HUNTSVILLE, Alabama-- Stacks of public dollars. A mandate to give it all away. And personal preference as the guide.

This is how Madison County lawmakers divide up their share of TVA dollars, more than $2.2 million over the last two years propping up the largest legislative slush fund in North Alabama.

There's no voting.

There are no agreed-upon rules. At least none that anybody can easily point to.

Sen. Paul Sanford, R-Huntsville, gave $10,000 to a pro-life group.

"I guess it is a pro-life group," said Sanford, when asked about the gift to Choose Life of North Alabama. "Do you want me to send money to a pro-death group?"

Rep. Laura Hall, D-Huntsville, gave to a sorority she is a member of and another where she was once president.

"I am a member of the organization, but I am not a member of the foundation," she said of $12,000 to support AIDS awareness and literacy efforts of the local Delta Sigma Theta chapter, a traditionally black sorority.

The same sorority gave her an achievement award this summer.

Sanford and Hall both gave thousands of public dollars to Huntsville private schools.

Off limits

Reps. Mac McCutcheon and Jim Patterson, both related to school teachers, said they'd never give to a private school. "That's off limits," said McCutcheon. "It has to be public school systems."

But there is no guidance in the local act. The discretionary gifts of Madison County often come down to exactly that, personal discretion, said Rep. Phil Williams, R-Monrovia.

Rep. Phil Williams, R-Monrovia

The money is split evenly between the House and Senate and then broken up by population in each district. In the end, most of the county's seven representatives were provided more than $170,000 over two years. Sen. Shadrack McGill, who has a small rural slice of the county, saw the least with just $60,000 to pass out.

Meanwhile, Sanford alone controlled more than a half million dollars.

"The other guys in the Legislature sure hate this," said Williams. "They see this as North Alabama's private slush fund. A lot of people in south Alabama give us the evil eye."

To the victor

Most lawmakers were quick to point out that the money represents a hard won victory for North Alabama.

The gifts originate with the national oddity that is TVA, a self-sustaining public power company, exempt from state taxes. TVA clocks billions in annual power sales and owns property across North Alabama. So TVA sends Montgomery a payment in lieu of Alabama property and sales taxes.

The money used to disappear into the general fund in Montgomery. North Alabama officials won back some money in 1978. The deal also sent money to dry counties hurting for sin taxes. Over recent decades, the state ramped up the amount sent north. In 2010, for the first time, dry counties received nothing.

The state now keeps 17 percent. The rest goes to the 16 counties affected by TVA.

Most of that is earmarked for schools, county government and city budgets. But lawmakers write and rewrite the local acts that carve up the cash. And in 2007, Madison County lawmakers allotted themselves all growth in payments beyond the first 2.5 percent.

That's more than $2.2 million they gave themselves to pass out over the last two years.

No oversight

Each lawmaker offered a different explanation on what's allowable and how they make their decisions, decisions which can determine which non-profits survive, which school programs flourish and which towns have new fire engines or senior centers or swimming pools.

Rep. Mike Ball, R-Madison

"You don't want to walk around saying I got this money to spend, but you keep your ears open and visit with school board folks and principals," said Rep. Mike Ball, R-Madison.

And public schools are the largest recipient.

Yet a Times' records request finds that a handful of gifts raise significant questions, perhaps none more than $10,000 in public money for a religious pro-life organization.

Jim Sumner, head of the Alabama Ethics Commission, said his group had never been asked about the use of TVA dollars.

"The ethics statute would prohibit them from taking it themselves or giving it to a member of their families," said Sumner. They also couldn't give it to a business owned by themselves or a family member, he said.

Beyond that, he suggested checking with the Alabama comptroller. Comptroller Tom White suggested the state finance director. Finance Director Bill Newtown assured that public money would have to be used for a public purpose. But when asked for anything more specific, he referred questions to the attorney general.

The office of the Alabama Attorney General sent a 2011 opinion out of Jackson County that the TVA money must be distributed according to local act. But the local laws regarding who gets the TVA money are written by the same lawmakers who pass out the TVA money.

