Homeland democracy: speaking up for the legislature: at the center of representative democracy is the need for legislatures to define and communicate messages in today's language, using today's technology.

As he stood in front of a crew that had served on the longest carrier deployment in a generation, President George W. Bush announced on May 1 the end of major combat operations in Iraq.

"Men and women in every culture need liberty, like they need food and water and air," he told the men and women on the USS Abraham Lincoln. "Everywhere that freedom arrives, humanity rejoices."

At least it rejoices for awhile. As Operation Iraqi Freedom evolved from bombing to rebuilding, Iraqis embraced their new found freedom. Here on the homefront, however, many U.S. citizens take our 200year-old democracy for granted, judging by polls and voter turnout.

"The price paid for freedom is often associated with war, but vigilance demonstrated by everyday citizens participating in their democracy also is needed to keep a nation strong and free," says Val Marmillion, president of Pacific Visions, a strategic communications firm.

State legislatures, he says, are in a unique position to strengthen public understanding of representative democracy. First, though, they need to learn how to make their constituents not only hear them, but listen to them.

CHALLENGING TIMES

Today legislators and legislative staff face a challenging economy, pressure to fund state programs and an anxious constituency fearful of terrorist attacks. After the Sept. 11 strikes, there was a general sense of optimism that the public's view of democracy, government and public servants would improve, and citizens would be more interested and engaged in the political process.

As low voter turnout during the 2002 elections illustrated, however, the public remains very cynical about lawmakers and politicians at all levels. A total of 39.3 percent of those eligible voted in the 2002 midterm elections, according to the center for Voting and Democracy. This figure represents a slight increase from the 37.6 percent turnout for the 1998 elections, but clearly shows most Americans are not taking part in representative democracy.

Despite significant initiatives by state legislatures to raise awareness, legislatures, legislators, the process and the issues continue to be very low on the public's radar screen.

Legislatures over the past decade have aggressively embraced the Internet to provide citizens easy access to legislative information, with about two-thirds providing open broadcasts of their proceedings. Legislative rules changes generally allow the public greater participation in the process than ever before. civic education programs are more commonplace.

PUBLIC KNOWLEDGE OF LEGISLATURES

Focus groups conducted by Pacific Visions on behalf of the National conference of State Legistatures' Trust for Representative Democracy last year demonstrate the need for legislatures to better market themselves and define the messages they want the public to understand.

When Pacific Visions met with citizens in three states, it found that a vast majority felt they did not have the time to educate themselves on the important issues necessary to be more actively involved in the political process. Many people indicated that, as much as they would like to be involved, their lives were just too busy with work, family and other commitments.

Marmillion notes that even with this challenge, there is hope for legislatures to communicate their messages.

"I think in times of great stress and tension, good things come and great ideas evolve," he says.

Legislatures, he says, need to re-evaluate and address the cynicism that is "largely built around constituents saying, 'Our officials don't communicate with us. We don't know who they are. We don't know what they do.' The need to define united legislative messages and communicate them in today's language using today's technology is of critical importance in this communications age. It is an issue at the center of democracy.

THE NEED TO COMMUNICATE

William Black, senior vice president with Fleishman-Hillard, says that legislatures that want to communicate better with their constituents need to have a goal in mind.

"The first step I take when advising a client is asking them, 'What is it you are trying to achieve?' And then we work back from there." Understanding the goal, he says, means understanding the reason behind a specific piece of communication and also recognizing how it relates to your long-term goals and aspirations.

"From the goals you establish, you can determine who the audiences are that can deliver those goals," Black says. "Then, you define the messages that you have to give those audiences to deliver those goals, and what channels you need to go through in order to reach them."

In this fast-paced, media-centered environment, when most people are bombarded with messages, communications that are well constructed and well thought out will be more effective. Ineffective messages will be forgotten.

