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Planning For Chamber AutomationBy: Volume 3, Number 1 Spring 1997 © Journal of the American Society of Legislative Clerks and Secretaries Today, the monolith of the Information Superhighway technology is traveling at warp speed and it is imperative that legislative clerks' and secretaries' staff, as caretakers of the legislative institution, do not resist the future but seek to better understand, control, and develop this technology for the legislature of the 21st century. The legislature of the 1990s is quite different from the legislature of the past. One does not have to travel back in time any further than a decade to view an institution that has undergone significant change. Today, members and staff are confronted with increased legislative demands, complex issues, volumes of proposed legislation, and compressed timetables. In 1993, the National Conference of State Legislatures (NCSL) Legislative Institution Task Force Report on Strengthening State Legislatures noted that "as legislators have assumed a more active policymaking role, the number and complexity of the issues they address has expanded. Consequently, legislative workloads have increased, ... and legislatures have devoted considerable attention to streamlining and improving their operations."1 There exists today a need to balance the traditional legislature with the expectations of a modern legislative body. Coupled with these demands is the necessity for the modern legislator to be provided accurate, relevant, and current information. Further, it is essential that the legislative information be researched, analyzed, compiled, and distributed utilizing the most efficient technological tools available in the legislative environment. Information is the "life-blood" of the legislature of the past and of the future. The efficient management and presentation of information is vital to the success of the legislature of the 21st century. Chamber Automation In the past seven years, various legislative bodies have taken a giant step towards departing the "paper age" and entering the "digital age" by implementing forms of chamber automation. The automation of legislative chambers represents an effort to transform legislatures into more efficient institutions and dispose of the "white plague of legislative paperwork."2 Chamber automation can mean different things to different people: • bill drafting and statutory revision system • amendment/bill text display • bill history/tracking application • amendment processing • voting system • calendar presentation • messaging services such as electronic mail • data warehousing and organization A system may encompass these and other components of the legislative process, or simply be confined to a single application. Legislators today are more computer literate than they were ten years ago. A factor in this computerization is that legislative campaigns are now high-tech operations. As Glenn Newkirk noted, "[t]he campaigns are becoming technically sophisticated..." and members arrive at their legislative office unwilling to be "less automated... than are their campaigns."3 Today's legislators enter their tenure of service with "a set of expectations about what computers should be able to do for them" and although not all are justifiable and beneficial to the legislative institution "they will drive the major developments" of the legislature into the next century.4 There exist many technological products and services that can immediately affect the performance and image of the legislature. "Information highway," "World Wide Web," "wireless," "laptop," "on-line services," "e-mail," "download," and "byte" have been added to the legislative glossary of today. These terms and associated applications have and will become even more prevalent in the legislative office of tomorrow. There is no single recipe for utilizing the myriad of innovative legislative technologies available for chamber automation. Through the application of these resources, the legislature can make significant and positive strides toward improving information content and streamlining and enhancing the legislative process. Further, with successful implementation, legislative process efficiency can improve. This positive approach can be vital in fostering and rebuilding confidence between the citizenry and their legislative leaders and the legislative institution. In varying forms, automation of the legislature has been discussed over the years. Thirty years ago, a New York state senator commented in a National Civic Review article that through the use of computers, legislatures across the country would possess a valuable research tool that would save time and "restore the legislature to its proper equal status with the judicial and executive branches of government."5 In 1990, Michigan broke new ground by unveiling its innovative state-of-the-art chamber automation system. Since then other states have joined and many more are beginning to give serious consideration to the development of similar systems. An example of the varied nature of these systems can be seen in the information below that was presented in the NCSL Guide to Legislative Information Technology Report. Since 1995 when this report was published, some of these states have enhanced their systems, while others have implemented new systems and still others have begun the development phase of chamber automation. While each of these chamber automation systems is unique in its design and application, they do have features that could be of universal appeal to any legislative body such as a user-friendly interface that requires minimal training to operate, touch-screen or screen writing pen, and automatic updates. It is important to remember that members "are there to legislate not operate a computer."6 This approach and an understanding of the legislator's perspective together can assist in gaining