Ballotpedia:Analysis of the 2021 statewide ballot measures

2021 U.S. state ballot measures
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December 17, 2021
By The Ballot Measures Team

A total of 39 statewide ballot measures were certified for the 2021 ballot in nine states. Twenty-six measures were approved, and 13 were defeated.

• 24 measures were on the November 2 ballot. 14 were approved, and 10 were defeated.
• 4 measures were on the November 13 ballot in Louisiana. One was approved, and three were defeated.
• 4 measures were on the ballot on May 18 in Pennsylvania. They were approved.
• 7 bond measures were on the ballot on March 2 in Rhode Island. They were approved.

In the ten-year period from 2011 to 2021, an average of eight states featured statewide ballot measures. On average, 33 measures appeared on the ballot in total during odd-numbered years.

HIGHLIGHTS

There were more statewide measures in 2021 than in any odd-numbered year since 2007.

State legislatures referred 32 questions to the ballot, of which, voters approved 25 and rejected seven.

Four citizen initiatives were on the ballot in 2021. Three were in Colorado and were all defeated. One was in Maine and was approved.

In 2021, statewide ballot measure campaigns raised $107 million. Support and opposition campaigns for Maine Question 1 raised $99.62 million, which was 93% of the total contributions across statewide measures.

Sponsors of Maine Question 1 spent $2.05 million to collect the 63,067 valid signatures required to put the measure on the ballot, resulting in a cost per required signature (CPRS) of $32.49.

The campaign opposing Maine Question 1 spent $448.61 for every vote against the measure, which is the highest cost per vote (CPV) of any statewide ballot measure campaign since at least 2016.

In total, the campaigns behind the three initiatives in Colorado spent $3.33 million on signature gathering, amounting to an average cost per required signature of $8.42.

The average Flesch-Kincaid Grade Level readability score for the ballot titles of all 39 statewide ballot measures was 18 (second-year graduate school reading level).

Statistical summary

The charts below include all statewide ballot measures on the ballot in 2021:

2021 election statistics
Total	Approved (%)	Defeated (%)
39	26 (66.66%)	13 (33.33%)

Initiated measures

See also: Ballot initiative and Veto referendum

Total initiatives	Amendments	Statutes	Veto referendums	Approved	Rejected
4	1	4	0	1 (25%)	3 (75%)

Legislatively referred amendments and statutes

See also: Legislative referral

Total referrals	Amendments	Statutes	Approved	Rejected
24	23	1	17 (71%)	7 (29%)

Bond issues

See also: Bond issue

Ballotpedia distinguishes between bond issues that are put on the ballot by the legislature through a legal process specifically designed for such proposals and alterations to state statute or the state constitution that call for bonded indebtedness.

In some states, the legislature is able to or sometimes required to put certain proposed bond issues before voters. This section lists legislatively referred bond questions. It does not list other types of measures that happened to propose the issuance of bonds or other indebtedness. To see a full list of all statewide measures proposing the issuance of bonds, regardless of what type of measure was used, click here.

Bond issues	Approved	Rejected
8	8 (100%)	0 (0%)

Advisory questions

See also: Advisory question

Three tax advisory votes were on the ballot in Washington in 2021. These were nonbinding questions that advised the legislature to repeal or maintain bills passed in the 2021 legislative session that increased taxes. Voters advised the legislature to repeal all three. In 2019, twelve advisory questions were on the ballot, the largest number of advisory questions on tax increases in Washington required by the state's automatic process. There were between three and five in 2017, 2015, and 2013.

Questions	Maintain	Repeal
3	0 (0%)	3 (100%)

Measures through the years

In the period from 2009 to 2021, an average of eight states featured statewide ballot measures. On average, 32 measures appeared on the ballot in total during odd-numbered years.

The chart below breaks out the statewide ballot measures on the ballot in 2021 by type and compares these numbers to data from previous odd-numbered years to 2009.

Type of ballot measure	2021	2019	2017	2015	2013	2011	2009	Average
Legislatively referred constitutional amendments	23	19	16	16	17	21	20	18
Initiatives	4	1	4	5	3	10	6	5
Veto referendums	0	1	0	0	0	2	3	1
Legislatively referred state statutes	1	2	0	1	6	1	3	2
Legislatively referred bond questions	8	1	3	2	0	0	0	1
Automatic ballot referrals	0	0	1	0	0	0	0	0
Commission-referred ballot measures	0	0	0	0	0	0	0	0
Advisory questions	3	12	3	4	5	0	0	4
Total	39	36	27	28	31	34	32	31

Odd-year ballot measures since 1987

The following table and graph show how many measures were certified for the odd-year ballot in a given year and in how many states.

