a corporation, or a separate segregated fund established by a corporation, to solicit
contributions to such a fund from any person other than its stockholders and their families and its
executive or administrative personnel and their families, and (i ) for a labor organization, or a
Congressional Research Service
27

Political Campaign Contributions and Congress: A Legal Primer

separate segregated fund established by a labor organization, to solicit contributions to such a
fund from any person other than its members and their families.
(B) It shal not be unlawful under this section for a corporation, a labor organization, or a separate
segregated fund established by such corporation or such labor organization, to make 2 written
solicitations for contributions during the calendar year from any stockholder, executive or
administrative personnel, or employee of a corporation or the families of such persons. A
solicitation under this subparagraph may be made only by mail addressed to stockholders,
executive or administrative personnel, or employees at their residence and shal be so designed
that the corporation, labor organization, or separate segregated fund conducting such solicitation
cannot determine who makes a contribution of $50 or less as a result of such solicitation and who
does not make such a contribution.
(C) This paragraph shal not prevent a membership organization, cooperative, or corporation
without capital stock, or a separate segregated fund established by a membership organization,
cooperative, or corporation without capital stock, from soliciting contributions to such a fund
from members of such organization, cooperative, or corporation without capital stock.
(D) This paragraph shal not prevent a trade association or a separate segregated fund established
by a trade association from soliciting contributions from the stockholders and executive or
administrative personnel of the member corporations of such trade association and the families of
such stockholders or personnel to the extent that such solicitation of such stockholders and
personnel, and their families, has been separately and specifical y approved by the member
corporation involved, and such member corporation does not approve any such solicitation by
more than one such trade association in any calendar year.
(5) Notwithstanding any other law, any method of soliciting voluntary contributions or of
facilitating the making of voluntary contributions to a separate segregated fund established by a
corporation, permitted by law to corporations with regard to stockholders and executive or
administrative personnel, shal also be permitted to labor organizations with regard to their
members.
(6) Any corporation, including its subsidiaries, branches, divisions, and affiliates, that utilizes a
method of soliciting voluntary contributions or facilitating the making of voluntary contributions,
shal make available such method, on written request and at a cost sufficient only to reimburse the
corporation for the expenses incurred thereby, to a labor organization representing any members
working for such corporation, its subsidiaries, branches, divisions, and affiliates.
(7) For purposes of this section, the term “executive or administrative personnel” means
individuals employed by a corporation who are paid on a salary, rather than hourly, basis and who
have policymaking, managerial, professional, or supervisory responsibilities.
(c) Rules relating to electioneering communications
(1) Applicable electioneering communication
For purposes of this section, the term “applicable electioneering communication” means an
electioneering communication (within the meaning of section 30104(f)(3) of this title) which is
made by any entity described in subsection (a) of this section or by any other person using funds
donated by an entity described in subsection (a) of this section.
(2) Exception
Notwithstanding paragraph (1), the term “applicable electioneering communication” does not
include a communication by a section 501(c)(4) organization or a political organization (as
defined in section 527(e)(1) of title 26) made under section 30104(f)(2)(E) or (F) of this title if
Congressional Research Service
28

Political Campaign Contributions and Congress: A Legal Primer

the communication is paid for exclusively by funds provided directly by individuals who are
United States citizens or nationals or lawfully admitted for permanent residence (as defined in
section 1101(a)(20) of title 8). For purposes of the preceding sentence, the term “provided
directly by individuals” does not include funds the source of which is an entity described in
subsection (a) of this section.
(3) Special operating rules
(A) Definition under paragraph (1)
An electioneering communication shal be treated as made by an entity described in subsection
(a) if an entity described in subsection (a) directly or indirectly disburses any amount for any of
the costs of the communication.
(B) Exception under paragraph (2)
A section 501(c)(4) organization that derives amounts from business activities or receives funds
from any entity described in subsection (a) shal be considered to have paid for any
communication out of such amounts unless such organization paid for the communication out of a
segregated account to which only individuals can contribute, as described in section
30104(f)(2)(E) of this title.
(4) Definitions and rules
For purposes of this subsection-
(A) the term “section 501(c)(4) organization” means-
(i) an organization described in section 501(c)(4) of title 26 and exempt from taxation under
section 501(a) of such title; or
(i ) an organization which has submitted an application to the Internal Revenue Service for
determination of its status as an organization described in clause (i); and
(B) a person shal be treated as having made a disbursement if the person has executed a contract
to make the disbursement.
(5) Coordination with title 26
Nothing in this subsection shal be construed to authorize an organization exempt from taxation
under section 501(a) of title 26 to carry out any activity which is prohibited under such title.
(6) Special rules for targeted communications
(A) Exception does not apply
Paragraph (2) shal not apply in the case of a targeted communication that is made by an
organization described in such paragraph.
(B) Targeted communication
For purposes of subparagraph (A), the term “targeted communication” means an electioneering
communication (as defined in section 30104(f)(3) of this title) that is distributed from a television
or radio broadcast station or provider of cable or satel ite television service and, in the case of a
communication which refers to a candidate for an office other than President or Vice President, is
targeted to the relevant electorate.
(C) Definition
For purposes of this paragraph, a communication is “targeted to the relevant electorate” if it meets
the requirements described in section 30104(f)(3)(C) of this title.
Congressional Research Service
29

