Final Audit Report of the 

Commission on the Minnesota 

Democratic-Farmer-Lrabor Party 

(January 1, 2007 - December 31, 2008) 

Why the Audit 

Was Done 

Federal law permits tfae 

Commission to conduct 

audits and field 

investigations of any 

political conunittee tfaat 

is required to file reports 

under tfae Federal 

Election Campaign Act 

(die Act). Tfae 

Coinmission generally 

conducts sucfa audits 

wfaen a coinmittee 

appears not to faave met 

the thresfaold 

requirements for 

substantial compliance 

with die Act.* Tfae audit 

determines wfaetfaer tfae 

coinmittee complied 

witfa tfae limitations, 

profaibitions and 

disclosure requirements 

of tfae Act. 

Future Action 

Tfae Commission may 

initiate an enforcement 

action, at a later time, 

witfa respect to tfae matter 

discussed in tfais report. 

About the Committee (p. 2) 

Tfae Minnesota Democratic-Farmer-Labor Party is a state party 

committee witfa faeadquarters in St. Paul, Minnesota. For more 

information, see tfae cfaart on tfae Committee Organization, p. 2. 

Financial Activity (p. 3) 

• Receipts 

o Individual Contributions $ 1.839.117 

o Political Committee Contributions 2.233.845 

o Transfers from Affiliates 5.898.356 

o Transfers from Non-federal 2.394.428 

Accounts 

o Recount Fund Contributions 694.850 

o Offsets and Otfaer Receipts 1.042.345 

Total Receipts $ 14,102,941 

Disbursements 

o Operating Expenditures $ 6,458,425 

o Federal Election Activity 6,398,033 

o Transfers to Non-federal Accounts 287,061 

o Contributions to Candidates 20,000 

o Coordinated Expenditures 266,844 

o Recount Expenditures 660,719 

Total Disbursements $ 14,091,082 

Commission Finding (p. 4) 

• Over-funding of Federal Accounts by Non-federal Accounts 

Additional Issue (p. 4) 

• Misstatement of Financial Activity 

* 2 U.S.C. §438(b). 
Final Audit Report of the 

Commission on the Minnesota 

Democratic-Farmer-Labor Party 

(January 1, 2007 - December 31, 2008) 
Table of Contents 

Page 

Part I. Background 

Autfaority for Audit 1 

Scope of Audit 1 

Audit Hearing 1 

Part II. Overview of Committee 

Committee Organization 2 

Overview of Financial Activity 3 

Part III. Smnmaries 

Commission Finding 4 

Additional Issue 4 

Part IV. Commission Finding 

Over-funding of Federal Accounts by Non-federal Accounts 5 

Part V. Additional Issue 

Misstatement of Financial Activity 9 
Parti 

Background 

Authority for Audit 

Tfais report is based on an audit of tfae Minnesota Democratic-Farmer-Labor Party 

(MNDFL), undertaken by tfae Audit Division of tfae Federal Election Commission (tfae 

Commission) in accordance witfa tfae Federal Election Campaign Act of 1971, as 

amended (tfae Act). Tfae Audit Division conducted tfae audit pursuant to 2 U.S.C. 

§438(b), wfaicfa permits tfae Commission to conduct audits and field investigations of any 

political committee tfaat is required to file a report under 2 U.S.C. §434. Prior to 

conducting any audit under tfais subsection, tfae Commission must perform an intemal 

review of reports filed by selected committees to determine wfaetfaer tfae reports filed by a 

particular committee meet tfae tfaresfaold requirements for substantial compliance witfa die 

Act. 2 U.S.C. §438(b). 

Scope of Audit 

Following Commission-approved procedures, tfae Audit staff evaluated various risk 

factors and as a result, tfais audit examined: 

1. tfae receipt of excessive contributions and loans; 

2. tfae receipt of contributions from profaibited sources; 

3. tfae disclosure of contributions received; 

4. die disclosure of disbursements, debts and obligations; 

5. tfae disclosure of expenses allocated between federal and non-federal accounts; 

6. tfae consistency between reported figures and bank records; 

7. tfae completeness of records; and 

8. otfaer committee operations necessary to tfae review. 

