Melvin Carnahan (D)

Overview

At a Glance

• Signed Missouri's Outstanding Schools Act of 1993: reduced class size; started A+ Schools and scholarship program; increased equity of foundation formula; increased state oversight of failing schools; established career programs for non-college-bound students
• Helped gamer support for Carnahan-Farm Bureau Tax Limitation Amendment
• Developed state's first economic development plan
• Reformed Missouri welfare to focus on work
• Cut taxes by more than $400 million a year and cut spending by $648 million
• Increased prison and youth services facility capacity
• Increased penalties for dangerous and violent offenders, and sex offenders
• Established the Division of Workforce Development
• Led a comprehensive review of state government
• Expanded access to healthcare for more than 90,000 low-income children
• Led enactment of the Safe Schools Act, welfare reform, and juvenile justice reform
• Led the state's response to the floods of 1993 and 1994

Personal History

Melvin “Mel” Eugene Carnahan was born on February 11, 1934, in Birch Tree, Missouri, and spent his childhood on a small farm near Ellsinore with his only sibling, Robert "Bob" Carnahan. His father, A. S. J. Carnahan, served as the superintendent of the Ellsinore schools and was elected to the U.S. House of Representatives in 1944.

After graduating from high school, Carnahan's family moved to Washington, D.C. He later earned a Bachelor of Arts in Business Administration from George Washington University. Following his education, he joined the United States Air Force, where he achieved the rank of first lieutenant and served as a special agent for the Office of Special Investigations. In 1959, he received his law degree from the University of Missouri.

In 1954, Carnahan married Jean Carpenter, and together they had four children: Russ Carnahan, who served as a U.S. Representative for Missouri's 3rd District; Tom Carnahan, who founded Wind Capital Group, specializing in wind energy farms; Robin Carnahan, who was the Missouri Secretary of State from 2004 to 2012; and Roger "Randy" Carnahan, who owned and operated Carnahan Farms and was a principal at Carnahan & Associates, a business consulting firm serving clients in the United States, Eastern Europe, and Asia.

Carnahan and his family were active members of the First Baptist Church of Rolla, where he served as an ordained deacon. Following his unexpected death on October 16, 2000, he was laid to rest in Carson Hill Cemetery, located in Wayne County, Missouri.

Political History

Mel Carnahan began his political career in 1963 when he was elected to the Missouri House of Representatives, representing the Rolla area. He served two terms in this position. In 1980, he was elected State Treasurer, a role he held from 1981 to 1985. During his tenure, Carnahan publicly opposed two Missouri ballot measures, Amendments 5 and 7, which sought to legalize pari-mutuel betting and create a state lottery. Despite his opposition, both amendments passed. In the same year, he ran for governor but lost the Democratic primary to Lieutenant Governor Kenneth Rothman.

In 1988, Carnahan was elected Lieutenant Governor of Missouri. He subsequently ran for governor in 1992, where he faced St. Louis Mayor Vincent C. Schoemehl in the Democratic primary. Carnahan secured the nomination by a significant margin and went on to defeat Republican Attorney General William L. Webster in the general election. He was re-elected for a second term in 1996, again overcoming Republican State Auditor Margaret Kelly.

As governor, Carnahan achieved several notable accomplishments, including initiating the state's first comprehensive economic development plan aimed at guiding job creation and economic growth. He also implemented reforms to Missouri's welfare system that emphasized work and enacted stringent anti-crime legislation designed to keep dangerous offenders incarcerated. In 1993, he initiated a comprehensive review of state government—the first in over 20 years—by appointing the Commission on Management and Productivity (COMAP). This commission, composed of private business leaders, state agency managers, and members of the General Assembly, aimed to enhance government efficiency and performance.

Carnahan co-authored the Carnahan Farm Bureau Tax Limitation Amendment with the Missouri Farm Bureau. This amendment mandates a statewide vote for any tax or fee increases exceeding $50 million or 1% of the state’s revenue. In 1997, he championed the elimination of the general sales tax on food, resulting in substantial savings for Missouri residents. In recognition of his administration's effectiveness, Governing Magazine awarded Missouri its highest grade for managing state government in 1999.

In 2000, Carnahan launched a campaign for the U.S. Senate, facing incumbent Republican John Ashcroft. The campaign was intense, with Carnahan traveling extensively throughout the state. On October 16, 2000, just three weeks before the election, the twin-engine Cessna piloted by his son, Randy, crashed in foggy weather near Goldman, Missouri, resulting in the deaths of all three occupants: Governor Carnahan, his son, Randy, and Chris Sifford, a campaign advisor and former chief of staff.

After Carnahan's death, Lieutenant Governor Roger B. Wilson stepped in as governor for the remainder of Carnahan’s intended term, ending January 2001. Missouri election law prevented the removal of Carnahan's name from the November 7 ballot for U.S. Senate, allowing his widow, Jean Carnahan, to become the unofficial Democratic candidate. Wilson pledged to appoint her to the Senate if her late husband won the election. Utilizing the campaign slogan "Don't let the fire go out," Jean Carnahan won the election by a narrow margin. She served in the Senate until November 2002, when she was defeated in a special election by Republican James Talent, who completed the remainder of Carnahan's U.S. Senate term.

Historical Significance

The Missouri Outstanding Schools Act of 1993 was established to address a constitutional challenge concerning the state's school funding formula and introduced significant reforms in Missouri's educational system. Among its key provisions, the Act aimed to reduce class sizes by increasing the number of teachers in grades kindergarten through three. It also created career programs for students who do not plan to pursue a college education. Additionally, the Act launched the A+ Schools Program and scholarship initiative, improved state oversight of underperforming schools, and sought to enhance equity within the funding formula.

In 1996, Missouri voters approved the Carnahan-Farm Bureau Tax Limitation Amendment, which imposed a cap on new tax revenues. This cap is linked to an annually adjusted percentage change in personal income, with an estimated limit of about $74.5 million in 2003. According to this amendment, any combination of tax or fee increases that exceeds this adjusted amount must receive voter approval, even if such increases fall below the limitations set by the Hancock Amendment. Together, these measures limit the state's ability to raise revenue without direct input from voters.