In 1938 the General Assembly adopted legislation to require the registration of persons "employed to promote or oppose in any manner the passage" of legislation. By 1962, the number of registered "Legislative Agents" or "Legislative Counsel" had increased until they numbered more than the membership of the General Assembly itself. In addition a large number of unpaid representatives of organizations and groups seeking or opposing the adoption of legislation are constantly found in the State Capitol during the sessions of the Legislature; complaints have been registered that certain persons who under the statutes should have registered, disclose the name of their principals, and file a statement of compensation and expenses, did not do so. In addition, the swarms of lobbyists, whether or not required to be registered, have impeded the orderly conduct of the business of the session.

Feeling that it was time for a review of the 1938 legislation, the General Assembly adopted House Joint Resolution No. 103, directing the study of the problem by the Virginia Advisory Legislative Council.

Inasmuch as the members of the Council, through their service as members of the General Assembly, were familiar with the problems involved, the Council elected to consider this matter itself. It assembled data on lobbying laws in other states, it examined into the peculiar and particular problems in Virginia, and it held a public hearing at which opinions both of those engaged in lobbying and of the general public were sought.

The Council has given careful consideration to the matter, weighing the undoubted benefits to members of the General Assembly in securing information from persons especially versed in subjects being considered for legislation, the right of the citizens of Virginia to express themselves on matters being considered by the General Assembly of Virginia, and the desirability of (1) informing the members of the General Assembly as to the interests being promoted by those who are engaged in lobbying, (2) insuring the orderly procedure of the houses of the General Assembly when in session and (3) the protection of the members from conduct which, at times, has interfered with the efficient discharge of the duties incumbent upon them.