THE POTENTIAL FOR CONGRESSIONAL USE OF EMERGENT TELECOMMUNICATIONS: AN EXPLORATORY ASSESSMENT by Fred B. Wood May 1974 PROGRAM OF POLICY STUDIES IN SCIENCE AND TECHNOLOGY established under NASA Research Grant NGL 09-101-039 Monograph No. 20 ABOUT THE AUTHOR Fred B. Wood was born in Cambridge, Massachusetts, on September 18, 1945; grew up and attended public schools in Berkeley and San Jose, California; and received his college education at Oregon State University (B.S. in electrical engineering, 1967), Harvard University (M.B.A. in business administration, 1969), and The George Washington University (D.B.A. in management science and public administration, 1974), where he recently completed his doctoral dissertation research on "Telecommunications Technology for Congress: An Exploratory Assessment of Its Potential for Congressional-Constituent Communication." Mr. Wood's professional experience has included short stints with the County Government of Santa Clara, Ca. (Sr. Engineering Trainee), Pacifie Gas and Electric Co., San Francisco (Junior Engineer), and International Business Machines Corp., Armonk, N.Y. (Public Affairs Researcher); and a one-year term as Editor and Publisher of The HarBus News and Careers and the MBA at Harvard Business School, Boston. At George Washington University, Mr. Wood has served as Graduate Teaching Fellow in Management Science, Assistant Professorial Lecturer, Guest Lecturer, and as Research Assistant to the Program of Policy Studies in Science and Technology, where he is currently a Research Associate. Mr. Wood has authored several articles and is a member of various professional associations. NOTE: This monograph is excerpted with permission of the author from Telecommunications Technology for Congress: An Exploratory Assessment of Its Potential for Congressional-Constituent Communication, copyright [e] 1974 by Frederick Bruce Wood, all other rights reserved. A. B. Summary of Methodological Research Results A "Representative Time" Approach to Access Allocation 25 28 30 30 33 40 43 43 15 iii EXECUTIVE SUMMARY areas: The rationale for this research reflects mounting concern in three the role of Congress in the American political system, the ability of congressmen to cope with changing citizen needs and increasingly complex social issues, and the potential of emergent telecommunications technology for helping (or hindering) the congressional-constituent communication process. Based on interviews with Representatives and senior staff from a sample comprised of 40 House offices, the study reached the following conclusions: Current Communication System Constituent communication is viewed as essential to the job of the congressman in his role as: a public official working to carry out important legislative and representative responsibilities; an ombudsman for constituents who need help; an overseer of federal programs and monitor of their effects on citizens; and a politician seeking to ensure re-election. - Representatives currently make heavy use of a wide range of constituent communication channels, of which the following are perceived as most important: personal conversations and group meetings in the district; personal letters via the Washington office; telephone calls via Washington and district offices; district newspaper, radio, and television news coverage; and written questionnaires and reports to constituents. Many congressmen and staff emphasize that effective communication is becoming more difficult all the time. For example: • Longer House sessions and heavier Washington workloads are making it harder to find the time and energy to get back to the district. Upward movement in district population, education, and federal programs with local impact are contributing to a rapidly rising volume of letters, phone calls, and visits from constituents. • Still, only a small minority of constituents ever communicate at all, with response to questionnaires averaging less than 10% and an attendance of 50 persons at public meetings in the district generally considered to be above average. • Access to the mass media and broadcast television in particular is subject to ever-tightening constraints, especially in major media markets (where competition for TV attention is intense and each district accounts for only a minor part of the total market) and in the smallest markets (where local TV coverage is very limited). * Lack of public confidence in Congress, limited constituent understanding of the legislative process, and information overload create additional problems in establishing an effective dialogue. 29-801 0-74-App.-15 Potential for Emergent Telecommunications Emergent telecommunication is perceived in general as having the potential for helping congressmen overcome communication problems and better meet their varied public responsibilities, although emergent channels are not the only and perhaps not the most important part of an overall solution. Congressmen and staff in this sample perceive cable television and information retrieval as potentially the most useful emergent channels for constituent communication, the videoconference and teleconference as somewhat useful, and cable TV polling and the videophone as least useful. * Most frequently cited advantages are the potential to reach more people more effectively, significantly improve upon currently available channels, save time and energy of members and staff, and increase the level and quality of citizen participation and feedback. * Some of these channels are viewed as offering citizens improved means for learning about the Congress, acquiring more relevant information about the legislative process and specific issues, and communicating views and opinions to their congressmen on a more timely and informed basis. The interview survey also identified several possible problems or disadvantages in using emergent telecommunications. Mentioned most often are the possibility of: Abuse and overuse--How can we ensure unbiased use, protection from information overload, privacy of privileged communication, and fair and balanced access? * People problems--Will there be adequate constituent understanding and interest? Insufficient need--Do the emergent systems really offer a significant and needed improvement over current systems? High cost--Will the emergent channels be cost-effective relative to existing channels and other competing priorities for funds? Excessive time consumption--Can the emergent channels actually help members and staff use their time and energy more efficiently? Limited acceptance--Are these channels consistent with the role and responsibilities of congressmen in the American political system; is the public ready to accept emergent channels? * Limited availability--When, if ever, will these channels become a reality? Implications for Public Policy Some congressmen expressed concern that the use of emergent channels might further entrench incumbents. They note that: The perquisites of office already give advantages to incumbents. * Incumbents are generally more newsworthy than potential challengers and are therefore likely to get additional media exposure. * Incumbents may also have advantages in acquiring campaign support and--very important when it comes to telecommunication--campaign funds. V |