Your monthly support provides voters the knowledge they need to make confident decisions at the polls. Donate today.

Missouri Amendment 4, Require Approval in Each Congressional District for Citizen-Initiated Constitutional Amendments and Add Provisions on Petition Fraud and Foreign Contributions Amendment (2026)

From Ballotpedia
Jump to: navigation, search
Missouri Amendment 4

Flag of Missouri.png

Election date

November 3, 2026

Topic
Ballot measure process and Ballot measure supermajority requirements
Status

On the ballot

Type
Legislatively referred constitutional amendment
Origin

State legislature



The Missouri Require Approval in Each Congressional District for Citizen-Initiated Constitutional Amendments and Add Provisions on Petition Fraud and Foreign Contributions Amendment is on the ballot in Missouri as a legislatively referred constitutional amendment on November 3, 2026.[1]

A "yes" vote supports amending the Missouri Constitution to:

  • require voter approval of citizen-initiated constitutional amendments in each congressional district, rather than statewide;
  • add language prohibiting foreign nationals and foreign adversaries, as defined, from spending to support or oppose ballot measures, with penalties for violations; and
  • add language regarding penalties for ballot initiative signature petition fraud, among other changes.

A "no" vote opposes amending the Missouri Constitution, therefore:

  • continuing to require voter approval of citizen-initiated constitutional amendments statewide, not in each congressional district; 
  • maintaining existing prohibitions on foreign nationals spending on ballot measures in state law, without adding or expanding them in the constitution;
  • maintaining existing penalties for ballot initiative petition signature fraud in state law, without adding or expanding them in the constitution.


Overview

How would this amendment change the requirements to pass citizen-initiated amendments in Missouri?

See also: Measure design

In Missouri, citizens have the power to initiate constitutional amendments. Eighteen states allow citizens to initiate constitutional amendments. Currently, a simple majority is required to pass citizen-initiated constitutional amendments in the state.

Under this amendment, a simple majority requirement would be needed in each of the state's congressional districts to approve citizen-initiated constitutional amendments, rather than statewide. This would not impact constitutional amendments referred to the ballot by the state legislature. The amendment would also add language to the Missouri Constitution prohibiting foreign nationals and foreign adversaries, as defined, from spending to support or oppose ballot measures, with penalties for violations, and regarding penalties for ballot initiative signature petition fraud.

Currently, under state law, foreign nationals are prohibited from contributing to ballot measure campaigns, following the passage of Senate Bill 152 in July 2025. Under existing state law, initiative petition signature fraud is treated as a Class A misdemeanor.

Do other states have supermajority requirements for ballot measures?

See also: Measure design

Currently, 11 states require supermajority approval for certain ballot measures. Four states require a supermajority for any constitutional amendment on the ballot—New Hampshire requires a 2/3's vote, Illinois and Florida require a 60% vote, and Colorado requires a 55% vote. Other states require a simple majority for the ballot measure, but also require a simple majority of those who voted for governor, or require a certain percentage of votes cast for any office in that election. Supermajority requirements are also applied to specific ballot measure topics, such as tax increases, lotteries, or changing vote requirements.

No state currently has a voter approval requirement in each congressional district. While four states, including Missouri, require signatures to be collected from a certain number of congressional districts, none require voter approval in each congressional district. Amendment 4 would create a new type of ballot measure supermajority requirement.

What do supporters and opponents say about the amendment?

See also: Supporters and opponents

State Rep. Ed Lewis (R) who sponsored the amendment, said that there should be a broad citizen consensus when it comes to changing the state constitution. He said, "Do you want partisan issues to be going into the constitution? Whether it be ultra conservative or ultra liberal positions going into the constitution? Or do we want something that a broad consensus of all Missourians could support change in the constitution? And that's what I want."[2]

State Rep. Kathy Steinhoff (D), who voted against the amendment, said that it would only take one district to reject the amendment for it to fail, saying, "An eight out of eight will require petitioners to provide education in every district, but it will leave opponents to focus all of their time, all of their energy, all of their money in just one district. The other seven districts, they'll be left behind. Imagine how they're going to feel when they realize that in one district that got all the education, the results will outweigh the seven other districts combined."[2] Kay Park, director of the League of Women Voters of Missouri said, "Requiring a majority in all eight districts will be virtually impossible to pass the initiative petition and would effectively silence the voice of the people."[3]

What is the congressional district makeup in Missouri?