The Chief Examiner of Public Accounts, the state's top auditor and the recommended authority according to McCutcheon, didn't return calls. That auditor also works for the state legislators.

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No rules

McCutcheon, like Williams and Patterson, said he wouldn't give public money to a religious organization. He said he stays away from civic clubs. He laughed when asked if he would support a civic club he was a member of.

Ball said he'd avoid anything he had a personal interest in "like the plague." Patterson said it was best to purchase hard assets, such as heavy equipment and field renovations, which could be audited. He said he stays away from things that are harder to track, such as uniforms and field trips.

Patterson - without being asked - volunteered that he gave $3,500 to fix up a softball field where his daughter-in-law coached. But he said it was a gift he would have given anyway, as he balanced that with similar contributions to other softball programs.

Rep. Jim Patterson, R-Hazel Green

"I would have made them if she had not been the coach," he said. "Can I prove that? No."

He said he wouldn't do anything that he couldn't justify. "I let the voters be the judge of that."

Williams said he gave $5,000 to a school program run by Junior Achievement, where his wife is on the board. But he said he drew the line at an otherwise worthy youth group because of a religious affiliation.

Veterans give to veterans, those related to teachers give more to public schools, lawmakers give to alma maters and past employers.

Rep. Howard Sanderford, R-Huntsville, didn't hand out any at all. At least not during the nearly two-year snapshot provided by the Madison County Legislative Office.

Rep. Howard Sanderford, R-Huntsville

"Just being very conservative and trying to put it in the right place," said Sanderford.

AL.com made a second request this month after speaking with Sanderford, but he still wasn't showing any transactions. He is showing $105,000 in the bank for 2014.

Lawmakers are free to save up money over years to help with larger projects, such as building new libraries or parks. That also means they have more to go around in election years.

"I see politicians save up and do more during election year and say 'I have you a check,'" said Patterson, who tends to pass all his out in small contributions throughout the year. "I always say this is TVA in lieu of money and it's your tax money."

Cooperative projects vs. individual grants

Surrounding delegations have also created discretionary accounts to catch some of their TVA money. But others have taken a more coordinated approach. In Morgan County the delegation this year worked together to dedicate $400,000 toward the Alabama Center for the Arts in Decatur. Limestone lawmakers say the delegation works with the county commission.

In Marshall County, lawmakers appoint a central board. "We have a three-member committee that's set up for oversight," said Sen. Clay Scofield, R-Arab. "It's not a bad thing at all."

Sen. Shadrack McGill, R-Scottsboro

But even that hasn't kept all of then out of trouble, as the Jackson County delegation worked together and bought itself an office building on the Scottsboro courthouse square. A former Jackson County commissioner sued, arguing for separation of powers, that lawmakers shouldn't execute the laws they pass.

The delegation answered back that a taxpayer had no standing to sue, that TVA payments are not ordinary tax dollars. "These funds are not revenue to the State or to the County but are revenue to the Jackson County Discretionary Committee as prescribed by said Local Act," reads the delegation's response in Jackson County Circuit Court.

It's a curious loop. Local lawmakers wrote and passed the law that they now cite as the legal authority for sending more money to themselves.

Pro-life and private schools

In Madison County, there are no delegation meetings, no public votes. All but one or two members of the delegation who co-sign checks said they had never seen a list of who their colleagues support.

Several gifts by lawmakers clearly conflicted with the rules espoused by others.

Sen. Paul Sanford, R-Huntsville

Sanford said he didn't think Choose Life of North Alabama was a religious organization, although the group includes spreading the gospel as part of its mission statement in its tax papers. Sanford said his $10,000 was to pay for "a mobile lab that goes out and helps young pregnant women."

The chair of Choose Life, Tommy Glenn, said the group used the money to help set up an ultrasound machine in an RV that can be wheeled into public areas and college campuses for walk-in pregnancy tests. Glenn said the group provides counseling on neonatal care and seeks to help young women find alternatives to abortion.

