The Science of Public Issue Advocacy
Published in the West Virginia / Executive Fall 2003

Co-authored by Skip Lineberg, Joanna Reed and Stephen Haid

Americans have an unbroken history organizing social, economic and political justice. The generation following the men and women, who had been inspired by the words of Thomas Paine and had fought alongside George Washington, made up abolitionist and feminist organizations that worked to extend the liberties of the American Revolution to the whole population. Often, those two movements were intertwined and mutually supportive. Feminist leaders, such as Lucretia Mott, Elizabeth Cady Stanton and Susan B. Anthony, and abolitionist leaders like Frederick Douglas, Sojourner Truth and Harriett Tubman now occupy separate chapters of history books. But, in life, they knew each other, worked together and shared the same platforms, debates and missions. They all recognized that what united them was greater than what divided them, and trying to divide them was a main tactic of their opponents

Fast forward to present day. Americans are still using much of the same ideology but with a more modern approach. The best way to influence legislation and public policy is through grassroots activism or direct action organizing. Direct action implies a majority strategy, and much of its power derives from the fear haunting all elected officials that they will be defeated at the polls by angry citizens or a corporation’s fear that it will face massive consumer pressure. This means that direct action works best with issues a majority of the population would support, or at least not actively oppose. Grassroots activism is the best method for building local, activist-based membership organizations, as well as larger state and national coalitions. The principles of grassroots have applications in many kinds of organizing, particularly electoral campaigns and advocacy.

A Sculptor Of Public Opinion

Whenever an individual or group seeks to shift public opinion in West Virginia, Dr. Steve Haid is often the first person called for assistance. Haid has a long, distinguished career in public policy in West Virginia, and he has conducted a great number of successful campaigns, both issue-oriented and political in the Mountain State. He is a respected, veteran lobbyist of 30 years, and for many years, he led the lobbying efforts of the West Virginia Education Association. Later, he served as Secretary of Education and the Arts during the administration of former Governor Gaston Caperton. A testament to his understanding of public opinion and political savvy, Haid has assisted in the drafting of three recent “State of the State” addresses for West Virginia’s governors, both Democrat and Republican.

Unmistakably, Haid is one of the state’s foremost authorities on the science of public issue advocacy and its application to reform in West Virginia. WVE contacted Haid to get his views on this popular and effective method of reform.

Q:  What are the applications of public issue advocacy?

A:  The applications of public issue advocacy are endless. Virtually all issues in democratic societies are resolved through public discourse and debate. Those who understand this fundamental dynamic enjoy a distinct advantage. They can plead their case more effectively and can win consequently. Some inside deals are still made in the old “smoke filled rooms,” but major policy direction is made at the bar of public opinion.

Q:  How is public opinion effective in West Virginia, a state that has historically been governed by either the wealthy industrialists or Democratic Party loyalists?

A:  Public opinion always matters. My favorite history professor, Wesley Bagby, was fond of saying, “Power in public affairs is public support.” The meaning is clear: sooner and sometimes later, but always inevitably, majoritarian opinion prevails. In our own lifetime, the end to war in Vietnam, civil rights reform and equal rights for women were all driven by the force of majority public opinion. Even in the Eastern communistic, bloc dictatorships and the old Soviet Union, which were accompanied by the force of state terror, the overwhelming majority of citizens who lost faith in a discredited ideology ultimately undermined the regimes.

In our own state, the reform to medical liability laws was driven by an overwhelming expression of public sentiment. Legislatures, Congress and parliaments typically follow and respond to public opinion and seldom lead it.

Q: How does public issue advocacy differ from lobbying?

A: Lobbying typically refers to direct contact with legislators at the state and federal level. Paid professionals, who bring their client’s message to elected policymakers, usually carry it out. However, citizen lobbyists, who volunteer time to make their case to legislators, can be highly effective—particularly with representatives elected from districts where the citizen lobbyists are voters.

Advocacy is a term that has a more generalized meaning. Anyone can advocate by attempting to influence the opinion of another. In the context of this discussion, ‘advocacy’ applies to attempting to win the favor and opinion of important constituencies who, in turn, express their opinion to elected representatives.

Q: What specific tactics or actions are involved in a public issue campaign?

A:  First, it is essential to know where public opinion is. What do affected constituencies think? What views does the public hold in general? These questions can be answered by modern polling and research techniques.