Audit Hearing 

Tfae MNDFL declined tfae opportunity for an audit faearing. 
Part II 

Overview of Committee 

Committee Organization 

Important Dates 

• Date of Registration July 15,1975' 

• Audit Coverage January 1,2007 - December 31,2008 

Headquarters St. Paul, Minnesota 

Bank Information 

• Bank Depositories Tfaree 

• Bank Accounts 13 Federal Accoimts 

Five Non-federal Accounts 

Treasurer 

• Treasurer Wfaen Audit Was Conducted Lori Sellner [tfarougfa Febmary 8, 2011] 

Tfaomas Hamilton [as of Febmary 9,2011] 

• Treasurer During Period Covered by Audit William J. Davis [dirougfa Febmary 18,2009] 

Management Information 

• Attended FEC Campaign Finance Seminar Yes 

• Wfao Handled Accounting and 

Recordkeeping Tasks 

Paid Staff 

^ The committee registered with the Secretary of the Senate as the Minnesota Dollars for Democrats (a federal 

committee of the Minnesota Democratic-Farmer-Labor State Party). In 1980, the committee filed an Amended 

Statement of Organization, changing the name of the committee to the Minnesota Democratic-Farmer-Labor Party. 
Overview of Financial Activity 

(Audited Amounts) 

Cash-on-hand @ January 1,2007 $ 225,904 

Receipts 

o Individual Contributions $ 1,839,117 

o Political Committee Contributions 2,233,845 

o Transfers from Affiliates 5,898,356 

o Transfers from Non-federal Accounts 2,394,428 

0 Recount Fund Contributions 694,850 

o Offsets and Other Receipts 1,042,345 

Total Receipts $ 14,102,941 

Disbursements 

o Operating Expenditures $ 6,458,425 

o Federal Election Activity 6,398,033 

o Transfers to Non-federal Accoimts 287,061 

o Contributions to Candidates 20,000 

o Coordinated Expenditures 266,844 

o Recount Expenditures 660,719 

Total Disbursements $ 14,091,082 

Cash-on-hand @ December 31,2008 $ 237,763 
Part III 

Summaries 

Commission Finding 

Over-funding of Federal Accounts by Non-federal Accounts 

During audit fieldwork, an analysis of the MNDFL's transfers from its non-federal accoimts 

indicated tfaat tfae MNDFL may faave overfunded its federal accoimts by as mucfa as $277,103. 

Tfae possible overfunding resulted from unsupported transfers from tfae non-federal accounts to 

tfae federal accoimts, an overfundmg of tfae payroll accoimt for tfae non-federal portion of payroll, 

and reported federal activity paid from tfae non-federal accounts. 

In response to tfae Interim Audit Report reconunendation, tfae MNDFL submitted additional 

documentation, in conjunction widi its amended reports, wfaicfa demonstrated tfaat tfae MNDFL 

did not overfund its federal accounts. 

Tfae Commission approved a finding tfaat tfae MNDFL demonstrated tfaat it did not overfund its 

federal accounts. (For more detail, see p. 5.) 

Additional Issue 

Misstatement of Financial Activity 

During audit fieldwork, a comparison of tfae MNDFL's reported financial activity witfa its bank 

records revealed a misstatement of receipts and disbursements in calendar years 2007 and 2008. 

Tfae misstatements were due mainly to unreported transfers from tfae non-federal accounts to tfae 

payroll accoimt and unreported receipts and operating expenditures. For 2007, tfae MNDFL 

understated receipts by $441,228 and disbursements by $469,230. For 2008, die MNDFL 

understated receipts by $1,303,611 and disbursements by $1,205,799. In response to tfae Interim 

Audit Report recommendation, die MNDFL amended its reports to materially conect die 

misstatements noted above except for tfae reporting of tfae payroll account transactions related to 

tfae 100 percent non-federal employees. 

Also, tfae MNDFL submitted documentation to sfaow tfaat an unreported, apparent profaibited 

contribution it received may, in fact, faave been permissible. However, tfae MNDFL did not 

include tfais contribution in its amended reports. 

Tfae Commission did not approve tfae Audit staffs recommended finding by tfae required four 

votes. 

Pursuant to Coinmission Directive 70.^ tfais matter is discussed in tfae "Additional Issue" section. 

(For more detail, see p. 9.) 

Available at http://www.fec.gov/directives/directive_70.pdf. 
Part IV 

Commission Finding 

I Over-funding of Federal Accounts by Non-federal Accoimts | 

Summary 

During audit fieldwork, an analysis of tfae MNDFL's transfers from its non-federal accounts 

indicated tfaat tfae MNDFL may faave overfunded its federal accounts by as mucfa as $277,103. 

Tfae possible overfunding resulted from unsupported transfers from tfae non-federal accounts to 

tfae federal accounts, an overfunding of tfae payroll account for tfae non-federal portion of payroll, 

and reported federal activity paid from tfae non-federal accounts. 

In response to tfae Interim Audit Report recommendation, tfae MNDFL submitted additional 

documentation, in conjunction witfa its amended reports, wfaicfa demonstrated tfaat tfae MNDFL 

did not overfund its federal accounts. 

Tfae Commission approved a finding tfaat tfae MNDFL demonstrated tfaat its non-federal accounts 

did not overfund its federal accounts. 

