Cash and the city: city workers give thousands their bosses, alderman and ward organizations. Some say it's just part of the job.

When Jamie Andrade Jr. paid off some the 929,555.82 in personal loans he'd received since 1999, the money didn't go to a bank. Nor did it end up a credit union. The money was turned to the political campaign funds of Citizens for Mell and the 33rd Ward Regular Democratic Organization. 33rd Ward Alderman Richard F. Mell is Andrade's lender--and his boss.

Andrade wouldn't say what the loans were for, except that he's since repaid the debt in campaign contributions. From January 1999 to March 2006, according to state campaign finance records, Andrade made six contributions to Citizens for Mell and five contributions to the 33rd Ward Regular Democratic Organization for a combined total of 921,605.82. The records show that five of those contributions--for a total of $18,055.82--were designated as loan repayments from Andrade.

"They borrowed me the money. Then I gave it back," said Andrade, who works in Mell's office as a legislative aide and earns $77,772 a year. He was first hired by the city in 1998.

Not including the aldermen themselves, Andrade is just one of 1,874 city workers who spent nearly 92.2 million during a seven-year period padding the campaign coffers of Chicago aldermen and ward organizations, including ones controlled by their own bosses.

The most any one worker gave was $37,049.68--from Emma J. Robinson, chief of staff for 28th Ward Alderman Ed H. Smith. All but $600 of that money went to Smith as interest-free personal loans, Robinson said. Smith has repaid $28,016.43, according to state records.

The second-highest amount came from legislative aide Nadine Zapolsky. According to state disclosure documents, she gave $26,207.52 over 26 months to the 12th Ward Democratic Organization. "Nothing came out of my pocket. Never," Zapolsky said before hanging up the phone. In all but one of her 14 contributions, Zapolsky was listed as a "special events coordinator" employed by "Yellow Roses," according to state records. Zapolsky has worked for the city since 1994.

It's not illegal--by the state's or the city's campaign laws--for employees to give, even to their bosses. It's allowed for all employees except for those working in the city's ethics department. But experts say there should be limits. Allowing workers to contribute large amounts of money fuels an environment of corruption where people feel they have to give in order to get promoted or to keep their jobs.

Political watchdogs say the city and state must have stronger rules, setting limits on who can give and how much. Otherwise, millions of dollars will continue to flow into the hands of aldermen and other lawmakers from the pockets of the people they employ.

The Chicago Reporter analyzed records of campaign contributions to Chicago aldermen and ward organizations from January 1999 to March 2006 and a database of more than 60,000 current and former city workers, and found:

* City workers, not including aldermen elected or defeated in the 2003 municipal elections, gave 92.2 million to aldermen and ward organizations.

* Aldermen themselves gave another 9466,000.

* Department of Streets and Sanitation workers gave the most of any city department, contributing 9479,657.26.

* About one of every five city council staffers, the highest rate of any department, contributed a total of $30l,894.92.

"I'm really surprised to hear those numbers" said 6th Ward Alderman Freddrenna Lyle. "I remember I had an uncle who was a truck driver a long time ago. It was just a regular thing that, when it was election time, they would be going to a fundraiser for whichever candidates were in office at that time," Lyle said. The statistics go to show: "You still have the remnants of the machine," she said.

Bobby Burleson, a former legislative aide, was first hired by the city in 1982. From September 1999 to November 2005, he contributed a total of 925,150--roughly 9335 a month--among several campaign committees. Burleson said he wasn't pressured to give, adding that, since he made more money than most city workers, it was not unusual that he gave more.

"I am in a higher [income] bracket. I think it's a good percentage to give," said Burleson, who is listed as a restaurant and tavern owner in campaign finance records. "It's hard to be a public official. You have to have contributions,"

Gerald Brown, a foreman of motor truck drivers in Streets and Sanitation, and Norman J. Madrigali, a construction laborer in the Department of Water Management, both gave more than $10,000. Madrigali gave 28 contributions, all to either the 45th Ward Regular Democratic Organization or 45th Ward Alderman Patrick Levar. Both Brown and Madrigali declined to comment. "No, I don't want to answer any questions," said Brown, who made nine contributions to either the 34th Ward Regular Democratic Organization or to 34th Ward Alderman Carrie M. Austin.

Robinson said the $37,000 in loans she provided Smith came from her bank account. She said the alderman doesn't raise enough money on his own. "We only do two fundraisers a year. And you might come up short," Robinson said.

Some say aldermen in predominantly black wards often lack campaign cash. "Most [predominantly black wards] don't have a lot of business. So you just get donations from people who work jobs. And that limits your money," Robinson said.

Robinson added she doesn't think most city workers are in a position to loan money to their bosses. "I just happen to be able," she said.

At least one employee in 43 of the 51 city departments analyzed made contributions to Chicago aldermen and ward organizations. There were no contributions made from workers in eight city departments, including Ethics and the Inspector General. It's prohibited by ordinance for Ethics department employees to be involved in politics, said legal counsel Richard Superfine. "From the standpoint of using common sense, they want this agency to be as pristine as possible" he said.

