Help us improve in just 2 minutes—share your thoughts in our reader survey.
Analysis of 2025 changes to laws governing ballot measures
Updated: August 11, 2025
As of August 8, state governments enacted 72 bills and resolutions concerning the three powers of direct democracy in the U.S.—the ballot initiative, referendum, and recall election. An additional six bills were vetoed. The average number of bills and resolutions enacted per year from 2018 to 2024 was 35. While most bills are adopted during the first half of the year when state legislatures are in session, additional legislation can still be passed later in the year. This year's total (72) is more than double the average (35) for 2018 to 2024. The total also surpasses the previous high of 41 in 2024.
On this page, you will find information on proposed legislation, enacted legislation, ballot measures, and policy issue trends in 2025.
Findings for 2025:
- In 2025, state legislatures enacted 72 bills related to initiative, referendum, and recall—12.3% of the 587 such bills that were introduced.
- 42 were passed by Republican majorities, three by Democratic majorities, and 25 with bipartisan majorities. Compared to the 2018–2024 averages, the Democratic total (3) was below the average of 6, the bipartisan total (25) was 147% of the average of 17, and the Republican total (42) was 323% of the average of 13.
- Legislatures in four states—Idaho, North Dakota, South Dakota, and Utah—referred six constitutional amendments related to ballot measure processes for elections in 2026.
- Four of the most common areas of change in 2025 were laws on foreign spending in campaigns, voter approval thresholds, petition signer identification requirements, and circulation periods. In each area, legislatures enacted bills in a single direction; for example, prohibiting foreign contributions, raising voter approval thresholds, adding identification requirements, and shortening circulation periods.
Findings for 2018-2025:
- From 2018 to 2025, 2,737 pieces of legislation related to initiative, referendum, and recall were introduced in state legislatures. The average number of proposed bills per year was 307, and the number ranged from 218 in 2020 to 587 in 2025.
- Since 2018, state governments have enacted 320 pieces of legislation. Excluding 2025, the average number of enacted bills per year was 35, and the number ranged from 17 in 2020 to 41 in 2024.
- In 2025, Republican-controlled states introduced 362 bills—the highest number since at least 2018—compared to an average of 178 per year over that period. Divided governments also reached a record high in 2025, introducing 87 bills, above the average of 56.
Enacted legislation, 2025
As of August 8, 2025, 72 bills had been enacted into law across 23 states concerning ballot measures, initiatives, veto referendums, referrals, local ballot measures, and recall elections.
This total includes six constitutional amendments that require voter approval for ratification. In addition to the 72 enacted bills, six other bills were passed by legislatures but vetoed by governors.
In total, Ballotpedia tracked 587 legislative proposals on these topics in 2025.
Summaries of each of the 72 enacted bills are available here.
Enacted legislation by state
Arkansas had the most enacted changes in the first half of 2025, with 17 pieces of legislation enacted.
The following map illustrates the number of bills enacted in each state in the first half of 2025:
Enacted legislation by legislative vote margins
A legislative vote margin refers to the difference in the level of support between Democrats and Republicans in state legislatures. This is similar to an election vote margin in which a candidate is said to have received, for example, 5 percentage points more than another candidate. A bill that receives support from 100% of legislative Republicans and 20% of legislative Democrats has a legislative vote margin of R+80%, for example.
Ballotpedia classifies legislative vote margins on legislation related to the initiative, referendum, and recall as follows:
- Republican: R+50.1% to R+100%
- Lean Republican: R+25.1% to R+50%
- Bipartisan: R+25% to D+25%, including 0%
- Lean Democratic: D+25.1% to D+50%
- Democratic: D+50.1% to D+100%
In 2025, 25 of the 72 enacted bills (35%) received bipartisan backing, 37 (51%) were passed with Republican majorities, and two (3%) with Democratic majorities. Two bills in Maine and New Hampshire were passed by voice vote, so the legislative vote margin was unavailable.
| Classification | Enacted bills | Percent of total (72 total enacted bills) |
|---|---|---|
| Bipartisan | 25 | 34.7% |
| Republican majority | 37 | 51.4% |
| Democratic majority | 2 | 2.8% |
| Republican leaning | 5 | 6.9% |
| Democratic leaning | 1 | 1.4% |
The following chart shows enacted legislation categorized by the partisan nature of the vote margins in the states' legislatures from 2018 to 2025, excluding the two bills in Maine and New Hampshire in 2025.