Legal Standard 

A. Accounts for Federal and Non-federal Activity. A party committee tfaat finances political 

activity in coimection witfa botfa federal and non-federal elections may establisfa two accounts 

(federal and non-federal) and allocate sfaared expenses - expenses tfaat simultaneously support 

federal and non-federal election activity - between tfae two accounts. Altematively, the 

coinmittee may conduct both federal and non-federal activity from one bank account, whicfa is 

considered a federal account. 11 CFR §102.5(a)(l)(i). 

B. Federal v. Non-federal Account. Tfae federal account may contain only tfaose funds tfaat are 

permissible under tfae federal election law. Tfae non-federal account may contain funds tfaat are 

not permitted under die federal law (but are legal under state law), sucfa as contributions tfaat 

exceed tfae limits of tfae federal law and contributions from otfaerwise profaibited sources, sucfa as 

corporations and labor organizations. 11 CFR §102.5(a)(l)(i) and (a)(3). 

C. Transfers. Generally, a political committee may not transfer funds from its non-federal 

account to its federal account, except wfaen tfae coinmittee follows specific rules for paying for 

sfaared federal/non-federal election activity. 11 CFR §§102.5(a)(l)(i) and 106.5(g). 

D. Paying for Allocable Expenses. Tfae Commission regulations offer party conunittees two 

ways to pay for allocable, sfaared federal/non-federal expenses: 

• Tfaey may pay tfae entire amount of tfae sfaared expense from tfae federal account and 

transfer fimds from tfae non-federal account to tfae federal account to cover tfae nonfederal sfaare of tfaat expense; or 

• tfaey may establisfa a separate allocation account into wfaicfa tfae committee deposits funds 

from botfa its federal and non-federal accoimts solely for tfae purpose of paying tfae 
allocable expenses of sfaared federal/non-federal activities. 11 CFR §106.5(g)(l)(i) and 

(ii)(A). 

E. Reporting Allocable Expenses. A political committee tfaat allocates federal/non-federal 

expenses must report eacfa disbursement it makes from its federal account (or separate allocation 

account) to pay for a sfaared federal/non-federal expense. Committees report tfaese kinds of 

disbursements on Scfaedule H-4. 11 CFR §104.17(b). 

F. Salaries and Wages. Committees must keep a montfaly log of tfae percentage of time eacfa 

employee spends in connection witfa a federal election. Employees wfao spend 25 percent or less 

of tfaeir compensated time in a given montfa on federal election activity or on activities in 

coimection witfa a federal election must be paid only from tfae federal account, or tfaeir wages 

must be allocated as an administrative cost. 11 CFR § 106.7(d)(1). 

Facts and Analsrsis 

A. Facts 

During audit fieldwork, tfae Audit staff identified a possible overfimding of MNDFL's federal 

activity witfa funds from its non-federal accounts. Tfae overfunding was calculated to be 

$277,103 and was based on tfae following.* 

1. Underfunding of tfae non-federal portion of sfaared activity. 

Tfae MNDFL reported a total of $1,055,437 as tfae non-federal sfaare of allocated activity 

and reported $1,041,688 in transfers from tfae non-federal accounts to tfae federal 

accounts, resulting in an underfunding of $13,748. 

2. Overfunding of non-federal payroll. 

Tfae MNDFL used a single payroll account to pay employee salaries (botfa 100 percent 

federal and 100 percent non-federal; no employee salaries were allocated) and related 

taxes. Tfae MNDFL paid employee benefits out of a federal administrative account and 

transferred funds from tfae federal and non-federal accounts to tfae payroll account to pay 

salaries and taxes. Tfae MNDFL did not report any of tfae non-federal payroll activity. 

Tfae MNDFL's total non-federal payroll expenditures of $1,129,157 included $756,744 

for salaries, $226,155 for taxes and $146,257 for benefits. Tfae MNDFL transferred a 

total of $1,215,520 from tfae non-federal accounts to tfae payroll account for tfae nonfederal sfaare of payroll, resultmg in an overfunding of $86,363 ($1,215,520 - $1,129,157) 

for tfae non-federal portion. 

3. Reported federal activity paid from non-federal accounts. 

Tfae MNDFL reported $51,105 as federal activity paid from tfae non-federal accounts. 

Due to tfae lack of supporting documentation available during audit fieldwork, tfae Audit 

staff was initially unable to determine wfaetfaer tfae MNDFL reimbursed tfae non-federal 

accoimts for any of tfais reported federal activity. 

^ The Audit staff's review of the transfer activity between the committee's federal and non-federal accounts was 

initially limited because the MNDFL did not maintain adequate records to support the transfers. 
4. Unsupported transfers from non-federal accounts. 

Tfae MNDFL made unsupported transfers from tfae non-federal accounts to tfae federal 

accounts totaling $38,263 for 2007 and $115,120 for 2008. Due to die lack of supporting 

documentation available during audit fieldwork, tfae Audit staff was unable to determine 

wfaetfaer tfae transfers from tfae non-federal account were for tfae non-federal portion of 

sfaared activity. 