An average of 11 states featured ballot measures during odd-numbered years. On average, during an odd-numbered year, 49 statewide ballot measures were on the ballot in total. The year with the highest number of ballot measures was 1987, when 78 statewide ballot measures were on the ballot in 13 states. The year with the fewest ballot measures was 2017, when 27 ballot measures were on the ballot in nine states.

All ballot measures since 2000

The chart below breaks down measures since 2000, including even- and odd-numbered years.

Click [show] in the chart below to see a breakdown of measures since 2000, including even- and odd-numbered years.

Total measures since 2000
Year	Initiatives	Legislative referrals	Other measures	TOTAL
2021	4	32	3	39
2020	43	81	5	129
2019	2	22	12	36
2018	68	75	24	167
2017	4	19	4	27
2016	76	71	15	162
2015	5	17	6	28
2014	40	111	7	158
2013	3	24	5	31
2012	63	122	3	188
2011	12	22	0	34
2010	50	130	4	184
2009	8	24	0	32
2008	74	92	8	174
2007	4	39	1	44
2006	83	140	3	226
2005	19	26	0	45
2004	65	107	1	173
2003	7	60	1	68
2002	55	162	6	223
2001	4	35	0	39
2000	82	151	2	235
Even-year averages	64	113	7	183
Odd-year averages	7	29	3	38

Ballot initiative activity

See also: Ballot initiatives filed for the 2021 ballot

There are 26 states that provide for some form of citizen-initiated ballot measures. There are four states that have a process for citizen-initiated measures to appear on the ballot in odd-numbered years—Colorado, Maine, Ohio, and Washington. Mississippi's initiative process allows for initiatives on the ballot during odd-numbered years that coincide with the state's gubernatorial election. The processes in the remaining 21 states default citizen-initiated measures to appear on the ballot in even-numbered years.

In 2021, four citizen-initiated measures appear on the ballot. Three were in Colorado and were all defeated, and one was in Maine and was approved.

There were a total of 296 citizen-initiated measures filed targeting the statewide ballot in 2021. Sponsors had to file petitions with their state election officials and collect signatures but failed for various reasons, including a lack of an organized campaign or funding, a shortage of valid signatures, missed deadlines, and lawsuits. Of the 296 initiatives filed with state officials targeting the 2021 ballot, four (1.4%) appeared on the ballot. The average number of citizen-initiated measures filed targeting odd-numbered year elections from 2011 through 2019 was 134. The average success rate was 3.5% (five measures).

	2011	2013	2015	2017	2019	2021	Averages
Proposed	137	133	151	142	107	296	161
Certified	12	3	5	4	2	4	5
Certified (%)	8.76%	2.26%	3.31%	2.82%	1.87%	1.35%	3.17%

Signature collection costs

Campaigns spent $5,378,261.60 on signature gathering for the four citizen initiatives on the ballot in 2021 in Colorado and Maine.

Signatures costs by state

Colorado

See also: Colorado 2021 ballot measures

In total, $3,329,466.92 was spent by the initiative campaigns on signature gathering for the three 2021 Colorado initiatives. Campaigns needed to submit 124,632 valid signatures each to qualify for the ballot. The average cost per required signature was $8.42.

Ballot Measure:	Topic:	Petition company	Cost	Signatures	CPRS
Colorado Proposition 120	Taxes		$		$
Colorado Proposition 119	Taxes		$		$
Colorado Amendment 78	State and local government budgets, spending and finance		$		$
Averages:	N/A	N/A	$1,109,822.31	N/A	$8.42

Maine

See also: Maine 2021 ballot measures

Sponsors of Maine Question 1 spent a total of $2,048,794.68 to collect the 63,067 valid signatures required to put the measure on the ballot, resulting in a cost per required signature (CPRS) of $32.49.

Ballot Measure:	Topic:	Petition company	Cost	Signatures	CPRS
Maine Question 1	Energy		$		$
Averages:	N/A	N/A	$2,048,794.68	N/A	$32.49

Campaign contributions

Most expensive measures

In 2021, the support and opposition campaigns for statewide ballot measures raised a total of $107 million. The campaigns supporting and opposing Maine Question 1 raised $99.62 million, which was 93% of the total contributions across statewide measures. The second, third, and fourth-ranked measures were ballot initiatives in Colorado.

