NCSL: New Member Orientation

New Member Orientation Survey Results

Prepared by the
Legislative Effectiveness Committee

February 2002

New Member Orientation

Legislating is tough work and there is little time for new members to adjust to their new responsibilities. Being a state legislator means having to make tough decisions on spending and policy, and dealing with constituent problems. Although a person's business or professional life and previous political experience provide a helpful start, state legislatures use new member orientation and other training to help legislators prepare for their difficult new duties.

New member orientation is getting a makeover. Although it has been fairly common practice to orient new legislators to their duties, state legislatures are taking it more seriously and are modifying training based on feedback and surveys, understanding of adult learning styles and the new needs in today's legislature. States are beginning their planning earlier each time, trying to make the training "hands on" and practical, recognizing the key role technology has to play in the legislative process, and covering topics like ethics and sexual harassment that may not have been included ten years ago. New legislators will not have the opportunity to ease into their duties -- they will need to be effective right from the start and new member orientation has to help them meet those expectations.

The Legislative Effectiveness Committee of the National Conference of State Legislatures (NCSL) decided in 2001 to survey state legislatures to learn more about these important new member orientation and legislator training programs. Seventy-four of the 99 state legislative bodies and the Puerto Rico House of Representatives responded with detailed information about the topics, method, duration and faculty used in their programs. They also provided tips and guidelines for their colleagues. This document provides an overview of the results, a series of tables showing state responses and a list of key contacts for new member orientation.

Planning

Planning for new member orientation is often a joint venture involving the House or Senate Chief Clerk or Secretary, one or more legislative agencies and legislative leadership (see Table 1). States tend to find that planning needs to start early, that a variety of viewpoints are needed in the planning process, and that the backing of leadership for training is critical. In addition to these three traditional sources of planning, states such as Alabama, North Carolina and Texas receive help from their higher educational institutions.

Duration

Most state legislatures provide a new member orientation that is in the one day to 2.5 days range, finding that is the right balance between imparting key information and respecting legislators' busy schedules (see Table 2a). California, Colorado and the Florida House have greatly increased the time spent on the orientation, finding it a valuable experience. They are also breaking the training into phases of two or three days so that legislators have time to think and reflect on what they've learned in a previous phase. This approach provides training in manageable "chunks" rather than overwhelming the participants with too much information at once. Missouri includes a two-week road trip to visit state facilities and programs in addition to a five-day orientation.

Reimbursements

State legislatures most commonly provide a mileage reimbursement for new legislators attending orientation (see Table 2b). More than half the respondents report that participating legislators are paid salary or a per diem. Some states provide for expenses under a voucher system, with only a handful of states using unvouchered expense reimbursements.

Training Tools

One of the biggest changes in new member orientation concerns how the training is provided (see Table 3). Traditional methods of presentations and panels are still highly popular, but states are using mock floor sessions and committee sessions to give new legislators some "hands on" training. Presentations are often made with PowerPoint to enhance participant's understanding. States are also supplementing the training with handbooks, audiotapes and videotapes to help legislators educate themselves at their own pace and convenience. A few states are including case studies and mock media sessions in their training.

Faculty

States tend to rely on current legislators and legislative staff to provide the training for new member orientation (see Table 4). In addition, many states also include lobbyists, state agency officials and staff, and former legislators as part of their faculty. A few states also include university faculty, NCSL staff and other outside consultants, trainers and facilitators.

Substantive Issues

States vary greatly on the types of substantive issues they include in new member orientation (see Table 5). Some bodies, such as the Florida House, place a great emphasis on learning about substantive issues, while states on the other end of the spectrum figure legislators will learn these issues largely through the committee process and "on the job" training. Most of the states provide some training around ethics and conflict of interest laws and policies. Many states provide overviews of their taxes and tax policy, education system, health and welfare programs, environmental policy and judiciary. An increasing number of states are also covering their sexual harassment policies.

Procedural Topics

Understanding the legislative process has been the cornerstone piece of new member orientations, and it continues to be a critical topic (see Table 6). The orientation almost always covers the bill enactment process, legislative rules (parliamentary procedure), the role of staff, the committee system and administrative details such as expense reimbursement. States often include the budget process, media relations, constituent service, state government organization and the role of party caucuses.

Technology Issues

As legislatures become increasingly reliant upon technology, more states are making technology training a part of new member orientation (see Table 7). Legislators typically learn how to use their laptops or other computers, what the rules are regarding legislative technology, the particulars about the legislature's web site and how to use the legislative e-mail system. A handful of states provide assistance in creating a legislator's personal web site. Many states indicated that their technology issues are really handled by some group orientation and training, followed by individually-focused assistance and training.

Continuing Education

Some states are developing continuing education sessions as a follow-up to new member orientation (see Table 8). While less than half of the respondents use continuing education programs, it is on the rise. Typical topics are computer training, budget process, parliamentary procedure, sexual harassment policies and emerging policy issues.