Tfae Audit staff identified a total of $103,450 in transfers from tfae federal accounts to nonfederal accounts tfaat lacked adequate supporting documentation detailing tfae purpose of tfae 

transfer. If tfae MNDFL supplies documentation that shows the transfers were related to any of 

tfae activity noted above, the amoimt of the overfunding by tfae non-federal accoimts may be 

reduced. 

In sununary, tfae apparent overfunding by tfae non-federal accounts identified in fieldwork was 

calculated as follows. 

Underfunding of non-federal portion of sfaared activity ($ 13,748) 

Overfunding of non-federal payroll 86,363 

Reported federal activity paid from non-federal accounts 51.105 

Unsupported transfers from non-federal accounts 153.383 

Total over-funding by tfae non-federal account $ 277.103 

B. Interim Audit Report & Audit Division Recommendation 

At tfae exit conference, die Audit staff provided tfae MNDFL representatives witfa workpapers 

detailing tfae transfer activity noted above. Tfae MNDFL representatives provided no additional 

comments. 

Tfae Audit staff reconunended tfaat tfae MNDFL provide documentation tfaat sfaowed: 

• tfae MNDFL did not make disbursements from tfae non-federal accounts for tfae purpose 

of financing federal activity; 

• reported federal activity paid from tfae non-federal accounts was reimbursed by tfae 

federal accoimts; and 

• tfae MNDFL made unsupported transfers from tfae non-federal accounts for purposes 

otfaer tfaan federal activity. 

In addition, tfae Audit staff recommended tfaat tfae MNDFL provide any additional comments 

and/or documentation tfaat detailed tfae purpose of tfae transfers of $103,450 made from die 

federal accounts to tfae non-federal accounts. 

If tfae MNDFL was unable to provide any documentation to reduce tfae amount of overfunding 

noted above, tfae Audit staff recommended tfaat tfae MNDFL reimburse $277,103 to tfae nonfederal account. 

C. Committee Response to Interim Audit Report 

In response to tfae Interim Audit Report reconunendation. tfae MNDFL filed amended reports tfaat 

included tfae transfers from tfae non-federal account to tfae federal account for tfae non-federal 
sfaare of employee benefits payments. Tfae MNDFL submitted additional documentation, wfaicfa 

addressed tfae overfunding of tfae payroll account for tfae non-federal portion of tfae payroll, the 

unsupported transfers from the non-federal accounts and tfae apparent payment of federal activity 

by tfae non-federal account. Tfae following details tfae changes resulting from tfae MNDFL's 

response. 

1. Tfae underfunding of tfae non-federal sfaare of allocable activity increased from $13,748 to 

$120,960 because of tfae disclosure of previously unreported payments for allocable 

activity, including tfae non-federal sfaare of employee benefits, and transfers from tfae nonfederal account to die federal account for tfae non-federal sfaare of employee benefits 

payments. Tfae non-federal sfaare of allocable activity increased from $1,055,437 to 

$1,252,561 and tfae transfers from tfae non-federal account for tfais activity increased from 

$1,041,688 to $1,131,601. 

2. Tfae overfunding of die payroll account for tfae non-federal portion of tfae payroll 

increased from $86,363 to $102,663. Tfae increase was due to tfae removal of a transfer 

from tfae non-federal accoimt of $20,000, wfaicfa was listed twice, and tfae addition of 

$36,300 for a transfer tfaat was deposited into a federal account in enor, and tfaen 

subsequentiy transfened from tfae federal account to tfae payroll accoimt. 

3. Tfae MNDFL's submission of additional documentation, its filing of amended disclosure 

reports and die mcrease in tfae overfunding of tfae non-federal sfaare of allocable activity 

discussed above cleared tfae unsupported transfers of $153,383 from tfae non-federal 

accoimt. 

4. Tfae apparent payment of federal activity by tfae non-federal account was decreased from 

$51,105 to $8,833. Tfae MNDFL demonstrated diat it faad properiy paid $31,529 from die 

non-federal account, $16,785 was allocable activity ($6,042, or 36 percent, is tfae federal 

sfaare) and $2,791 was 100 percent federal activity. The amended reports filed by the 

MNDFL corrected tfae misstatement of tfais activity. 

In summary, tfae response to tfae Interim Audit Report resulted in tfae following. 

Underfunding of non-federal portion of sfaared activity ($ 120.960) 

Overfunding of non-federal payroll 102.663 

Unsupported transfers from non-federal accounts -0-

Reported federal activity paid from non-federal accounts 8.833 

Total under-funding by tfae non-federal account ($ 9.464) 

As a result of its response to tfae Interim Audit Report Recommendation, tfae MNDFL 

sufficientiy demonstrated tfaat it did not overfund its federal accounts witfa funds from its nonfederal accounts. 