Ballot measures
- See also: Ballot measure process ballot measures
In 2025, legislatures in four states—Idaho, North Dakota, South Dakota, and Utah—referred six constitutional amendments to the ballot for elections in 2026. These proposals would change ballot measure processes and require voter approval for ratification.
| State | Type | Title | Description |
|---|---|---|---|
| ID | HJR 4 | Provide that only the state legislature has the authority to legalize marijuana, narcotics, or other psychoactive substances | |
| ND | 60% Vote Requirement for Constitutional Amendments Measure | Require constitutional amendments to receive a 60% supermajority vote to be adopted | |
| ND | Single-Subject Requirement for Constitutional Amendments Measure | Create a single-subject requirement for initiated constitutional amendments and legislatively referred constitutional amendments in North Dakota | |
| SD | Constitutional Amendment L | Require a 60% majority by voters to approve constitutional amendments | |
| UT | 60% Vote Requirement for Ballot Initiatives to Increase or Expand Taxes Amendment | Require a supermajority requirement of 60% by voters for citizen-initiated ballot measures that create new taxes, increase existing tax rates, or for a property tax | |
| UT | Publication Requirements for Constitutional Amendments Measure | Require that constitutional amendments appearing on the ballot must be published for a period of 60 days |
Proposed legislation, 2025
In 2025, lawmakers in 46 states introduced 587 legislative proposals. Of those states, 25 had an initiative or referendum process. One state with an initiative and referendum process—Alaska—did not see any new proposed legislation in 2025.
The following map illustrates the number of bills and resolutions proposed in each state during 2025 legislative sessions:
Proposed legislation and state government trifecta status
Proposed legislation in 2025 by trifecta status
Trifecta status of states with legislative proposals in 2025:
- 138 of the 587 proposed bills (24%) were proposed in states with Democratic state government trifectas.
- Of the 138 proposed bills, four were enacted (2.8%).
- 362 of the 587 proposed bills (62%) were proposed in states with Republican state government trifectas.
- Of the 362 proposed bills, 67 were enacted (18.5%).
- 87 of the 587 proposed bills (15%) were proposed in states with divided state governments.
- Of the 87 bills proposed in divided states, seven were enacted (8.0%)
State legislative trifecta status proposed legislation (2018-2025)
Trifecta status of states proposing changes to laws governing initiative and referendum in 2018-2025:
Based on a state's trifecta status during a given year from 2018 to 2025, 1420 (51.9%) bills were proposed in states with Republican trifectas, 867 (31.7%) were proposed in states with Democratic trifectas, and 445 (16.2%) were proposed in states with divided governments.
Ballot measure policy issue trends
As of August 8, 2025, state legislatures had passed 72 bills related to ballot measure processes. Ballotpedia identified four of the most common areas of legislative changes in 2025 and analyzed the direction of change within each: (1) laws governing foreign spending in ballot measure campaigns; (2) vote thresholds for ballot measures; (3) identification requirements for petition signers; and (4) ballot initiative circulation periods. In each of these four areas, all legislative changes moved in the same direction.
- Changes to laws governing foreign spending in ballot measure campaigns: Legislatures passed nine bills prohibiting or increasing restrictions on foreign donor contributions to ballot measure campaigns. No bills were adopted to permit or decrease such restrictions.
- Changes to vote thresholds for ballot measures: Legislatures passed three pieces of legislation to increase the voter approval threshold for statewide ballot measures. However, each of these is a constitutional amendment requiring voter approval in 2026. No bills were adopted to decrease vote thresholds.
- Changes to laws governing identification requirements for petition signers: Legislatures passed three bills to add or increase identification requirements for petition signers. No bills were adopted to remove or reduce such requirements.
- Changes to ballot initiative circulation periods: Legislatures passed two bills to shorten the time period during which petition signatures are valid. No bills were adopted to lengthen circulation periods.
Changes to laws governing foreign spending in ballot measure campaigns
In 2025, nine states—Arkansas, Indiana, Kansas, Kentucky, Louisiana, Missouri, Montana, Tennessee, and Wyoming—enacted laws prohibiting foreign contributions to ballot measure campaigns. No state passed legislation to permit or reduce restrictions on such contributions. Support among legislative Republicans averaged 97%, while Democratic support was more divided, averaging 46%.
| Direction | Description | Number | Average Democratic Support | Average Republican Support |
|---|---|---|---|---|
| Prohibit | Bills prohibiting or increasing restrictions on foreign donor contributions to ballot measure campaigns | 9 | 45.5% | 96.6% |
| Allow | Bills allowing or decreasing restrictions on foreign donor contributions to ballot measure campaigns | 0 | N/A | N/A |
| Total | 9 | 45.5% | 96.6% |
List of bills
Click the down arrow (⌄) to open the table listing the individual bills.
| State | Bill | Direction | Legislative Vote Difference | Legislative Vote Classification |
|---|---|---|---|---|
| Arkansas | HB 1837 | Prohibit / Restrict | R+27.8% | Lean Republican |
| Indiana | HB 1467 | Prohibit / Restrict | R+11.1% | Bipartisan |
| Kansas | HB 2106 | Prohibit / Restrict | R+55.6% | Lean Republican |
| Kentucky | HB 45 | Prohibit / Restrict | R+81.8% | Republican |
| Louisiana | HB 693 | Prohibit / Restrict | R+55.6% | Lean Republican |
| Missouri | SB 152 | Prohibit / Restrict | R+89.1% | Republican |
| Montana | HB 179 | Prohibit / Restrict | R+86.7% | Republican |
| Tennessee | HB 888 | Prohibit / Restrict | R+72.7% | Republican |
| Wyoming | HB 337 | Prohibit / Restrict | R+11.3% | Bipartisan |
Changes to vote thresholds for ballot measures
In 2025, three states—North Dakota, South Dakota, and Utah—passed constitutional amendments to increase the voter approval threshold required for ballot measures. However, as constitutional amendments, each of these requires voter approval in 2026. No state enacted laws to lower voter approval thresholds. Support among legislative Republicans averaged 90%, while Democratic support averaged 6%.