Advice

The staff and members who plan new member orientation have strong opinions about what leads to a successful program. They emphasize:

plan well ahead.
get ownership by leadership.
don't overwhelm the participants.
focus on the essentials.
make it "hands on".
give the participants time to get to know each other.
be flexible and make necessary on the spot adjustments.
provide training in segments that allow time for reflection.
custom fit your computer training for a wide ability range.
give the participants materials that allow them to continue learning.
get feedback and adjust future programs based on the feedback.

Table 1. Who Plans New Member Orientation Program

State *	House or Senate Clerk or Secretary	Legislative Service Agency	House or Senate Leadership	Other
Alabama	S	B		1
Arizona	S		S
Arkansas			H	2
California	H		H	3
Colorado	B	B	B
Delaware	B	B
Florida	B	S	B
Hawaii	B	B
Idaho		B
Indiana		B
Iowa		B	B
Kansas	B		S
Kentucky		B	B
Louisiana	B	B	B
Massachusetts				4
Michigan	B	S	S
Minnesota	S			5
Mississippi	B	B	B
Missouri	H	B		6
Montana	B	B	B	7
Nebraska	U
Nevada	B	B
New Hampshire	B	B	B
New Jersey	H	H	H
New Mexico	H	H	H
North Carolina	B	B		8
North Dakota	B	B
Ohio	B	B	B
Oregon	S	S	S
Pennsylvania			H
Rhode Island		B
South Carolina		H	H
South Dakota		B	B
Tennessee	B
Texas	B	B	B	9
Utah	B	B	B
Vermont		B
Virginia	B		B
Washington	S		S	10
West Virginia	H		H
Wisconsin		B
Wyoming		B	B
Puerto Rico	H	H

Key: S = Senate
H = House or Assembly
B = Both Chambers
U = Unicameral

Notes:

Alabama: The Alabama Law Institute assists with new member orientation.
Arkansas: The Senate orientation is planned by the Senate Chief of Staff.
California: The Capitol Institute is a separate office that provides training year round.
Massachusetts: Additional planning by the Senate Legislative Education Office and the University of Massachusetts at Amherst.
Minnesota: House new member orientation is planned by an experienced House member.
Missouri: Informal group of members assisted in planning.
Montana: 12 member Legislative Council provided guidance in planning.
North Carolina: The North Carolina Institute of Government assisted in planning.
Texas: The LBJ School of Public Affairs at the University of Texas assisted in planning.
Washington: The caucus staff assists in planning.

* The following states or chambers did not respond to the survey: Alaska, California Senate, Connecticut, Georgia, Illinois, Maine, Maryland, Massachusetts House, New Jersey Senate, New Mexico Senate, New York, Oklahoma, Oregon House, Pennsylvania Senate, South Carolina

Senate, Washington House, West Virginia Senate and Puerto Rico Senate.

Table 2a. New Member Orientation Program Length

	Program Length
State *	Less than 1 day	1-2 days	2.5 days	3-6 days	7-10 days	11-14 days	Other
Alabama	S	H
Arizona	S
Arkansas			S	H
California			H
Colorado					B
Delaware		B
Florida	S						1
Hawaii	S				H
Idaho				B
Indiana		B
Iowa		B
Kansas		B
Kentucky			B
Louisiana		B
Massachusetts				S
Michigan		S		H
Minnesota		S		H
Mississippi	B
Missouri							2
Montana		B
Nebraska		U
Nevada			B
New Hampshire		B
New Jersey		H
New Mexico		H
North Carolina		B
North Dakota		B
Ohio				B
Oregon				S
Pennsylvania				H
Rhode Island		B
South Carolina		H
South Dakota		B
Tennessee	B
Texas				B
Utah		B
Vermont		B
Virginia		S	H
Washington	S
West Virginia				H
Wisconsin		B
Wyoming				B
Puerto Rico				H

Key: S = Senate
H = House or Assembly
B = Both Chambers
U = Unicameral

Notes:

Florida: Length of House orientation varies depending on number of new members. 2000 orientation was 10 days.
Missouri: Five-day orientation and a two-week road trip to visit state facilities and programs.

Senate, Washington House, West Virginia Senate and Puerto Rico Senate.

Table 2b. New Member Orientation Reimbursements

	Reimbursements
State *	Per diem or salary	Vouchered expenses	Unvouchered expenses	Mileage
Alabama	H			H
Arizona
Arkansas	H			H
California
Colorado
Delaware				B
Florida	B	B		B
Hawaii	B
Idaho	B	B	B	B
Indiana	B			B
Iowa		B		B
Kansas	B		S	B
Kentucky		B		B
Louisiana	S			S
Massachusetts
Michigan		B		B
Minnesota		H		B
Mississippi
Missouri
Montana	B	B	B	B
Nebraska
Nevada	B			B
New Hampshire
New Jersey
New Mexico
North Carolina	B			B
North Dakota	B	B		B
Ohio
Oregon	S			S
Pennsylvania	H	H		H
Rhode Island
South Carolina	H		H	H
South Dakota	B			B
Tennessee	B			B
Texas		B		B
Utah	B	B		B
Vermont
Virginia	H	H		H
Washington	S			S
West Virginia			H	H
Wisconsin	B
Wyoming	B			B
Puerto Rico	H	H	H

Key: S = Senate
H = House or Assembly
B = Both Chambers
U = Unicameral

Senate, Washington House, West Virginia Senate and Puerto Rico Senate.