Secondly, a comprehensive strategic plan must be formulated. This process is equal parts science and art. Quantified research should be applied in a thoughtful and artful manner. The experience gained through previous advocacy campaigns can prove to be invaluable.

Third, it is essential to bring into balance the advocacy plan with the human and financial resources and time available. Many plans fail at this stage because they are based on unrealistic assessments of available resources. Fourth, there must be experienced management present and involved in the execution phase. Circumstances change. Plans and tactics must adjust to the ever-changing reality. Leadership lies in the ability both to recognize and respond to new circumstances.

Q: Obviously, there are similarities between issue campaigns and political campaigns. What are the differences?

A: In a political campaign, the voter is presented a choice between or among candidates. In the process of voting, citizens must choose only one candidate, which inevitably sets the scenario for a victory or a loss. In an issue campaign, the voter has a choice among a new idea, a new program or service and the status quo. Those advocating change must recognize that a higher standard of persuasion exits. Voters must be convinced that the proposal is sound, or they will overwhelmingly side with the status quo. This simple reality often goes ignored, usually at the peril of the advocates of change.

Q: Is public issue advocacy gaining in popularity? Are not such tactics more prevalent in other parts of America?

A: No, I do not think so, and that is largely because of the constitutional set up that only allows for constitutional amendments to be voted on by the entire electorate. In California and some other states, the voters have “initiative,” which allows a whole range of issues to be placed on the general election ballot.

Obviously, there are a number of issues at the local level, i.e., schools, transportation, etc, which are resolved by a popular vote. I do think there is growing recognition that those who successfully influence public opinion on any issue gain a major advantage.

Q: Can you give us some recent examples of successful public issue campaigns that have succeeded in West Virginia?

A:  During the build up to the last regular legislative session (January to March 2003), I was involved in the medical liability reform campaign through Maple Creative. We were hired to plan, organize and execute a public education plan that would lay the proper groundwork for the legislative session. While I believe public opinion was already shifting in that direction prior to Maple’s involvement, we were able to build on the reform base, activate it, mobilize it and project it into the legislative debate. We were successful because the time was right, we executed a good plan, and we had a broad-based cooperative coalition that was essential to the success of the issue.

I did witness the campaign for the passage of the bill to raise the weight limit on coal trucks.  Without being too critical, I did sense that there was the absence of a comprehensive plan and a realization of the importance that the public would ultimately play.

Q: Far too often opposing groups in the battle for public support concerning an issue say things that directly contradict one another. How does a consumer or voter effectively evaluate two or more often-disparate messages?

A:  Usually both sides think that they are presenting a version of the truth. Instead, they are presenting facts—the truth is an accurate aggregation of all the facts. This circumstance is an exceedingly rare phenomenon in the political world, and the result is that the voter has a formidable task, which requires much reading, discussion and thought, to determine what is accurate to them.

Conclusion

As participants or “consumers” of public issue advocacy, it is imperative that readers strive to become better informed. How else can we make informed decisions about the issues that we are urged to support? Public issue advocacy—or democracy, for that matter—is not a passive endeavor. The truth, or the value orientation toward which one is most likely inclined, lies amidst a wide array of facts. To make informed choices, one must commit to dig deeply into the facts surrounding any issue.

What are specific actions one can take? First, seek to understand the organization and the leadership behind any public issue. Before pledging support, ask informed questions of any issue-campaign representative: What is the organization’s ultimate goal? How will the success of the campaign affect consumers and other impacted parties?

Do not hesitate to ask the campaign representative for the names of organizations or individuals who have contributed funding to support the issue in question. Such information is especially important to know if one is contacted and asked to participate in an opinion poll or survey. Find out who is behind the research. Ask how opinions will be used by the inquiring organization. Then, take the time to contact a representative from one or more supportive organizations and ask, “Why are you supporting this issue?”

Next, put elected officials to work. Express an interest or concern about a particular issue that is being debated publicly. Tell the representatives that you want to know more about an issue and ask what they think or believe. A politician is often in a good position to have awareness about such issues and the various groups competing for public support.

Finally, the informed participant must invest the time and energy to research opposing campaigns or parties. As Haid so wisely advised, the truth is an accurate aggregation of all the facts. Before committing valuable support toward an issue that is being publicly debated, take the time to learn the facts.