Each of the three proposals would raise the voter approval threshold to 60% for certain ballot measures. In North Dakota and South Dakota, the increased vote threshold would apply to constitutional amendments. In Utah, the increase would apply to citizen-initiated ballot measures that make certain tax-related changes that increase state revenue.
| Direction | Description | Number | Average Democratic Support | Average Republican Support |
|---|---|---|---|---|
| Increase | Bills increasing the voter approval threshold for ballot measures | 3 | 6.3% | 89.8% |
| Decrease | Bills decreasing the voter approval threshold for ballot measures | 0 | N/A | N/A |
| Total | 3 | 6.3% | 89.8% |
List of bills
Click the down arrow (⌄) to open the table listing the individual bills.
| State | Bill | Direction | Legislative Vote Difference | Legislative Vote Classification |
|---|---|---|---|---|
| North Dakota | HCR 3003 | Increase | R+72.6% | Republican |
| South Dakota | SJR 5003 | Increase | R+85.3% | Republican |
| Utah | SJR 2 | Increase | R+92.7% | Republican |
Changes to identification requirements for petition signers
In 2025, three states—Arkansas, Florida, and South Dakota—passed legislation adding or increasing identification requirements for petition signers. No state enacted laws to remove or reduce such requirements. Support among legislative Republicans averaged 93%, while Democratic support averaged 8%.
In Arkansas, SB 208 required signers to present a photo ID to canvassers. In Florida, HB 1205 required petition signatures to include a driver’s license, state ID, or the last four digits of their Social Security number. In South Dakota, SB 1256 required signers to provide their name, address matching their voter registration, and the date.
| Direction | Description | Number | Average Democratic Support | Average Republican Support |
|---|---|---|---|---|
| Add / Increase | Bills to add or increase identification requirements for petition signers | 3 | 8.3% | 92.5% |
| Remove / Reduce | Bills to remove or reduce identification requirements for petition signers | 0 | N/A | N/A |
| Total | 3 | 8.3% | 92.5% |
List of bills
Click the down arrow (⌄) to open the table listing the individual bills.
| State | Bill | Direction | Legislative Vote Difference | Legislative Vote Classification |
|---|---|---|---|---|
| Arkansas | SB 208 | Add / Increase | R+93.2% | Republican |
| Florida | HB 1205 | Add / Increase | R+100.0% | Republican |
| South Dakota | SB 1256 | Add / Increase | R+59.2% | Lean Republican |
Changes to ballot initiative circulation periods
In 2025, two states—Arkansas and South Dakota—passed legislation shortening the time period during which petition signatures for ballot initiatives are valid. No state enacted laws to lengthen circulation periods. Support among legislative Republicans averaged 90%, while Democratic support averaged 5%.
In Arkansas, House Bill 1221 provided that signatures for an initiative or referendum petition expire on the date of the next general election following certification of the ballot language. Previously, Arkansas was one of two states that had no law providing for the expiration of collected signatures. In South Dakota, House Bill 1184 moved the deadline to file petition signatures for ballot initiatives from the first Tuesday in May to the first Tuesday in February of a general election year, thereby shortening the signature collection time from 24 months to 21 months.
| Direction | Description | Number | Average Democratic Support | Average Republican Support |
|---|---|---|---|---|
| Shorten | Bills to shorten the time period during which petition signatures are valid | 2 | 4.8% | 90.0% |
| Lengthen | Bills to lengthen the time period during which petition signatures are valid | 0 | N/A | N/A |
| Total | 2 | 4.8% | 90.0% |
List of bills
Click the down arrow (⌄) to open the table listing the individual bills.
| State | Bill | Direction | Legislative Vote Difference | Legislative Vote Classification |
|---|---|---|---|---|
| Arkansas | HB 1221 | Shorten | R+87.5% | Republican |
| South Dakota | HB 1184 | Shorten | R+83.0% | Republican |
See also
- Changes to laws governing ballot measures
- Difficulty analysis of changes to laws governing ballot measures
- Changes in 2025 to laws governing ballot measures
- Changes in 2024 to laws governing ballot measures
- Changes in 2023 to laws governing ballot measures
- Changes in 2022 to laws governing ballot measures
- Changes in 2021 to laws governing ballot measures
Footnotes