The campaigns surrounding the following five statewide ballot measures received the most contributions during the 2021 election cycle:

Measure	Type	Support	Opposition	Total	Outcome
Maine Question 1, Electric Transmission Line Restrictions and Legislative Approval Initiative (2021)	Initiative Statute	$27,645,405.92	$71,974,473.76	$99,619,879.68	a
Colorado Proposition 119, Creation of Out-of-School Education Program and Marijuana Sales Tax Increase Initiative (2021)	Initiative Statute	$2,937,235.00	$84,200.60	$3,021,435.60	d
Colorado Proposition 120, Reduce Property Tax Rates and Retain $25 Million in TABOR Surplus Revenue Initiative (2021)	Initiative Statute	$1,553,850.00	$0.00	$1,553,850.00	d
Colorado Amendment 78, Custodial Fund Appropriations Initiative (2021)	Initiative Statute	$1,275,000.00	$0.00	$1,275,000.00	d
Texas Proposition 2, Authorize Counties to Issue Infrastructure Bonds in Blighted Areas Amendment (2021)	Referral Amendment	$370,160.00	$0.00	$370,160.00	a

Contributions by state

In 2021, there were 39 statewide ballot measures in nine states. Most of the contributions (93.17%) were received in Maine. The following table details the amounts received in each state:

Outcome and support v. opposition campaign finance

Of the 39 statewide measures on the ballot in 2021, campaigns surrounding 17 measures received contributions. The position that raised more funds won 9 of 17 (53%) elections. The position that raised less or no funds won 8 of 17 (47%) elections. In Maine, the campaign that opposed Question 1 raised $44.33 million more than the support campaign, but the ballot initiative was approved.

The following table compares support and opposition funding for each of the 17 ballot measures that featured campaign finance:

Measure	Outcome	Support Contributions	Opposition Contributions	Did the campaign with more funding win?
Colorado Amendment 78	Defeated	$1,275,000.00	$0.00	No
Colorado Proposition 119	Defeated	$2,937,235.00	$84,199.60	No
Colorado Proposition 120	Defeated	$1,553,850.00	$0.00	No
Louisiana Amendment 1	Defeated	$69,000.00	$0.00	No
Louisiana Amendment 2	Approved	$69,000.00	$0.00	Yes
Maine Question 1	Approved	$27,645,405.92	$71,974,473.76	No
Maine Question 3	Approved	$44,286.35	$28,580.00	Yes
New York Proposal 1	Defeated	$11,937.41	$0.00	No
New York Proposal 3	Defeated	$11,937.41	$0.00	No
New York Proposal 4	Defeated	$11,937.41	$0.00	No
Rhode Island Question 1	Approved	$215,250.00	$0.00	Yes
Rhode Island Question 2	Approved	$81,450.00	$0.00	Yes
Rhode Island Question 3	Approved	$300,000.00	$0.00	Yes
Rhode Island Question 4	Approved	$127,028.00	$0.00	Yes
Rhode Island Question 5	Approved	$22,488.00	$0.00	Yes
Rhode Island Question 7	Approved	$263,700.00	$0.00	Yes
Texas Proposition 2	Approved	$370,000.00	$160.00	Yes

Contributions per vote

One method for analyzing the effectiveness of campaigns is to look at the size of their funds relative to the number of votes their position received, or the contributions per vote (CPV).

In 2021, the ballot initiative that saw the most contributions for and against was Maine Question 1 at $99.62 million. A total of 412,086 people voted on Maine Question 1, leading to a CPV of $241.75 per vote cast for both support and opposition combined. Supporters raised $27.65 million, and their position ('yes') received 243,943 votes, for a CPV of $113.33 per vote. Opponents raised $98.41 million, and their position ('no') received 168,143 votes, for a CPV of $448.61.

Of the 39 statewide measures on the ballot in 2021, campaigns surrounding 17 measures received contributions. The following table includes the 10 ballot measures with the highest total combined CPVs in 2021.

Measure	Outcome	Votes	Contributions	CPV
Maine Question 1	a	412,086	$99,619,879.68	$241.75
Rhode Island Question 3	a	104,972	$300,000.00	$2.86
Rhode Island Question 7	a	105,391	$263,700.00	$2.50
Rhode Island Question 1	a	105,887	$215,250.00	$2.03
Colorado Proposition 119	d	1,533,149	$3,021,434.60	$1.97
Rhode Island Question 4	a	105,829	$127,028.00	$1.20
Colorado Proposition 120	d	1,518,579	$1,553,850.00	$1.02
Colorado Amendment 78	d	1,503,687	$1,275,000.00	$0.85
Rhode Island Question 2	a	105,589	$81,450.00	$0.77
Texas Proposition 2	a	1,476,287	$370,160.00	$0.25
Rhode Island Question 5	a	105,809	$22,488.00	$0.21

CPV for support campaigns

The following table illustrates the top-five CPV amounts for support campaigns, which is the amount received per each 'yes' vote on the ballot measure.

