By R.H. Melton
Washington Post Staff Writer
Thursday, October 29, 1998

RICHMOND – In a fall season with no politicians on the statewide ballot, two proposed amendments to Virginia's Constitution have aroused some partisan passions and sparked considerable grass-roots organizing for Tuesday's election.

Amendments 3 and 4, two of five proposed changes to the state government's ruling document, are designed to make it easier for cities and counties to cooperate in joint ventures such as industrial parks and regional recreation areas.

Corporate leaders, civic leagues and the Democratic Party have embraced the amendments, but Gov. James S. Gilmore III (R), the Republican Party and conservative activists oppose them, saying they give unelected bureaucrats excessive power to raise taxes without the public voting on them.

"Regional cooperation is important," Gilmore said this month. "However, these amendments go too far. I believe if Amendments 3 and 4 are ratified, it may lead to new local taxes."

Nicholas Donnangelo, a Leesburg resident helping to lead the charge against the amendments, said he had mailed a two-page flier to 80,000 households across the state and expects to mail 120,000 more by Election Day. Donnangelo's budget is about $50,000, he said.

"We're looking at this not as a no-tax issue, but as a voting-rights issue," Donnangelo said. "It has sweeping implications. People will lose the right to elect government officials in new regional super-governments and will lose the right to control government debt."

Gary Marx, executive director of the Virginia Christian Coalition, added, "Taxpayers get stuck with the bills."

Common Cause of Virginia, the 6,700-member citizens lobby, also opposes Amendments 3 and 4. Executive Director Steve Caolos said the amendments "would result in a diminution of voting rights and taxation without representation."

Proponents argue that Amendment 3 merely allows governments to set a different tax rate for industrial parks, levies that would be borne by incoming companies and not by residences or existing businesses.

Amendment 4 would allow counties to work together to attract major employers and share the tax revenue. Under current law, cities may enter into revenue-sharing agreements without a voter referendum, while counties must have one-an inequity that handicaps business recruitment, proponents said.

Sandy Bowen, a senior official with the Richmond-based Virginia Chamber of Commerce, said debt incurred by the new cooperative effort would be akin to bonds issued routinely for schools and other public works, "bread-and-butter" debt that is paid off regularly by new revenue.

She said she was somewhat startled by the degree of organization and direct-mail funding the opponents had marshaled.

"Quite frankly, we didn't expect the opposition to be what it turned out to be," Bowen said.

Another boost for opponents will be an Election Day effort by local Republican chapters that have lined up volunteers to pass out simply worded sample ballots designed to torpedo Amendments 3 and 4. Party activist Franklin D. Margiotta, a retired Air Force colonel who lives in Fairfax Station, said he had already signed up to work three hours at his home precinct.

Chris LaCivita, executive director of the Virginia GOP, estimated that 70 percent of his local units will turn out against Bowen and her allies.

"Is this a huge effort in terms of money? No," said LaCivita. "It's a good opportunity for us to exercise our grass-roots muscle." Besides the two contested amendments, there are three other ballot proposals. Amendment 1 would erase the confidentiality of charges against judges and give the General Assembly the power to determine by statute how public the proceedings would be.

Amendment 2 would allow Virginians who are working overseas to continue to vote in state and local elections while abroad.

Amendment 5 would give local governments the right to eliminate all or part of two kinds of taxes: the business, professional or occupational license tax-also known as the gross receipts tax-and the merchants' capital tax. Currently, localities must impose either tax.