Focus group participants say they don't hear from their elected officials enough. Some complained that their efforts to reach their elected officials resulted in untimely responses, form letters or no response at all. To encourage participation and feedback on issues, a majority of participants said elected representatives must make it easy for people to get involved.

Focus groups conducted by Thomas Opinion Research indicate that many voters and constituents feel comfortable using the Internet and e-mail as communication tools. "Generally our focus group participants felt that their representatives don't communicate with them enough and that too often communication is not a two-way street," says Rosita Thomas. "So we asked what avenues of communication are the most convenient. They said that e-mail gives them time to carefully communicate their concerns, and it makes them less nervous."

NCSL's E-Communications Steering Committee, which hired the Thomas Opinion Research study, recently released a set of recommendations to help legislators use Web sites and e-mail more effectively. They encouraged legislators' Web sites to focus on links and information important to constituents, rather than too much emphasis on the legislator.

James Vaughn, director of e-government and politics for America Online, said legislators can communicate effectively through Web sites. "The important thing is that people are coming to your Web site for a specific purpose. While they are there, you have an opportunity to share other information that you think is important for them to know."

The steering committee's entire recommendations can be found on the NCSL Web site at www.ncsl.org/programs/lis/communicate/epartner.htm and in the June issue of State Legislatures magazine.

REACH YOUR INTENDED AUDIENCE

A legislator can no longer send out a quarterly newsletter to constituents and assume it has reached his or her audience. Research indicates that the majority of Americans depend on television to get most of their information.

Legislators need to be cognizant of this fact and use media that are popular with their audience--television, the Internet and any other outlets relied upon by their specific constituency.

"The average American sees a million marketing messages a year, about 3,000 a day. These include ads in newspapers, magazines, on televisions, billboards and other sources," says former Associated Press reporter Jerry Brown, a senior counselor for public relations at Corporate Advocates. "In order to ensure that your message is heard, it must attract attention in this vast ocean of information. The best way to do this is to be relevant, and make sure your message speaks to your audience."

The best way to reach voters and constituents, Brown says, is to make the message personal.

"The fact is that everybody's favorite subject is 'me.' So if the 'me' of your story is you, the rest of us probably don't care a lot. But if you can find a way to make the 'me' of your story as broad as possible so you're speaking to me about things that are relevant to me, then I'm going to listen, and so will everybody else."

A NEED FOR BIPARTISAN MESSAGES

Much of the cynicism the public feels for public officials can be traced to the fact that millions of dollars each election cycle are spent criticizing the institution. Many candidates position themselves as outsiders who can 'clean up' the institution.

The problem is further complicated by the fact that in many states with full-time legislatures, partisan staff understandably craft messages that promote their caucus at the expense of the other. This message underscores the public's belief that the only thing politicians do is bicker.

"At the Capitol, everyone knows it's a political game when you have competing messages," Brown says. "But legislators need to understand that all the public sees is the end product of negative messaging. That is reinforced any time the public watches a cable news talk show. All they see are people arguing."

Most legislatures have limited resources appropriated for communications (much less than interest groups trying to influence the media on statehouse issues). But often, Marmillion says, legislators aren't taking advantage of the staff they have. The legislature's public information officers best understand and recognize opportunities for the legislature to speak with one voice.

"Several times in a legislative session, events can be held that demonstrate that the legislative process works and works on behalf of the people," he says. "Legislatures need to foster and listen to the advice of their communications professionals. Most state legislators recognize the need to improve their image, but they are not actively seeking and accepting the advice of those who can best help them. If you have a tooth problem, you go to the dentist. If you have a communications problem, you need to see your public information officer."

Legislators and their staff are fighting an uphill battle as they attempt to restore public trust in representative democracy. But communicators agree that bipartisan communication is a great place to start.

"While actions speak louder than words in many situations, I think there has to be a conscious effort to improve the image of the institution as a whole. That can be done by positive things like NCSL's America's Legislators Back to School Week," says Tim Ford, speaker of the Mississippi House the past 16 years and a national legislative leader who is retiring from public service this year.