Measure	Outcome	"Yes" Votes	Support Contributions	Support CPV
Maine Question 1	a	243,943	$27,645,405.92	$113.33
Rhode Island Question 3	a	69,318	$300,000.00	$4.33
Rhode Island Question 7	a	62,085	$263,700.00	$4.25
Colorado Proposition 119	d	701,479	$2,937,235.00	$4.19
Rhode Island Question 1	a	62,881	$215,250.00	$3.42

CPV for opposition campaigns

The following table illustrates the CPV amounts for opposition campaigns, which is the amount received per each 'no' vote on the ballot measure. In 2021, there were three ballot measures with opposition campaigns that reported contributions.

Measure	Outcome	"No" Votes	Opposition Contributions	Opposition CPV
Maine Question 1	a	160,440	$71,974,473.76	$448.61
Colorado Proposition 119	d	831,670	$84,199.60	$0.10
Maine Question 3	a	160,440	$1,000.00	$0.01

Comparison to prior years

In 2021, campaigns surrounding four ballot initiatives received $107.00 million, establishing an average of $26.37 million per citizen-initiated measure. This average is the highest since Ballotpedia began comparing campaign finance across years in 2015. Maine Question 1, a ballot initiative, saw $99.62 million. Without Maine Question 1, the average would have been $1.95 million.

The table below provides the data for the charts above covering the total and average contributions to ballot measure campaigns from 2016 through 2022:

Note: The following table sums contributions for each measure. Some PACs supported multiple measures.

Contributions and average contributions by year
Year		Initiatives	Referrals	Total
Average per measure	$4,302,856.94	$460,083.16	$1,146,292.76
2016	Total	$936,000,000.00	$76,000,000.00	$1,012,000,000.00
	Average per measure	$12,318,977.91	$881,907.49	$6,246,913.58
2017	Total	$101,243,242.47	$7,520,734.80	$108,763,977.27
	Average per measure	$25,310,810.62	$326,988.47	$4,028,295.45
2018	Total	$984,133,527.91	$201,569,517.77	$1,185,703,045.68
	Average per measure	$14,472,551.88	$2,036,055.74	$7,100,018.24
2019	Total	$9,317,974.94	$18,722,299.14	$28,040,274.08
	Average per measure	$4,658,987.47	$550,655.86	$778,896.50
2020	Total	$988,404,738.19	$281,531,292.72	$1,269,936,030.91
	Average per measure	$23,533,446.15	$3,235,991.87	$9,844,465.36
2021	Total	$105,470,164.28	$1,626,754.58	$107,004,044.04
	Average per measure	$26,367,541.07	$46,478.70	$2,743,693.44
2022	Total	$1,075,470,522.80	$138,543,927.22	$1,214,014,450.02
	Average per measure	$35,849,017.43	$4,198,300.82	$19,272,448.82

Ballot language readability scores

See also: Ballot measure readability scores, 2021

In 2021, Ballotpedia estimated the reading difficulty of ballot measures' titles and summaries using two formulas, the Flesch Reading Ease (FRE) and Flesch-Kincaid Grade Level (FKGL). The formulas account for the number of syllables, words, and sentences in the ballot language, but not the difficulty or complexity of the ideas expressed in the ballot language.

Click here to read the entire report.

In 2021, the average FKGL for the ballot titles or questions of all 39 statewide ballot measures was 18 years of education, which is comparable to a second-year graduate school reading level. The average state scores ranged from seven in Washington to 32 in Colorado.

The following table provides information on the average FKGL scores for ballot titles and summaries by state:

Readability averages by state
State	Average title grade	Average # of words	Average summary grade	Average # of words	Number of measures
Colorado	32	132	N/A	N/A	3
Louisiana	14	45	9	484	4
Maine	22	44	N/A	N/A	3
New Jersey	12	81	12	92	2
New York	14	47	15	183	5
Pennsylvania	26	71	17	325	4
Rhode Island	12	47	N/A	N/A	7
Texas	21	32	N/A	N/A	8
Washington	7	37	N/A	N/A	3

Local ballot measures

See also: Local ballot measure elections in 2021

Click here to read the year-end analysis of local ballot measures in the top 100 largest cities and state capitals.

Contact us

If you'd like to learn more about this report and its methodology, submit additional information, or request an interview with one of Ballotpedia's ballot measure experts, please email editor@ballotpedia.org.

See also

• 2021 ballot measures
• Ballot measure readability scores, 2021
• Ballot measure signature costs, 2021
• Ballot measure campaign finance, 2021
• Ballot Measure Scorecard, 2021
• Ballotpedia's Tuesday Count for 2021
• List of ballot measure lawsuits in 2021
• 2021 ballot measure polls
• 2021 ballot measure media endorsements