See also: Missouri congressional district

Missouri currently has eight congressional districts. Each district has between 714,000-805,000 inhabitants. Two districts—Missouri's 1st and Missouri's 5th—have a Democratic congressional representative, while five districts—Missouri's 2nd, 3rd, 4th, 6th, 7th, and 8th—have a Republican congressional representative. Of these districts, in the 2024 presidential election, the six districts with a Republican representative—2, 3, 4, 6, 7, and 8—voted to elect Donald Trump (R), while the two districts with the Democratic congressional representative—1 and 5—voted to elect Kamala Harris (D).

Measure design

Click on the following sections for summaries of the different provisions of the ballot measure.[1]


Expand All
Require approval in each congressional district to approve citizen-initiated amendments
Prohibit foreign spending in ballot measure campaigns
Penalties for initiative petition signature fraud
Other provisions


Text of measure

Constitutional changes

See also: Article III, Missouri Constitution

The ballot measure would add Section 54 to Article III of the Missouri Constitution. The following underlined text would be added and struck-through text would be deleted:[1]

Note: Hover over the text and scroll to see the full text.

Section 54.

1. This section shall be known as the "Protect Missouri Voters" amendment.

2. For purposes of this section, a statewide ballot measure shall mean any measure submitted or proposed to be submitted to the voters of the state under articles III or XII of this constitution.

3. (1) No political committee that makes expenditures or contributions in support of or in opposition to a statewide ballot measure shall knowingly or willfully receive, solicit, or accept, whether directly or indirectly, contributions from a foreign adversary of the United States or a foreign national. No foreign adversary of the United States or a foreign national shall make any contribution or expenditure in support of or in opposition to a statewide ballot measure. (2) For purposes of this section: (a) A foreign adversary of the United States shall be defined as: a. Any national, provincial, or local government or any entity that is directly or indirectly controlled or owned by a government or that directly or indirectly controls a government or a political party of a foreign country designated as a foreign adversary by the United States Secretary of State from the time such designation is published in the Federal Register until revoked; or b. Any individual who is a citizen of a foreign country meeting the requirements of subparagraph a of paragraph (a) subdivision (2) of subsection 3 of this section and who is not a United States citizen or lawful permanent resident; (b) A foreign national shall be defined as any individual who is not a citizen or lawful permanent resident of the United States of America. (3) Any violation of this subsection shall be punishable by imprisonment for up to one year or a fine of up to one thousand dollars or both, plus an amount equal to three times the illegal contributions. The attorney general shall have exclusive criminal jurisdiction. (4) The general assembly may by law: (a) Enact laws to implement the restrictions of this subsection, or enact further restrictions to implement this subsection; (b) Enact restrictions on foreign support for or opposition to Missouri ballot measures; (c) Enact reporting requirements regarding foreign support for persons or committees that oppose or support ballot measures; and (d) Provide for the investigation and enforcement of the provisions of any such enactments, or of this subsection including, but not limited to, criminal penalties or civil remedies.

4. (1) Any person who commits any of the following acts with respect to a petition on a statewide ballot measure is guilty of the crime of petition signature fraud: (a) Signs any name other than his or her own to any petition, or who knowingly signs his or her name more than once for the same measure for the same election, or who knows he or she is not at the time of signing or circulating the same a Missouri registered voter and a resident of this state; (b) Intentionally submits petition signature sheets with the knowledge that the person whose name appears on the signature sheet did not actually sign the petition; (c) Causes a voter to sign a petition other than the one the voter intended to sign; (d) Forges or falsifies signatures; or (e) Knowingly accepts or offers money or anything of value to another person in exchange for a signature on a petition. (2) Any person who knowingly causes a petition circulator's signatures to be submitted for counting, and who either knows that such circulator has violated subsection 1 of this section or, after receiving notice of facts indicating that such person may have violated subsection 1 of this section, causes the signatures to be submitted with reckless indifference as to whether such circulator has complied with subsection 1 of this section, shall also be deemed to have committed the crime of petition signature fraud. (3) The crime of petition signature fraud shall be punishable by imprisonment for up to one year or a fine of up to one thousand dollars or both. The attorney general shall have exclusive criminal jurisdiction to prosecute under this section.