members' acceptance and reliance upon the system. However, the success of chamber automation will be directly related to and weighed both against quantifiable performance results that reduce the administrative costs of conducting a legislative session and improved access to information considered vital to effective lawmaking. If the new system can enable you to improve your level of service and save the taxpayers money then positive strides are being made. Savings may be realized by reductions in session staff, work hours, and printing. It should be borne in mind that such technology brings with it an ever present need to maintain the current system and continually review necessary modifications and required updates. Such system changes and enhancements are necessitated by the rapidly changing computer industry, and by the users who expect new features as they strive to make the best use of their legislative time and improve their productivity. Development Studies and experience suggest that the development of any new legislative computer system should utilize a systematic approach that includes a thorough review of current technologies, both implemented and planned by other legislative bodies. Contacts should be made between state legislative information systems' directors, support organizations like the National Conference of State Legislatures (NCSL) and the Council of State Governments (CSG), private sector legislative and non-legislative computer technology vendors, and legislative clerks and secretaries. Information for project development may be collected using data gathering tools such as telephone questionnaires and site visits. Regardless of the method, the key component is that there be uniform questions to guide the staff and members involved in the project in assessing project needs and developing the necessary steps for integration of current and new systems into the legislative process (see suggested questions on page 10). Through this information gathering process, it is hoped that the essential elements of a successful chamber automation system will be identified. Studies further reveal that critical to success is the reliance upon using tested development and implementation elements. The following represent development keys that have been utilized in creating legislative systems since the revolution of automating legislatures began in the early 1970s: Development Keys
Over the years and currently, the development process has not always been smooth. During development and implementation, be prepared for unforeseen consequences and problems when applying new technologies to the legislative process. These problems can occur from unfulfilled promises by the project vendors, pitfalls of integrating the technology to the process, and the static political environs of the legislators and the legislative process. Beware of the panacea perception regarding high-tech solutions. In 1944, when the first computer was unveiled, there were unrealized expectations about its ability to solve problems, improve efficiency, and yield cost savings. For instance, a January 1946 headline in Popular Science magazine illustrates the often-unrealistic hope expressed about the role of the computer in solving problems: "M.I.T.'s 100-Ton Mathematical Brain is Now to Tackle Problems of Peace."7 Unrealistic promises may create expectations among users, i.e., legislators, of significant change and enhancements that will be without problems. This reaction can be mitigated through education and training of legislators and staff before, during, and continuously after the development of the system. A knowledgeable legislator or staff member will have a better understanding and clearer expectations of the impact of technology on the legislative process. Also, it cannot be emphasized enough that the technology should fit the process; the legislative process should not be adapted to the technology. It is important to remember the words of John Abbott Worthley who stated that those who view "the computer as a vehicle for a new improved legislative process, rather than a facilitator for the time-tested and traditional parliamentary process are bent on failure." The real legislative needs must be met or else the available technology may become "superfluous, circumvented, and finally removed."8 This important consideration can be met by giving legislators computer resources that better assist them in making policy and not just replicating "electronically what is currently done manually." Technology can be and should be used by the members to enhance their decision making abilities. The use of laptop computers allows legislators to access information on district and statewide demographic data, population and financial forecasts, crime statistics, socioeconomic indicators, and other facts which are important to them whether or not the legislator is in the Capitol Building. Historical Dilemma to Chamber Automation The historical settings of some state capitols present particular difficulties when applying technology. How may the hardware and cabling requirements of computers be installed while preserving the aesthetics of the building? There must be a balance between preservation and innovation and various states have achieved success in this balancing act. Many states have completed or are considering capitol renovation projects. This is an excellent time to plan for the future while preserving the past. The Michigan Senate "successfully integrated computers and high-tech voting into the Victorian decor when it restored the chamber ...." It was stated by the architectural company representative that "flexibility is basic to the design." Texas faced similar hurdles during its capitol renovation. It became apparent that a "compromise between historical accuracy and practicality" would have to be forged.9 Is There a Vision? In the development of any legislative technology system, it is helpful to have