Let's get inside the mind of someone considering a challenge to Commissioner X, who is just completing a first term.
Should I run against X now, knowing X hasn't accrued many negatives and is the incumbent? . . . .Nah, I'll just wait four years when there will be an open seat.
Thus, instead of fostering challenges, two term limits may inadvertently give people a pass on their second term, functionally creating what amounts to an eight year term -- not a great outcome if candidate X is only a mediocre commissioner.
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