5. At a reasonable time and place after an initiative petition is submitted with signatures and before a petition is placed on a ballot, the secretary of state or the secretary's designee shall conduct one or more in-person or web-based hearings to receive additional public comment regarding the purpose and effect of the proposed measure. Transcripts or summaries of the hearings shall be made available to the public no later than seven days after the hearing is conducted and before the petition is placed on the ballot.

6. Notwithstanding Sections 51 and 52(b) of this article and Article XII, Section 2(b) of this constitution, statewide ballot measures to amend the constitution that are proposed by initiative petition are approved only if affirmative votes are cast by a majority of voters in each congressional district in effect at the time of the vote.

7. The full text of any statewide ballot measure proposed by the initiative shall be made available to each voter, either legibly printed on paper or in digital format, at the time a ballot is made available to the voter for voting. This requirement is in addition to, and does not replace, all other printings and displays of the full text and the ballot title required under this constitution or by law. The secretary of state is expressly authorized to promulgate rules consistent with rule making authority under Missouri law to implement and administer the provisions of this subsection.

8. The provisions of this section are self-executing. All of the provisions of this section are severable. If any provision of this section is found by a court of competent jurisdiction to be unconstitutional or unconstitutionally enacted, the remaining provisions of this section shall be and remain valid. [6]

Support

Protect MO Voters is leading the campaign in support of the amendment.[7]

Supporters

Officials

Arguments

  • Andy Bakker, executive director of Liberty Alliance USA: "We look forward to working with a broad coalition of Missourians who want to protect our initiative petition process from signature fraud and safeguard our constitution from foreign adversaries seeking to undermine."
  • State Rep. Ed Lewis: "Do you want partisan issues to be going into the constitution? Whether it be ultra conservative or ultra liberal positions going into the constitution? Or do we want something that a broad consensus of all Missourians could support change in the constitution? And that's what I want."
  • State Rep. Bill Lucas: "I'm hearing lots of moaning and wailing and gnashing of teeth over taking away the will of the people. To change our constitution should be harder. It should be a little more difficult. This is not putting an undue burden on anybody. For both sides, the far right and the far left, it's going to be harder to get changes to our constitution."

Opposition

Missourians for Fair Governance is leading the campaign opposing the amendment.[7]

Opponents

Officials

Organizations

  • League of Women Voters of Missouri
  • Missouri Jobs with Justice
  • Missouri Realtors
  • Missouri Voter Protection Coalition

Arguments

  • Mallory Rusch, executive director of Empower Missouri: "For those who oppose change, they can concentrate all of their energy, all of their money, all of their messaging in a single district, and in that one district, they can cause the initiative to fail. I don’t see how that is a fair and just system for making important decisions as a state."
  • Kay Park, director of the League of Women Voters of Missouri: "Requiring a majority in all eight districts will be virtually impossible to pass the initiative petition and would effectively silence the voice of the people."
  • State Rep. Kathy Steinhoff: "An eight out of eight will require petitioners to provide education in every district, but it will leave opponents to focus all of their time, all of their energy, all of their money in just one district. The other seven districts, they'll be left behind. Imagine how they're going to feel when they realize that in one district that got all the education, the results will outweigh the seven other districts combined."


Campaign finance

See also: Ballot measure campaign finance, 2026
The campaign finance information on this page reflects the most recent scheduled reports that Ballotpedia has processed, which covered through October 25, 2025.