D. Draft Final Audit Report 

In tfae Draft Final Audit Report, tfae Audit staff acknowledged tfaat tfae MNDFL amended its 

reports to demonstrate tfaat it did not overfund its federal accounts witfa funds from its nonfederal accounts. 
E. Committee Response to the Draft Final Audit Report 

In response to the Draft Final Audit Report, tfae MNDFL supported tfae Audit staffs conclusion 

tfaat tfae non-federal accounts did not overfund tfae federal accounts. 

Commission Conclusion 

On October 18,2012, tfae Commission considered tfae Audit Division Recommendation 

Memorandum in wfaicfa tfae Audit staff recommended tfaat tfae Commission adopt a finding tfaat 

tfae MNDFL faas demonstrated tfaat its non-federal accounts did not overfund its federal accounts. 

Tfae Commission approved tfae Audit staffs recommendation. 

Partv 

Additional Issue 

Misstatement of Financial Activity 

Summary 

During audit fieldwork, a comparison of tfae MNDFL's reported financial activity witfa its bank 

records revealed a misstatement of receipts and disbursements in calendar years 2007 and 2008. 

Tfae misstatements were due mainly to unreported transfers from tfae non-federal accounts to tfae 

Payroll account and unreported receipts and operating expenditures. For 2007, tfae MNDFL 

understated receipts by $441,228 and disbursements by $469,230. For 2008. die MNDFL 

understated receipts by $1,303,611 and disbursements by $1,205,799. In response to tfae Interim 

Audit Report recommendation, tfae MNDFL amended its reports to materially correct tfae 

misstatements noted above except for tfae reporting of tfae Payroll account transactions related to 

tfae 100% non-federal employees. 

Also, tfae MNDFL submitted documentation to sfaow tfaat an unreported apparent profaibited 

contribution it received may, in fact, faave been permissible. However, tfae MNDFL did not 

include tfais contribution in its amended reports. 

Tfae Coinmission did not approve tfae Audit staff's recommended finding by tfae required four 

votes. Pursuant to Conunission Directive 70, tfais matter is discussed in tfae "Additional Issue" 

section. 

Legal Standard 

A. Contents of Reports. Eacfa report must disclose: 

• die amount of casfa-on-faand at die beginning and end of tfae reporting period; 

• tfae total amount of receipts for die reporting period and for tfae calendar year; 

• die total amount of disbursements for tfae reporting period and for tfae calendar year; and 

• certain transactions tfaat require itemization on Scfaedule A (Itemized Receipts) or 

Scfaedule B (Itemized Disbursements). 2 U.S.C. §434(b)(l). (2), (3). (4) and (5). 
10 

B. Receipt of Prohibited Contributions - General Prohibition. Candidates and committees 

may not accept contributions (in the form of money, in-kind contributions or loans) from tfae 

treasury funds of tfae following profaibited sources: 

• corporations (tfais means any incorporated organization, including a non-stock 

corporation, an incorporated membersfaip organization, and an incorporated cooperative); 

• labor organizations; or 

• national banks. 2 U.S.C. §441b. 

C. Contributions by Limited Liability Companies (LLC). A limited liability company is a 

business entity tfaat is recognized as sucfa under tfae laws of tfae state in wfaicfa it is establisfaed. 

An LLC tfaat elects to be treated as a corporation by tfae Intemal Revenue Service under 26 CFR 

301.7701-3 sfaall be considered a corporation pursuant to 11 CFR Part 114. An LLC tfaat makes 

a contribution to a candidate or committee sfaall provide information as to faow tfae contribution is 

to be attributed and affirm tfaat it is eligible to make tfae contribution. 11 CFR §110.1(g). 

Facts and Analysis 

A. Facts 

During audit fieldwork, tfae Audit staff reconciled tfae MNDFL's reported activity widi its bank 

records and identified a misstatement of receipts and disbursements for calendar years 2007 and 

2008. Tfae following cfaarts detail tfae discrepancies between tfae totals on tfae MNDFL's 

disclosure reports and bank records. 

2007Activity 

Reported Bank Records Discrepancy 

Beguming Casfa Balance 

@ January 1,2007 

$212,947 $225,904 $12,957 

Understated 

Receipts $1,381,869 $1,823,097 $441,228 

Understated 

Disbursements $1,409,884 $1,879,114 $469,230 

Understated 

Ending Casfa Balance @ 

December 31, 2007 

$184,932 $169,887 $15,045 

Overstated 

2008 Activity 

Reported Bank Records Discrepancy 

Beginning Casfa Balance 

@ January 1,2008 

$184,932 $169,887 $15,045 

Overstated 

Receipts $10,976,233 $12,279,844 $1,303,611 

Understated 

Disbursements $11,006,169 $12,211,968 $1,205,799 

Understated 

Ending Casfa Balance @ 

December 31,2008 

$154,996 $237,763 $82,767 

Understated 
11 

Tfae discrepancies in financial activity noted above occurred primarily because tfae MNDFL did 