As a department, Streets and Sanitation contributed the most money to aldermen and ward organizations. Spokesman Matt Smith would not say why workers from the department contributed so much. "You're asking for something completely unrelated to any kind of departmental operations. If someone wants to [contribute] on their own time, that's OK," Smith said. "As long as our people are obeying the law, that's not our concern."

From January 1999 through June 2006, more than 5,500 people worked for the department. Of that total, 434 contributed. However, with just 717 employees during that span, it was city council employees with the greatest level of participation among city departments. Those employees included assistants to the aldermen, legislative aides and committee secretaries. Motor truck drivers, as an occupation, contributed the most among city employees. Truck drivers gave nearly $250,000 to Chicago aldermen and ward organizations.

According to the Washington, D.C.-based Institute for Politics, Democracy and the Internet, the average American gives less than $200 in campaign contributions during any given election cycle. City workers gave far more to Chicago aldermen and ward organizations. Dozens of employees gave more than 10 times and averaged more than $200 per contribution during the seven years analyzed--less than two election cycles.

Political consultant Don Rose said some employees are pawns, forwarding money for people who want their contributions to be anonymous. Other employees are simply donating to keep their jobs, forced by the subtle pressure of the office environment. "It might be as simple as saying, 'Mary Lou was a really terrific [employee]. She once gave me a $15,000 campaign contribution,'" said Rose, a longtime Chicago political observer.

There's a different dynamic for city council workers. Since aldermen are allowed to pick their own staff, many city council department workers become expendable when new aldermen are elected. The workers know that, if their bosses aren't re-elected, they're likely out of a job. "You have great respect for your boss. And you want to keep your job," Rose said.

Lyle said she doesn't solicit campaign money from her three -member staff but said those staff members understand the importance of her staying in office. "This is their job, and it's tied to whoever the person is in office," she said. "It's in their best interest to help, volunteer. They tell their friends to vote."

Lyle said staff members should not be prohibited from giving, but that it might be good to have limitations. "I think when you start getting $5,000, $6,000, $7,000 in contributions, then it might raise some appearance of impropriety," she said.

Andrade, a legislative aide, said he gave to political campaigns before Mell hired him. If people aren't allowed to give contributions to their candidates, then only wealthy candidates would win, Andrade said. "You are going to have a government that's made up of millionaires. I believe that doesn't represent the regular person."

Mell, Andrade's boss, has taken up millions himself. He is one of 13 aldermen who collected more than $1 million in contributions from January 1999 through March 2006. And one month before Mell's 2003 race against Deb Gordils, the alderman had $319,388.59 on hand. Gordils had more than $2,000 in expenses and an outstanding $20,000 loan, according to state campaign finance records.

23rd Ward Alderman Michael Zalewski had the second-highest amount in contributions from city workers, accepting $125,875.

Zalewski said he sends fundraiser invitations to his staff of three but doesn't pressure them to give. "It's smart if you're going to have a fundraiser to let people know it's strictly voluntary," Zalewski said. "They're not going to be promoted or penalized for it in any way."

When asked whether he would support a law to prohibit employees from giving to their bosses or other political candidates, Zalewski said, "No ... as long as there's not a quid pro quo or threats."

In all, Zalewski got 337 contributions from city workers, including 139 from Streets and Sanitation workers.

Former 25th Ward Alderman Ambrosio Medrano, convicted in 1996 in the "Silver Shovel" corruption probe for accepting bribes from an FBI agent, is now running against incumbent Danny Solis, whom Mayor Richard M. Daley appointed to replace him. Medrano said that while he was in office, he didn't force staff to raise money for him. But he thinks other aldermen do. He doesn't see the harm in changing the rules. "I wouldn't see why we couldn't [have limits] so it doesn't seem like something funny is going on, especially in today's climate" Medrano said.

The U.S. Attorney's Office for the Northern District of Illinois would not say if it's looking at campaign contributions as part of its probe into the patronage hiring scheme revealed by the Hired Truck scandal, which broke in 2004. "We would not comment on any subject of an investigation," said spokesman Randall Samborn.

In an attempt to help restore public confidence, some officials have capped themselves. Recently appointed City Clerk Miguel del Valle self-imposed a ban against contributions from anyone contracted by the clerk's office or the city.

The city polices itself when it comes to campaign finance. In 1986, the late Mayor Harold Washington created the city's Board of Ethics to curb corruption. Since then the city has adopted a campaign finance ordinance and a government ethics ordinance. The latter prevents Board of Ethics staff from participating in politics. The campaign finance law caps contributions at $1,500 for lobbyists registered with the city, businesses with city contracts and firms seeking to do business with the city.

Political watchdogs say the city needs to put caps for other donors and limits on contributions from city workers. "You can be reasonable and have a campaign limit," Rose said. "It might not be bad getting $150 from employees. It's not enough to make a good bribe."

Cheat sheet

For years, City of Chicago workers have helped the city's aldermen stay in office. The Chicago Reporter analyzed more than seven years worth of campaign contributions to show how much and found that:

* City workers gave millions to aldermen and the wards they govern.

* Among city departments, Department of Streets and Sanitation workers gave the most.

* City Council staff, as a department, were the most likely to give.