a vision of the proposed system and how it will grow and respond to the needs of the legislature over time. This can be achieved by using the concepts of strategic planning. Studies have shown success by the private sector when some form of strategic planning exists. Those companies that do utilize a strategic plan are usually more successful than those without a plan. Thus, why not take this proven track record of success and transfer its features to the legislative environs? Robert B. Denhardt, in "Strategic Planning and State Government Management," presents the analogy of military strategy that involves "deploying one's own forces so as to impose upon the enemy the time, place and conditions for fighting preferred by oneself."10 Through this example, he implies that planning better prepares an organization to better engage the future. Therefore, when applied to a legislative agency, the organization can anticipate and proactively encounter the obstacles and challenges that will be presented by the evolving legislature. Further, it is summarized that by using a strategic plan, the organization's decision makers can clearly define the relationship of the total organization to its work environment. The plan can thus serve as a guide for carrying out specific responsibilities and assist in identifying and analyzing operational development and necessary resources. In addition, Denhardt notes that technical planning can yield benefits such as granting "clarity and direction to the organization," providing a methodology to "choose from among competing goals and activities," and preparing staff for "unexpected shifts in the environment."11 Preparation of a static organizational plan is of extreme importance to the legislative environment. Many argue that elections, current term limit policies, and the ever present potential for change of political leadership create an atmosphere that makes planning difficult, if not impossible. However, for these reasons high-tech strategic planning is even more essential. As Denhardt states, "if the future is certain, planning is not really needed; under conditions of uncertainty, planning is essential."12 For technology planning to be successful, it is essential to involve staff and legislators in developing and monitoring the organization's technology strategic plan. If effectively implemented it can serve to strengthen morale and build trust and confidence as each new system is developed and implemented. Conclusion A Montana Legislative Council study noted that "personal computers are a fact of life for our society. The potential for time and labor savings is practically unlimited. Information is the most important aspect as a legislator. Any means to improve our method of obtaining accurate information would be very valuable."13 These comments solidify the fact that timely access to legislation, legislative reference materials, fiscal and budget information, and executive branch agency data is critical to the success of the legislature in the 21st century. The weaving of the varied and related components of a legislative process network is an important challenge facing chambers across the country. Many factors must be considered when development of a chamber automation system is undertaken. There exist questions that center around the integration of traditional legislative processes and procedures, technical considerations, economic capabilities, and members' political concerns. Further, most legislative bodies do not meet year round so expenses for equipment must be fully explored and thoroughly justified. The utilization of a technology strategic plan can be helpful in the development and implementation process. It is important that both members and staff are aware of the direction and route planned for technology innovations affecting the legislative process. The availability of technology to the legislature will change the lawmaking process in fundamental ways. Clerks and secretaries have the responsibility to strive for the improvement of the process, but not at the expense of the institution. Technology will present a catch-22 for members and staff. Information will be available at the touch of a button or a screen, or the click of a mouse. However, with these positive technology developments, legislators will be confronted with the requirement to process information more quickly and be cognizant that the demands of the position will increase. Of course, along with the implementation of new high-tech resources comes the necessity to maintain and upgrade them. The economic reality of a high-tech legislature will require a constant revenue stream that will provide the necessary equipment, staff, and training required for the legislature to efficiently and effectively operate in its evolving high-tech environment. Endnotes 1 "Legislative Institution Task Force Report on Strengthening State Legislatures," NCSL Report, 1993, p. 13. 2 "State Legislature Use of Information Technology," Communication from the Chairman, Commission on Administrative Review, U. S. House of Representatives, Congressional Research Service, Washington, D. C., 1977, p. 2. 3 Newkirk, M. Glenn, "Trends in State Legislative Information Technology," Government Information Quarterly, Volume 8, Number 3, p. 266. 4 Ibid., p. 267. 5 "State Legislature Use of Information Technology," p. 3. 6 Miller, Brian, "Wired Capitols, Laptop Legislators," Government Technology, May 1995, p. 1. 7 "State Legislature Use of Information Technology," p. 32. 8 Ibid., p. 33. 9 Loyacono, Laura, "Combining Computers and Curlicues," State Legislatures, October 1991, p. 27. 10 Denhardt, Robert B., "Strategic Planning and State Government Management," State Government, Volume 58, Number 4, p. 179. 11 Ibid., pp. 179-180. 12 Ibid., p. 180. 13 "A Study on the Use of Computers by Legislators," Montana Legislative Council, October 1992, p. 3.
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