FRANKFORT, Ky. — Ahead of the 2025 Kentucky legislative session, the League of Women Voters of Kentucky has released its latest report into issues they found with legislative transparency. It comes after the nonpartisan organization released its initial findings last year.

What You Need To Know

  • The Kentucky League of Women Voters issued a second report into government transparency after its initial findings last year

  • It outlines findings it believes hinders the public’s participation in decision making

  • One concern is the reported increased use of “shell” bills

  • The group also outlined recommended changes the state legislature should make

“It's time to move away from the practices and tactics that exclude the public and instead commit to a process that honors the principle of democracy,” said Jennifer Jackson, Kentucky League of Women Voters president.

The report outlines four key tactics used by the legislature it believes hinders the public’s ability to participate in decision-making:

  • Prefiling of bills is no longer allowed
  • “Shell” bill usage continues to rise
  • Committee meetings are not always held at their scheduled times
  • Inconsistent access to legislative action

Among them is a continued increase in the use of “shell” bills, which are filed with the intention of being swapped out closer to the end of the session. Data gathered by the League found only 24 shell bills were filed during the 2014 legislative session.

Four years later, it jumped to 80. This year, 140 “shell” bills were filed. 

“For example, Senate Bill 299 was originally filed as a negligible, two-word change," Jackson said. "However, it was later transformed almost overnight into a 282-page piece of legislation." 

That bill, filed by outgoing Senate Majority Floor Leader Damon Thayer, R-Georgetown, would ultimately become law and move horse racing and charitable gaming regulation away from the Public Protection Cabinet. 

House Majority Whip Jason Nemes, R-Louisville, said "shell bills" are part of the legislative process. 

“We don't use those very frequently ... I can't even remember the last time we've done it," Nemes said. "I know a lot of shell bills are filed. I don't know that a lot of them are used." 

The League calls on the legislature to avoid the use of shell bills and to restore the bill prefiling process. Other recommendations include:

  • Hold the three required bill “readings” on separate days after a standing committee sends the bill to the whole House or Senate for a vote
  • Make committee substitute bills available online at least one full day before the committee meeting where the substitute will be considered
  • Allow at least one full day between the last standing committee action on a bill and the House or Senate floor vote on the bill
  • Allow at least one full day between free conference committee revisions to a bill and the House and Senate floor votes on that changed bill
  • Transact most committee business during regularly scheduled meetings
  • Announce any additional committee meetings in the daily legislative calendar published the night before
  • Make records of legislative proceedings and committee meetings available to the public in a timely fashion

Nemes pointed to areas where he thinks improvements can be made.

“One thing I think we could do better is we could put our amendments that we are putting in committee, put them out to the public quicker," Nemes said. "We're working to get that done. I think that should happen." 

The League of Women Voters said it does not have any meetings scheduled with lawmakers concerning their report.

Related Stories