Protect MO Voters is the campaign registered in support of the amendment.[7]

Missourians for Fair Governance is the campaign registered in opposition to the amendment.[7]

Cash Contributions In-Kind Contributions Total Contributions Cash Expenditures Total Expenditures
Support $0.00 $0.00 $0.00 $0.00 $0.00
Oppose $0.00 $0.00 $0.00 $0.00 $0.00
Total $0.00 $0.00 $0.00 $0.00 $0.00

Background

Missouri laws related to citizen initiatives

See also: Laws governing the initiative process in Missouri

Supermajority requirements for ballot measures

As of 2025, according to the Missouri constitution, ballot measures required a simple majority from all overall statewide votes to pass, and did not require any form of supermajority.

Missouri Constitution, Article III, Section 51

The initiative shall not be used for the appropriation of money other than of new revenues created and provided for thereby, or for any other purpose prohibited by this constitution. Except as provided in this constitution, any measure proposed shall take effect when approved by a majority of the votes cast thereon. When conflicting measures are approved at the same election the one receiving the largest affirmative vote shall prevail.[6]

Foreign contributions to ballot measure campaigns

On July 9, 2025, Missouri Senate Bill 152, which prohibited foreign spending to ballot measure campaigns, was signed into law by Gov. Mike Kehoe (R). SB 152 prohibited ballot measure committees from using funds from foreign nationals for campaign activities and from accepting contributions or in-kind support from foreign nationals or from individuals or entities that received such contributions. It also required donors contributing over $2,000 to certify that they are not foreign nationals and have not received more than $10,000 from foreign nationals within a four-year period.

SB 152 was signed into law as Missouri Revised Statutes §130. Under the law, as of 2025, violations related to foreign spending in ballot measure campaigns could result in civil penalties, including refunding illegal contributions, disgorging expenditures, and liability for officers or directors if funds cannot be returned. Courts could also impose statutory damages up to twice the amount of prohibited contributions or expenditures, and up to three times those damages for knowing or willful violations.[4]

Petition fraud

Under Missouri law as of 2025, petition signature fraud is a crime and is classified as a Class A misdemeanor punishable by up to one year in jail and a fine of up to $10,000, under Revised Statutes §116.090.[5]

Missouri congressional district map

As of 2025, Missouri had eight congressional districts. Two congressional districts had an elected Democrat as a U.S. Representative, and six of the congressional districts had an elected Republican as a U.S. Representative.


The population for each of Missouri's congressional districts is below:[8]

Total Population by Missouri Congressional Districts, 2010–2020
District 2010 2020 % Change
1 748,665 714,982 -4.50%
2 749,460 777,563 3.75%
3 747,733 804,392 7.58%
4 748,601 777,214 3.82%
5 748,626 788,328 5.30%
6 748,601 780,975 4.32%
7 748,620 792,417 5.85%
8 748,606 719,016 -3.95%

Missouri results for 2020, 2022, and 2024 citizen-initiated constitutional amendments

Between 2020 and 2024, there were five citizen-initiated constitutional amendments on the ballot. Four received a simple majority statewide vote, while one, Amendment 5 in 2024, did not. Ballotpedia used one sample congressional district, Missouri's 7th District, to compare total yes votes and no votes in District 7 to the statewide totals. All amendments in Missouri's 7th Congressional District were defeated.

Ballot Measure Results – Statewide vs. Missouri's 7th Congressional District
Initiative Statewide Yes Statewide No Statewide % Yes CD-7 Yes** CD-7 No** CD-7 % Yes**
Constitutional Amendment 2: Expand Medicaid (2020)* 676,687 593,491 53.3% Approveda 54,283 82.151 39.8% Defeatedd
Constitutional Amendment 3: Marijuana Legalization (2022) 1,092,432 965,020 53.1% Approveda 111,135 135,171 45.1% Defeatedd
Constitutional Amendment 2: Legalize Sports Wagering (2024) 1,478,652 1,475,691 50.1% Approveda 153,555 209,522 42.3% Defeatedd
Constitutional Amendment 3 : Right to Abortion (2024) 1,538,659 1,443,022 51.6% Approveda 144,638 222,091 39.4% Defeatedd
Constitutional Amendment 5: Gambling Boat License (2024) 1,380,949 1,523,889 47.5% Defeatedd 145,915 212,362 40.7% Defeatedd

* District boundaries differed slightly before redistricting in 2022. For consistency, the most recent configuration of Missouri’s 7th Congressional District is applied to the 2020 results.