Political Campaign Contributions and Congress: A Legal Primer

52 U.S.C. § 30119. Contributions by Government contractors.
(a) Prohibition
It shal be unlawful for any person-
(1) who enters into any contract with the United States or any department or agency thereof either
for the rendition of personal services or furnishing any material, supplies, or equipment to the
United States or any department or agency thereof or for sel ing any land or building to the
United States or any department or agency thereof, if payment for the performance of such
contract or payment for such material, supplies, equipment, land, or building is to be made in
whole or in part from funds appropriated by the Congress, at any time between the
commencement of negotiations for and the later of (A) the completion of performance under; or
(B) the termination of negotiations for, such contract or furnishing of material, supplies,
equipment, land, or buildings, directly or indirectly to make any contribution of money or other
things of value, or to promise expressly or impliedly to make any such contribution to any
political party, committee, or candidate for public office or to any person for any political purpose
or use; or
(2) knowingly to solicit any such contribution from any such person for any such purpose during
any such period.
(b) Separate segregated funds
This section does not prohibit or make unlawful the establishment or administration of, or the
solicitation of contributions to, any separate segregated fund by any corporation, labor
organization, membership organization, cooperative, or corporation without capital stock for the
purpose of influencing the nomination for election, or election, of any person to Federal office,
unless the provisions of section 30118 of this title prohibit or make unlawful the establishment or
administration of, or the solicitation of contributions to, such fund. Each specific prohibition,
al owance, and duty applicable to a corporation, labor organization, or separate segregated fund
under section 30118 of this title applies to a corporation, labor organization, or separate
segregated fund to which this subsection applies.
(c) “Labor organization” defined
For purposes of this section, the term “labor organization” has the meaning given it by section
30118(b)(1) of this title.
52 U.S.C. § 30121. Contributions and donations by foreign nationals
(a) Prohibition
It shal be unlawful for-
(1) a foreign national, directly or indirectly, to make-
(A) a contribution or donation of money or other thing of value, or to make an express or implied
promise to make a contribution or donation, in connection with a Federal, State, or local election;
(B) a contribution or donation to a committee of a political party; or
(C) an expenditure, independent expenditure, or disbursement for an electioneering
communication (within the meaning of section 30104(f)(3) of this title); or
(2) a person to solicit, accept, or receive a contribution or donation described in subparagraph (A)
or (B) of paragraph (1) from a foreign national.
Congressional Research Service
30

Political Campaign Contributions and Congress: A Legal Primer

(b) “Foreign national” defined
As used in this section, the term “foreign national” means-
(1) a foreign principal, as such term is defined by section 611(b) of title 22, except that the term
“foreign national” shal not include any individual who is a citizen of the United States; or
(2) an individual who is not a citizen of the United States or a national of the United States (as
defined in section 1101(a)(22) of title 8) and who is not lawfully admitted for permanent
residence, as defined by section 1101(a)(20) of title 8.
52 U.S.C. § 30122. Contributions in name of another prohibited.
No person shal make a contribution in the name of another person or knowingly permit his name
to be used to effect such a contribution, and no person shal knowingly accept a contribution
made by one person in the name of another person.

Author Information

L. Paige Whitaker

Legislative Attorney

Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
shared staff to congressional committees and Members of Congress. It operates solely at the behest of and
under the direction of Congress. Information in a CRS Report should n ot be relied upon for purposes other
than public understanding of information that has been provided by CRS to Members of Congress in
connection with CRS’s institutional role. CRS Reports, as a work of the United States Government, are not
subject to copyright protection in the United States. Any CRS Report may be reproduced and distributed in
its entirety without permission from CRS. However, as a CRS Report may include copyrighted images or
material from a third party, you may need to obtain the permission of the copyright holder if you wish to
copy or otherwise use copyrighted material.

Congressional Research Service
R46521 · VERSION 2 · NEW
31