not report certain payroll transactions involving tfae payroll account and tfae federal 

administrative accounts. Tfae MNDFL separated its employees into two classes: 100 percent 

federal and 100 percent non-federal.^ A MNDFL representative stated tfaat tfae MNDFL 

establisfaed die system to ease tfae administrative burden of payroll processing. If an employee 

spent any time working on federal activity during tfae pay period, fae or sfae was paid 100 percent 

from federal funds transferred to tfae payroll account and tfae MNDFL disclosed tfae salary 

payments on Scfaedule B. If an employee spent tfae pay period working solely on non-federal 

activity, tfae MNDFL paid faim or faer 100 percent from non-federal funds transferred to tfae 

payroll account and did not report die salary and related costs. 

Tfae MNDFL paid all salaries and related employee taxes from one payroll accoimt administered 

by MNDFL staff and paid employee faealtfa insurance and retirement benefits from tfae federal 

administrative accounts. Transfers from tfae federal and non-federal accounts funded tfae payroll 

account. Tfae Audit staff included tfae payroll account as a federal account.^ Tfae MNDFL 

disclosed only tfae federal activity paid out of tfae payroll account and tfae portion of benefits 

relating to federal employees paid from tfae federal administrative accounts. An analysis of tfae 

salaries paid to all employees during tfae audit period sfaowed tfaat tfae MNDFL paid $3,176,793 

(81 percent) of tfae salaries as 100 percent federal and $756,744 (19 percent) as 100 percent nonfederal. Subsequent to tfae period under audit, tfae MNDFL establisfaed a separate non-federal 

payroll account. 

Included among tfae 2008 unreported in-kind contributions was a $10,000 contribution from 

Soudi Clinton Street Investments, LLC (SCSI). During die 2008 Democratic National 

Convention faeld in Denver, Colorado, tfae MNDFL contracted witfa tfae Four Points by Sfaeraton 

Denver Soutfaeast to provide catering services for tfae Minnesota State delegation. On August 24, 

2008, tfae conunittee paid tfae faotel a deposit of $17,634. Tfae faotel provided catering services on 

August 25 - 29, 2008, totaling $36,943, leaving a balance due of $19,309. On September 22. 

2008, tfae faotel applied a $10,000 cfaeck drawn on die operating account of SCSI to die 

MNDFL's account. Tfae MNDFL did not report tfais in-kind contribution and during fieldwork 

tfae Audit staff did not find any documentation ui tfae MNDFL's files to sfaow tfaat SCSI was 

permitted to make tfae contribution. 

B. Interim Audit Report & Audit Division Recommendation 

At tfae exit conference, tfae Audit staff provided tfae MNDFL representatives witfa workpapers 

detailing tfae misstatements of financial activity, including tfae apparent profaibited contribution. 

Counsel for tfae MNDFL stated tfaat tfae payroll accoimt was neitfaer a federal nor a non-federal 

account, but merely a pass-tfarougfa account establisfaed to reduce tfae administrative workload of 

tfae MNDFL, and only tfae expenditures related to federal activity needed to be reported.^ 

^ There was no allocated payroll. 

^ A federal account means an account at a campaign depository that contains funds to be used in connection with a 

Federal election. 11 CFR §300.2(f). 

^ In the Final Audit Report of the Commission on the Georgia Federal Elections Committee (2006), where funds 

were transferred from federal and non-federal accounts to a payroll escrow account at the request of a third party 

payroll vendor that could not draw funds from two different accounts, the Commission concluded that the conunittee 

did not have to further amend its reports in relation to transactions involving the payroll escrow account. 
12 

Tfae Audit staff and tfae MNDFL representatives discussed die contribution from SCSI before 

and at tfae exit conference. Tfae Audit staff requested tfaat MNDFL provide information and/or 

documentation to sfaow tfaat tfae payment was eitfaer not a contribution or tfaat SCSI was 

permitted to make a contribution. Tfae MNDFL faad not submitted any additional documentation 

conceming tfais matter, as of tfae transmittal of tfae Interim Audit Report to die MNDFL. 

Tfae Interim Audit Report reconunended tfaat tfae MNDFL: 

• amend its reports to conect tfae misstatements for 2007 and 2008 as noted above; 

• amend its most recent report to correct tfae casfa-on-faand balance witfa an explanation tfaat 

tfae cfaange resulted from a prior-period audit adjustment; 

• reconcile tfae casfa balance of its most recent report to identify any subsequent 

discrepancies tfaat may affect tfae adjustment recommended by tfae Audit staff; and 

• provide evidence to sfaow tfaat tfae unreported in-kind payment made by SCSI was eitfaer 

not a contribution or tfaat SCSI was permitted to make a contribution. Absent sucfa 

evidence, tfae Audit staff reconunended diat tfae MNDFL report tfae in-kind contribution 

and refimd $10,000 to SCSI. 