"But other things also are needed--all legislators should be able to point to positive things they have done. Each member needs to promote the body back home as often as possible through service and civic club speeches and the like. We need to learn to brag on each other a little more and not do so much tearing down on a partisan basis. All that does is get you in trouble the next day, and it hurts the institution as a whole.

"The public, by and large, across this country believes that legislatures can't accomplish anything because of all the partisan bickering. That is not at all what is happening. Obviously, it takes compromise to get things done," says Ford, who is returning to his private law practice.

UNDERSTAND THE MEDIA IS NOT OUT TO GET YOU

In order to get the legislature's positive points across, lawmakers need to have a good relationship with the media.

One bad story in their local newspaper sometimes causes legislators to quit cooperating with the press, creating an "us against them" mentality.

"Legislators, even those who have had their problems with the media, need to understand that reporters are not for or against anything," Marmillion says.

"They're for selling their news, selling their newspaper, selling their radio programs and their television programs."

"If you become one of those people who reporters rely on because you're one of the people with things worth saying, reporters are likely to cut you some slack if you stumble," Brown says. "They need a relationship with you as much as you need one with them."

There is an added bonus to being respected and depended on by the media. On the occasion where you make an error during an event, the media will be less likely to pounce if they depend on you for quotes and opinions.

CREATE AN ANGLE AND AN IMAGE FOR YOUR STORY

Many state legislatures employ skilled media staff who understand how to frame legislative messages so they are used by the media.

"The best way to do it is to sit back in a room with your best minds and figure out how that sewer transport system that will be paid for with tax money is of interest to the public," Marmillion says. "And that story has to be aligned with a visual image and with an angle that has a 10-second bite to it. Think about the average Joe reading about or watching this and explain what's in it for him, not in 'legistalk,' but in plain English."

Especially with television, it is important that your message is linked to a topical story of current interest and that it has a striking image to back it up. Without the visual image or picture, your message does not have a chance of getting on the television news report.

Marmillion's example of what makes news is a semi-truck on a Los Angeles freeway full of pigs getting in a wreck. "Everybody knows what a pig is, everybody knows what a truck is, and everybody knows what a freeway is," he says. "Your metaphors or your images have to have critical mass appeal to the broadest extent possible, so that everyone watching knows what's going on."

To get on the nightly news television program, your message also needs to be topical and current. "Reporters will not report the amendment to the rule," says Black, "especially if it's irrelevant to the topic of the day. I think that what you do probably in every legislative session has a million relevant things that you can attach to angles. But it has to be within the public consciousness and within what I would call the broadcast consciousness."

In other words, your message has to be tailored to fit what is on the mind of people right now and capable of immediately grabbing the viewer's attention.

THE NEXT CHALLENGE

Marmillion relates communication to campaigning for election, "You figure out what the competition is, you figure out what you have to say. You have to win the message of the day, and you have to have a theme that you stick to.

"I believe we need to launch a concept that builds integrity for state legislatures and our system of government. After a legislator wins an election, he needs to have a second campaign to connect with his constituents. It's that second campaign that's sometimes more important than the one that you get elected with."

Legislatures have shown a willingness in the last decade to open up their processes and make more people aware of their important work. The next challenge is to develop and define messages that help the public understand that the legislative process is sometimes messy, but it has proved to be successful in addressing the major issues of our time.

Although they don't have the backdrop of the USS Abraham Lincoln, state legislators still have the opportunity to be foot soldiers for the cause of democracy here at home.

RELATED ARTICLE: MESSAGES FOR THE PUBLIC

NCSL's Trust for Representative Democracy has created a list of messages lawmakers can use to promote the legislative institution. By conveying these messages every time you have an opportunity, you can help dispel some of the public's cynicism.