** The Missouri Secretary of State publishes election results by county.[9] District 7 was selected as a case study because its boundaries align closely with county lines. Nine counties fall largely within District 7 and are included in this analysis. Webster County is split between Districts 4 and 7, so it has been excluded from this analysis. County-level results are therefore used here as an approximation of the district’s totals.

Missouri 2020 and 2024 presidential election results by congressional district

2024 presidential election results

Presidential results by congressional district, Missouri (2024)
District Harris Trump Total Harris % Trump % Margin
Missouri's 1st 244,275 64,567 314,220 77.74% 20.55% D+57.19
Missouri's 2nd 196,255 230,556 433,971 45.22% 53.13% R+7.90
Missouri's 3rd 146,055 254,638 406,388 35.94% 62.66% R+26.72
Missouri's 4th 106,163 265,110 375,940 28.24% 70.52% R+42.28
Missouri's 5th 205,020 126,971 337,623 60.72% 37.61% D+23.12
Missouri's 6th 114,818 263,613 382,953 29.98% 68.84% R+38.85
Missouri's 7th 105,495 265,470 375,382 28.10% 70.72% R+42.62
Missouri's 8th 82,518 281,060 367,119 22.48% 76.56% R+54.08


2020 presidential election results

Note: Missouri redrew its congressional districts after the 2020 census. The results below reflect the district boundaries used in the 2020 election prior to redistricting.

Presidential results by congressional district, Missouri (2020)
District Biden Trump Total Biden % Trump % Margin
Missouri's 1st 278,269 71,037 355,000 78.39% 20.01% D+58.38
Missouri's 2nd 198,823 232,845 438,960 45.29% 53.04% R+7.75
Missouri's 3rd 142,584 247,108 397,210 35.90% 62.21% R+26.31
Missouri's 4th 109,920 257,315 374,598 29.34% 68.69% R+39.35
Missouri's 5th 217,895 125,686 350,584 62.15% 35.85% D+26.30
Missouri's 6th 115,548 255,727 377,863 30.58% 67.68% R+37.10
Missouri's 7th 103,423 254,241 364,374 28.38% 69.77% R+41.39
Missouri's 8th 86,552 274,779 366,570 23.61% 74.96% R+51.35

Requirements by state for constitutional amendments

See also: Supermajority requirements for ballot measures

Of the 49 states that require voter approval for constitutional amendments, 11 states require a supermajority vote on the amendment or some rule that combines different criteria. Delaware is the one state where voter approval is not required for state constitutional amendments.

Laws governing foreign spending in ballot measure campaigns

See also: Laws governing foreign spending in ballot measure campaigns

Campaign finance rules for ballot measures differ from those for candidate elections. "Referenda are held on issues, not candidates for public office," wrote the U.S. Supreme Court in 1978 (First National Bank of Boston v. Bellotti).[10] The court has held that spending on ballot measure campaigns is similar to issue advocacy, such as lobbying, in the lawmaking process. In 2012, the Supreme Court affirmed that, under the Federal Elections Campaign Act (FECA), foreign nationals were prohibited from making contributions to candidates. However, FECA "does not bar foreign nationals from issue advocacy," according to the affirmed ruling.[11]

The Federal Election Commission, following the court's orders, has held that ballot measure campaigns are not regulated under FECA. According to the FEC, since ballot measure campaigns are similar to issue advocacy, foreign individuals, corporations, and governments can contribute to them.[12]

At least 19 states have passed laws prohibiting foreign nationals or governments from contributing to ballot measure committees. However, the definition of foreign national may vary by state. Those 19 states are Arkansas, California, Colorado, Indiana, Kansas, Kentucky, Louisiana, Maine, Maryland, Missouri, Montana, Nebraska, Nevada, North Dakota, Ohio, South Dakota, Tennessee, Washington, and Wyoming.