C. Committee Response to Interim Audit Report 

In response to tfae Interim Audit Report recommendation relating to tfae misstatement of financial 

activity, tfae MNDFL amended its reports to materially correct tfae misstatements noted above 

except for tfae reporting of tfae payroll account transactions related to tfae 100 percent non-federal 

employees. Based on tfae amended reports filed in response to Interim Audit Report, receipts 

remained understated by $395,072 for 2007 and $857,747 for 2008. Disbursements remained 

understated by $433,311 for 2007 and $701,688 for 2008. 

Tfae MNDFL stated tfaat it would not amend its reports to include tfae non-federal payroll account 

activity at tfais time because it believed tfae account is not a federal account but radier a "passtfarou^ account" not intended to pay any expenses otfaer tfaan tfae payroll expenses tfaat are 

faandled in-faouse by tfae conunittee. Tfae MNDFL believed tfaat to require disclosure of tfaese 

amounts would result in an artificial increase of its federal activity and be confusing to tfae 

readers of its disclosure reports. Tfae MNDFL referenced tfae Conunission's action previously 

taken in regard to tfae Georgia Federal Elections Coinmittee (GFEC), in wfaicfa tfae Commission 

did not require GFEC to report tfae non-federal payroll activity. 

In tfae case of tfae GFEC, a separate payroll account was created in order to facilitate a single 

payment to a payroll-processing vendor. Tfae Commissioners advanced different rationales for 

approving tfae motion tfaat tfae GFEC did not faave to report die non-federal activity. Some 

Commissioners indicated agreement witfa tfae GFEC's argument tfaat a payroll escrow account is 

neitfaer a federal nor non-federal account, nor tfae "functional equivalent" of an allocation 

account. Anodier Commissioner did not agree witfa GFEC's argument, but determined tfaat nonfederal payroll activity did not need to be disclosed in tfais instance based on specific equitable 

considerations, including tfae fact tfaat GFEC did not overfund tfae payroll account from its nonfederal accounts. Conversely, tfae audit of tfae MNDFL identified an overfunding of tfae payroll 

account by the non-federal accoimts totaling $102,663. (See Conunission Finding above.) 

The Audit staff maintained tfaat tfae MNDFL's payroll account was a federal account because tfae 

MNDFL used tfae account in a maimer similar to an "allocation account." Unlike tfae payroll 
13 

escrow account establisfaed by tfae GFEC. tfae MNDFL accoimt was not created at tfae request of 

a tfaird-party vendor. Altfaougfa tfae MNDFL did not allocate any payroll disbursements between 

federal and non-federal funds (employees were identified as either 100 percent federal or 100 

percent non-federal), funds were transferred from its federal and non-federal accounts to the 

payroll accoimt to pay salaries and taxes. 

In addition, tfae MNDFL transfened funds from its non-federal accoimts to its federal 

administrative account to pay for tfae non-federal sfaare of employee benefits. Tfae MNDFL 

initially did not report tfaese transfers and tfae Audit staff included tfaem in tfae misstatement of 

financial activity presented in tfae Interim Audit Report. However, in response to tfae Interim 

Audit Report, tfae MNDFL amended its reports to include tfaese transfers and to report tfae nonfederal sfaare of tfae benefits paid from its federal administrative account. Tfae Audit staff 

believed tfaere was no distinction between tfae MNDFL's federal administrative account and its 

payroll account in die requirement to report tfae non-federal activity. Tfaerefore. non-federal 

salaries and taxes from die MNDFL's payroll account also required reporting. 

In response to the Interim Audit Report recommendation relating to tfae unreported in-kind 

contribution, tfae MNDFL submitted documentation to sfaow tfaat tfae apparent profaibited 

contribution it received may. in fact, faave been permissible. Tfae documentation appeared to 

indicate tfaat tfae MNDFL received a permissible $10,000 in-kind contribution from die Denver 

2008 Convention Host Conimittee (DCHC). However, tfae MNDFL's amended reports filed in 

response to tfae Interim Audit Report did not include this in-kind contribution. 

D. Draft Final Audit Report 

In the Draft Final Audit Report, tfae Audit staff acknowledged tfaat tfae MNDFL amended its 

reports to materially conect tfae misstatements presented in tfae Interim Audit Report, witfa tfae 

exception of die transactions relating to die non-federal payroll activity. Also, tfae MNDFL did 

not report tfae in-kind contribution from die DCHC. 