* When considering giving by job title, truck drivers gave the most.

* Black aldermen averaged far fewer in receiving contributions than their white and Latino counterparts.

For more information about the people and organizations we write about, go to www.chicagoreporter.com

Aldermanic transactions

SHOW ME THE MONEY

Longtime 13th Ward Alderman Frank J. Olivo is operating without a political campaign fund, which is required by candidates receiving or spending more than $3,000 annually. The Illinois State Board of Elections has records of two political committees operating in support of Olivo. One was closed in 1995, the other in 1999. In addition to their own campaign committees, many aldermen are supported by their ward organizations. But Illinois Speaker of the House Michael J. Madigan is the only candidate supported by the 13th Ward Regular Democratic Organization, which took in nearly $1.3 million from January 1999 to March 2006, according to state records. Olivo did not return phone calls.

SHORT ON CASH

In 1997, Mayor Richard M. Daley appointed James A. Balcer as alderman of the 11th Ward, the mayor's longtime political base. State records show that the Citizens for Balcer committee accepted just four donations totaling $4,902. The 11th Ward Democratic Party Campaign Committee took in nearly $987,000. But Cook County Commissioner John R Daley, the mayor's brother, is the only candidate supported by that committee, according to state records. Balcer did not return calls.

LOANS FROM THE BOSS

Citizens for Mell and the 33rd Ward Regular Democratic Organization issued a combined total of 34 personal loans for $113,961.22 from January 1999 to March 2006. Nearly 40 percent of the loan money went to city workers, including some who worked in Mell's office.

PENNY PINCHERS 

The City of Chicago's Board of Ethics was one of eight departments where workers made no political contributions to aldermen or ward organizations. By ordinance, Board of Ethics employees can't engage in political activity.

Methodology

DATA: The Chicago Reporter purchased an electronic database from the Illinois State Board of Elections of 1,124,632 campaign contributions that had been given to Illinois candidates between July 1, 1994, and May 17, 2006.

The Reporter also obtained an electronic database of all individuals who were employed by the City of Chicago at any point between Jan. 1, 1999, and July 19, 2006. The employees are identified by name, title, department, salary and the ZIP code of their residence.

ANALYSIS: The Reporter analyzed more than 103,000 campaign contributions--totaling $57.4 million--given to the 127 political committees representing Chicago aldermen and ward organizations between January 1999 and March 2006.

The Reporter compared the names and ZIP codes of the contributors to those of city employees. The Reporter considered a match between the two lists when the first name, last name and ZIP codes were identical. The Reporter used middle initials, titles and occupations, when listed, to identify false matches.

Contributing: Hannah Ferdinand, Natalie Y. Moore and Melanie Wong

Workers that keep on giving

Streets and Sanitation,
Water Management and
City Council workers
accounted for more than
half of the $2.2 million
that city workers
contributed to Chicago
aldermen and ward
organizations between
January 1999 and
March 2006.

Streets & Sanitation   22%
Water Management       16%
City Council           14%
Other Departments      48%

Note: Table made from bar graph.

Sources: Illinois State Board of Elections, City of Chicago; analyzed
by The Chicago Report.

It's better to receive

Some Chicago aldermen and ward organizations receive far
more in campaign contributions from city workers than
others. The following received the most money from city
workers between January 1999 and March 2006.

ALDERMAN              TOTAL CONTRIB.   FROM CITY   WORKERS

Patrick J. O'Connor       $989,763      $131,215     13%
Michael R. Zalewski     $1,331,009      $125,875     10%
Edward M. Burke         $6,519,295      $107,000      2%
Theodore A. Matlak      $1,703,896       $72,340      4%
Isaac S. Carothers        $750,235       $71,908     10%

ORGANIZATION          TOTAL CONTRIB.   FROM CITY   WORKERS

13th Ward DO            $1,273,098      $238,850     19%
11th Ward DPCC            $986,894      $163,600     17%
33rd Ward RDO           $1,496,196      $138,093      9%
19th Ward DO              $910,648      $114,855     13%
8th Ward RDO            $1,351,959       $53,502      4%

Note: DO stands for Democratic Organization; DPCC stands for
Democratic Party Campaign Committee; RDO stands for Regular
Democratic Organization.

Sources: Illinois State Board of Elections, City of Chicago; analyzed
by The Chicago Reporter.

Disposable income

At $2.2 million, campaign contributions from city
employees account for less than 4 percent of the $57.4
million received by Chicago aldermen and ward
organizations from January 1999 to March 2006. However,
city workers contributed more than the combined total
from individuals living in Chicago's richest five ZIP codes,
which include the Loop, the Gold Coast and Lincoln Park.

DONOR                 # RESIDENTS     AMOUNT     PER RESIDENT

City Workers             61,381     $2,227,704        $36
Richest ZIPS--TOTAL      99,647     $1,884,411        $19
60611                    26,522       $665,989        $25
60614                    65,474       $599,329         $9
60601                     5,591       $296,090        $53
60606                     1,682       $210,505       $125
60603                       378       $112,498       $298

Sources: Illinois State Board of Elections, U.S. Census Bureau, City
of Chicago; analyzed by The Chicago Reporter.