These are the things to tell your constituents:

Legislators care. Legislators pay close attention to their constituents' views because they are products of their communities and think in similar ways. They want to work hard for their districts, and most want to be reelected to office. Everybody's opinion is invited and welcome.

You have a voice. People often stop themselves from speaking about issues that matter to them because they think no one will listen or care. If something is important to you, however, it is probably important to other people. By raising your voice, you will find others who share your views. Your school board, city council, state legislators and members of Congress care intensely about what you think. That's their job.

Americans don't agree on most issues. When we surf the Web, watch TV, listen to radio or read newspapers, all we seem to hear is how our public officials are arguing and not getting anything done. People find it hard to understand why elected representatives can't agree on something that, to us, seems to be an obvious choice. If you think that legislators should agree with each other more often, try keeping a record of how many times your family members disagree on simple issues--like what to eat for dinner, where to go on vacation or what movie to rent. The same is true for bigger issues: People in our diverse world do not agree on most issues, except at a very general level.

You are a lobbyist. When people hear the word "lobbyist," they think of someone representing rich corporations walking up and down the legislative hallways. Although it is true that money does have an influence on the system, nearly every public official will tell you that it is individual voters--their constituents--who have the most influence on the decision making process. Voters become even more powerful when they join with others who have similar concerns. You can probably think of several organizations that you or your family belong to or identify with that support your ideas with our state legislature. There are thousands of groups representing almost every interest imaginable. Every issue that comes before a legislature is discussed on its merits by people representing many different points of view.

Compromise is not giving in. The democratic process involves a lot of debate as legislators attempt to find common ground among the differing values and interests of the many voters they represent. Conflict is a natural part of a democracy because differences of opinion exist between the needs and views of different groups, districts, parties and legislative houses, as well as different branches of government. Sometimes these differences are hotly debated for long periods of time, but most are settled through compromise. Deliberation, negotiation and compromise are essential for arriving at common ground that represents the interests of as many people as possible. That is what representative democracy is all about.

Your ideas count! Your voice counts. Your ideas are welcome, and they matter. For our representative democracy to succeed-while preserving our personal freedoms--we must each participate as fully as we can. Educate yourself about what your legislature is doing, and then join with groups that share your interests. Register and vote. Contact your legislator. Encourage others to do so, as well.

BEYOND THE ELECTION: CONNECTING WITH THE PUBLIC

Newly elected state legislators across the country recently received a resource kit from NCSL's Trust for Representative Democracy to help them promote representative democracy and connect with their constituents. "Beyond the Election: Connecting with the Public" provides legislators with information on how to speak with kids and adults, communicate with constituents and work with the media. It contains a video for. speaking engagements, a CD-ROM, a PowerPoint presentation and more.

"Winning an election takes a tremendous amount of effort," says Karl Kurtz, director of NCSL's Trust for Representative Democracy. "just as important is staying in touch with constituents. We believe this resource kit will give legislators some important tools and advice on how to solve problems and communicate with the voters who sent them to the capital."

The kit provides information and resources to:

* Explain representative democracy to adults and children.

* Improve citizens' understanding and support of our nation's democratic institutions.

* Strengthen the democratic process and encourage citizens to play an active role in their government.

* Dispel public cynicism and distrust.

* Better connect with the public and news media.

The need for the resource kit can be demonstrated by some startling statistics. Forty-one percent of Americans believe state lawmakers wouldn't pay much, f any, attention to them if they contacted their legislator. Two-thirds of people between the ages of 18 and 24 feel that their generation's voice is important, but no one is listening.

"Americans value the ideals of representative democracy, but they don't much like how it works," Kurtz says. "NCSL believes this resource kit will help legislators raise public awareness about representative democracy and begin to dispel cynicism about our valued legislative process.

Later this fall, copies of the resource kit will be made available to all legislators. For more information, call Jan Goehring at NCSL, [phone].

Gene Rose directs NCSL's public affairs efforts. Andrew Carlson is an intern at NCSL.