Path to the ballot

Amending the Missouri Constitution

See also: Amending the Missouri Constitution

A simple majority vote is required during one legislative session for the Missouri General Assembly to place a constitutional amendment on the ballot. That amounts to a minimum of 82 votes in the Missouri House of Representatives and 18 votes in the Missouri State Senate, assuming no vacancies. Amendments do not require the governor's signature to be referred to the ballot.

House Joint Resolution 3 (2025)

Rep. Ed Lewis (R) introduced the constitutional amendment into the Missouri House of Representatives as House Joint Resolution 3 (HJR 3) on September 3, 2025. The constitutional amendment moved through the legislature between September 3, 2025 and September 12, 2025.[13]

  • September 5, 2025: The Legislative Oversight Committee passed the amendment by 7-3, sending it for the full vote in the House.
  • September 12, 2025: The Senate voted to pass the amendment by 21-11. The amendment was sent to Secretary of State Denny Hoskins (R).


Partisan Direction Index = +93.7% (Republican)
Democratic Support
0.0%
Republican Support
93.7%
Missouri House of Representatives
Voted on September 9, 2025
Votes Required to Pass: 82
YesNoNV
Total98583
Total %61.636.41.8
Democratic (D)0520
Republican (R)9863
Missouri State Senate
Voted on September 12, 2025
Votes Required to Pass: 18
YesNoNV
Total21112
Total %61.732.35.8
Democratic (D)091
Republican (R)2121

How to cast a vote

See also: Voting in Missouri

See below to learn more about current voter registration rules, identification requirements, and poll times in Missouri.

How to vote in Missouri


See also

  • Ballot measure lawsuits
  • Ballot measure readability
  • Ballot measure polls

External links

Footnotes

  1. 1.0 1.1 1.2 Missouri House of Representatives, "Bill Text," accessed September 9, 2025
  2. 2.0 2.1 KCUR, "Missouri House passes measure making it harder for voters to change state constitution," accessed September 9, 2025
  3. STLPR, "Missouri legislators kick off special session on redistricting and limiting ballot amendments," September 3, 2025
  4. 4.0 4.1 Missouri Senate, "SB 152," accessed September 19, 2025
  5. 5.0 5.1 Missouri Revisor, "116.090," accessed September 19, 2025
  6. 6.0 6.1 Note: This text is quoted verbatim from the original source. Cite error: Invalid <ref> tag; name "quotedisclaimer" defined multiple times with different content
  7. 7.0 7.1 7.2 7.3 Missouri Ethics Commission, "Campaign Finance Search," accessed September 23, 2025
  8. Redistricting Data Hub, "Missouri," accessed September 28, 2025
  9. Missouri Secretary of State, "Election Results," accessed September 28, 2025
  10. U.S. Supreme Court, "First National Bank of Boston v. Bellotti," April 26, 1978
  11. FEC, "MUR: 6678," April 30, 2015
  12. FEC, "Stop 1-186 to Protect Mining and Jobs ," accessed December 14, 2022
  13. Missouri House of Representatives, "HJR 3," accessed September 9, 2025
  14. Missouri Secretary of State - Elections and Voting, "Frequently Asked Questions," accessed April 4, 2023
  15. 15.0 15.1 15.2 Missouri Secretary of State, "Register to Vote," accessed April 4, 2023
  16. 16.0 16.1 16.2 NCSL, "State Profiles: Elections," accessed August 27, 2024
  17. BillTrack50, "MO HB1878," accessed April 4, 2023
  18. Missouri Secretary of State, "FAQs Voter Registration," accessed August 27, 2024
  19. Under federal law, the national mail voter registration application (a version of which is in use in all states with voter registration systems) requires applicants to indicate that they are U.S. citizens in order to complete an application to vote in state or federal elections, but does not require voters to provide documentary proof of citizenship. According to the U.S. Department of Justice, the application "may require only the minimum amount of information necessary to prevent duplicate voter registrations and permit State officials both to determine the eligibility of the applicant to vote and to administer the voting process."
  20. Missouri Secretary of State, "How To Vote," accessed October 7, 2025
  21. Missouri Secretary of State, "Do I need an ID to vote?" accessed October 7, 2025