Sanford also gave $20,000 to Huntsville Achievement School, which he said was intended to support tuition for autistic children. He gave another $10,000 for operational expenses at Greengate School, which works with dyslexic children. Both are private schools for students with special needs.

Sanford said those gifts help a public need by addressing issues beyond the scope of the average classroom. "That takes a little pressure off the city system," he said.

Hall also gave $10,000 to Huntsville School of Basic Studies, money intended to help north Huntsville students prepare for the graduation exam and college admissions tests. "That school has a great track record with helping individuals pass the graduation exam," said Hall.

"I never have," said Williams of giving to private schools. "But the (Alabama) Accountability Act opened a very interesting issue. Suddenly funds could end up in a religious or a private school. But our rank and file public schools need all the help they can get, so that's where I focus."

Williams and McCutcheon weren't the only one who drew the line at private education and religious organizations. "I would not give money to a private school," said Patterson.

"It gets down to a discretionary call. I try to think about these are taxpayer dollars, it's not my money I'm giving away," said Williams.

Rep. Laura Hall, D-Huntsville

Both Hall and Sanford also supported several public agencies and public schools.

Sanford's biggest gift during the last two fiscal years (fiscal 2012 had not closed when the records were provided at the close of July) was $25,000 to the state forensics lab. He gave $21,000 to Johnson High for various field trips and student activities, and provided large gifts to Butler and Lee high schools.

Hall's biggest gift was more than $46,000 for the Volunteer Income Tax Assistance center in north Huntsville. She also gave $11,250 to pay for swimming lessons at the Showers Center. "That is a program that is hopefully going to save lives," said Hall, saying she learned to swim late in life.

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Uneven spread

As lawmakers don't see each other's gifts, the blind operation leads to inequities.

Over the last two years, Hazel Green High received $51,000. That's 18 separate gifts from four different lawmakers. That's $15,000 for a weight room and $4,000 for iPads. That's money for tennis courts and football and drama and softball.

For contrast, Columbia High in Huntsville received just $250.

Some of that may simply be that certain schools and programs know how to work the system.

"I always tell people the squeaky wheel gets the grease," said Patterson. "Most of them are people calling me up and saying hey we can't get this without some help."

"They normally contact me," said Johnson.

"The Huntsville City Police call often," said Williams.

"I think local legislators keep an ear to their districts," said Sanderford.

Rep. Mac McCutcheon, R-Monrovia

"I like the way system is operating now," said McCutcheon. "Who knows better of the specific needs within the school system or the volunteer fire department than me as a local legislator because I'm in touch with them?"

Most, like McCutcheon, prefer the system the way it is. But Sanford said he'd welcome some sort of board of oversight. Patterson said he'd do whatever was best. "I'm open to suggestions. I'm a freshman."

Scofield also said he'd like board approval. In fact, he said he already runs his money through local leaders instead of using his own criteria. That decision made the town of New Hope the second largest single recipient, behind Hazel Green High, over the last two years.

New Hope used the $50,000 to buy a mini-track, pay down a mortgage on city hall and help with renovations at city hall.

Some follow seeming formulas. McGill, with the least to spend in Madison County, gives roughly identical gifts to various volunteer fire departments. McGill, despite a short and relatively innocuous list, did not return calls to talk about his legislative grants.

Sen. Bill Holtzclaw, R-Madison, also did not return calls to talk about his discretionary spending. Holtzclaw has received more than $280,000 to hand out over the last two years. Holtzclaw, a Marine, made his largest gift of $15,000 to Still Serving Veterans. He also supported police, gave to military children and spent more than $10,000 on school security.

Rep. Wayne Johnson, R-Ryland

Most lists tend to reflect some of the personality of the giver.

"I enjoy helping the schools," said Rep. Wayne Johnson, R-Ryland, who tends to support fourth-grade trips to the state Capitol. He said he likes to visit the children before they travel.

"I tell them you need to go home and hug your mom and dad because they are one making it possible for you to go to Montgomery because this is taxpayers' money."