Lawmakers picked apart a proposal to impose campaign contribution limits for Utah political races, questioning if such a scheme would limit political participation and put challengers at a disadvantage.

The recommendations, tentatively adopted last week by the Governor's Commission on Strengthening Utah's Democracy, would cap contributions from individuals, political action committees, corporations, labor unions and political parties for the first time in state history.

Utah is one of four states in the country with no campaign contribution limits whatsoever.

But legislators were reluctant Wednesday, asking dozens of questions about the impact of the proposed change.

"It would seem in this [proposal] the losers tend to be the newer candidates, the candidates who are not self-funded. It seems to place them at an even greater disadvantage," suggested Rep. Ron Bigelow, R-West Valley City.

Kirk Jowers, the chairman of the commission and a campaign finance lawyer, said the opposite is true, because it makes it harder for an incumbent to swamp a challenger by receiving huge checks from well-heeled donors.

Rep. Ben Ferry, R-Corrinne, questioned if limiting political action committee donations would just prompt the PAC to direct its members to contribute individually to get around the limits.

Possibly, Jowers said, but individual donors have a broader range of interests than PACs.

Jowers acknowledged he had his own concerns about the proposal, including a $25,000 limit on total contributions by individuals, parties, PACs, labor unions or corporations.

"It seems to me that discriminates against labor unions and PACs being involved in elections where large companies don't have these kind of limits," asserted Rep. Janice Fisher, D-West Valley City.

Actually, the corporations have the same restrictions, Jowers noted.

Several members of the legislative Government Operations Committee questioned if the finance limits would work to improve public participation and public faith in democracy.

Research indicates it would, Jowers said, because it forces candidates to solicit money from a broader pool of donors, gives the public a sense that their small contributions matter and "improves civic participation [and] reduces cynicism."

While Rep. Craig Frank, R-Cedar Hills, the chairman of the committee and a member of the governor's commission, said he appreciated the "vigorous nature" of his colleague's questioning, the limits proposed are a long way from binding the Legislature.

The commission will meet again later this month and may tweak the proposals to gain broader consensus and work out concerns that some members had. The limits were adopted on a 10-7 vote, with Jowers voting against the caps.

The recommendations will be forwarded to the governor's office later this year and it would be up to the Legislature to turn the guidelines into law.