E. Committee Response to the Draft Final Audit Report 

In response to tfae Draft Final Audit Report, die MNDFL acknowledged filing amendments to its 

2007 - 2008 reports to correct certain items and casfa-on-faand amounts. Tfae MNDFL did not, 

faowever, agree witfa tfae Audit staffs conclusion tfaat tfae payroll account was a federal accoimt 

requiring all activity (federal and non-federal) to be disclosed. Tfae MNDFL contended tfaat tfae 

payroll account was neitfaer a federal nor a non-federal account but ratfaer an "escrow account" 

used to transmit payroll from its federal and non-federal accounts, similar to tfae account used by 

tfae GFEC tfaat was an issue in tfae 2006 election cycle. 

Tfae MNDFL stated tfaat tfae payroll accoimt was establisfaed to address tfae need to pay 

employees and tfae Intemal Revenue Service from one accoimt. Wfaile tfae MNDFL 

acknowledged tfaat it "apparently and inadvertently" overfunded tfae non-federal payroll during 

the 2008 election cycle, the overfunding was offset by tfae underfunding of tfae non-federal sfaare 

of overall expenses. Tfae MNDFL furtfaer stated tfaat it "believe[d] tfaat tfaese were funds intransit, and were ultimately used only for non-federal activity" and none of tfae funds "were used 

to subsidize any federal activity." 
14 

Tfae Audit staff maintained tfaat tfae MNDFL used tfae payroll account in a manner similar to an 

"allocation account." Altfaoudi tfae MNDFL did not report any allocated salary and payroll tax 

expenditures on Scfaedule H4Z wfaen viewed from a global perspective eacfa pay period involved 

an allocation of federal and non-federal salaries and taxes paid from one account. Tfae payroll 

account was funded by transfers from federal and non-federal accounts. As stated in tfae 

Commission Finding above, tfae MNDFL did not overfund tfae non-federal sfaare of overall 

expenses, but an analysis of tfae receipts and disbursements from tfae payroll account sfaowed tfaat 

there were insufficient federal funds m the payroll account to pay for tfae total reported federal 

expenditures tfaat resulted in an overfunding of tfae federal sfaare of salaries and taxes by tfae nonfederal accoimts. 

In response to tfae issue of tfae unreported in-kind contribution of $10,000. tfae MNDFL 

acknowledged tfaat wfaile tfae funds applied to tfae MNDFL's catering bill "may faave derived 

from funds tfaat were paid by tfae Denver 2008 Convention Host Conunittee to tfae faotel, it [was] 

not clear, and in [tfaeir] view, unlikely, tfaat tfais payment was, in fact, an in-kuid contribution." 

Based on oral discussions witfa tfae representatives of tfae Denver Host Conunittee (wfaicfa faas 

terminated) and otfaer information gatfaered, tfae MNDFL believed tfaat tfae funds most likely 

represented a refund (altfaougfa tfae MNDFL provided no details or documentation in its response) 

for a cancelled event faonoring tfae Minnesota delegation tfaat was to be paid by tfae Denver Host. 

Tfae purported refund, tfarougfa a series of transactions, wound up credited to tfae MNDFL's 

catering bill at tfae Sfaeraton Four Points Denver Soutfaeast. Tfae MNDFL stated tfaat it could not 

determine wfaetfaer tfae credit to its account was intentional or accidental, and tfaat it could not 

determine tfae original source of tfae funds. 

Tfae Audit staff concluded tfaat tfae MNDFL received an in-kind contribution from an unknown 

source tfaat was not reported or disgorged to tfae U.S. Treasury wfaen tfae permissibility of tfae 

fimds could not be confirmed. 

Commission Conclusion 

On October 4 and 18,2012, tfae Commission considered tfae Audit Division Reconunendation 

Memorandum in wfaicfa tfae Audit Division recommended tfaat tfae Commission adopt a finding 

tfaat tfae MNDFL misstated 2007 - 2008 activity and failed to report non-federal salaries and 

taxes paid from its payroll account and misstated activity in 2008 and failed to report an in-kind 

contribution in tfae amount of $10,000. Since tfae source and permissibility of tfae contribution 

remained in question, tfae Audit staff furtfaer reconunended tfaat tfae Commission request tfaat tfae 

MNDFL disgorge $10,000 to die U.S. Treasury. 

Tfae Commission did not approve tfae Audit staffs recommended finding by tfae required four 

votes. Tfae Commission could not reacfa a consensus on tfae recommended finding tfaat tfae 

MNDFL was required to report tfae non-federal salaries and taxes paid from tfae payroll account 

and was required to report an in-kind contribution in die amount of $10,000. Some 

Commissioners voted to approve tfae recommended finding. Otfaer Commissioners determined 

^ Federal and non-federal employee benefits were paid from a federal administrative account and reported on 

Schedule H4, Disbursements for Federal/Nonfederal Activity. 
15 

diat tfae situation was analogous to tfaat in tfae GFEC audit, dius reporting of non-federal 

expenditures paid from tfae payroll account was not required. 

Pursuant to Conunission Directive 70, tfais matter is presented as an "Additional Issue."