Table 3a. New Member Orientation Program Training Tools

	Training Tools
State *	Presentations	Panel/talk show format	Case studies	Mock floor session	Mock committee hearing
Alabama	B
Arizona	H	H		H	H
Arkansas	H			H
California	H	H	H	H	H
Colorado	B	B	B	B	B
Delaware	B			B
Florida	B	B			H
Hawaii	B	H
Idaho	B		B	B	B
Indiana	B
Iowa	B	B
Kansas	B	B		B	B
Kentucky	B	B	B
Louisiana	B		H	B	B
Massachusetts	S	S	S	S	S
Michigan	B	B	H	B	S
Minnesota	B	H	H		H
Mississippi	B
Missouri	H		H	H	H
Montana	B	B		B	B
Nebraska	U	U		U
Nevada	B	B	B	B	B
New Hampshire	B	B		B	B
New Jersey	H
New Mexico	H	H		H	H
North Carolina	B	B		B
North Dakota	B
Ohio	B	B		B	B
Oregon	S	S	S	S	S
Pennsylvania	H	H
Rhode Island	B	B	B	B	B
South Carolina	H	H		H	H
South Dakota	B			B	B
Tennessee	B			B
Texas	B	B
Utah	B	B		B
Vermont	B	B	B	B	B
Virginia	B	H		B	B
Washington	S	S
West Virginia	H			H	H
Wisconsin	B	B
Wyoming	B	B	B	B	B
Puerto Rico	H	H	H	H	H

Table 3b. New Member Orientation Program Training Tools

	Training Tools
State *	Mock media session	Handbooks	Power-Point	Videos	Audiotapes	Other
Alabama		B
Arizona
Arkansas		H	H			1
California		H	H	H
Colorado		B	B
Delaware		B
Florida		B	B	H	H
Hawaii		S	B
Idaho		B
Indiana		B	B	B
Iowa		B		B
Kansas		B
Kentucky		B	B	B
Louisiana		B	B			2
Massachusetts	S	S	S	S	S
Michigan	S	B	S	B	B
Minnesota		B	B	B	H	3
Mississippi		B
Missouri			H
Montana		B
Nebraska		U	U			4
Nevada		B	B	B
New Hampshire		B
New Jersey		H
New Mexico		H		H	H
North Carolina		B
North Dakota		B		B
Ohio		B	B
Oregon	S	S	S	S	S
Pennsylvania		H				5
Rhode Island	B	B	B	B	B
South Carolina		H	H
South Dakota		B	B
Tennessee
Texas		B
Utah		B	B
Vermont		B
Virginia		B	B
Washington		S	S
West Virginia		H
Wisconsin		B	B
Wyoming		B		B
Puerto Rico	H	H	H	H	H

Key: S = Senate
H = House or Assembly
B = Both Chambers
U = Unicameral

Notes:

Arkansas: House also includes handouts.
Louisiana: House also uses intensive one-day training for members related to vacancies, which includes conversational training from key staff. Regular House orientation also includes a legislative "play" with acts, scenes and break-out sessions.
Minnesota: House uses break-out sessions. Senate includes follow-up training with Secretary of Senate and 1st Assistant Secretary.
Nebraska: Also includes handouts.
Pennsylvania: House media training done in caucus.

Virginia Senate and Puerto Rico Senate.

Table 4 a. New Member Orientation Program Type of Faculty

	Type of Faculty
State *	Current legislators	Former legislators	Out of state legislators	University faculty
Alabama	H			H
Arizona
Arkansas		H
California	H	H		H
Colorado	B	B
Delaware	B
Florida	H	H	H	H
Hawaii		H
Idaho
Indiana	B	B
Iowa	B
Kansas	B	S
Kentucky	B	B
Louisiana	B
Massachusetts	S			S
Michigan	B	B
Minnesota	H	H
Mississippi	B
Missouri	H	H
Montana	B	B
Nebraska	U
Nevada	B			B
New Hampshire	B
New Jersey	H
New Mexico	H	H
North Carolina	B			B
North Dakota
Ohio	B	B		B
Oregon	S	S	S
Pennsylvania	H
Rhode Island	B
South Carolina	H			H
South Dakota	B	B
Tennessee	B
Texas	B
Utah	B
Vermont	B	B
Virginia	B	H		H
Washington	S
West Virginia	H	H
Wisconsin	B			B
Wyoming	B	B
Puerto Rico				H

Table 4 b. New Member Orientation Program Type of Faculty

	Type of Faculty
State *	Legislative staff	Lobbyists	State agency officials and staff	Consultants, trainers, facilitators	Other
Alabama	B	H	H
Arizona	S		S
Arkansas	H		B
California	H	H		H
Colorado	B			B
Delaware	B	B	B
Florida	B	H		B
Hawaii	B		B
Idaho
Indiana	B		B		1
Iowa	B	B	B
Kansas	B	B	S
Kentucky	B	B	B		2
Louisiana	B	S	S		3
Massachusetts	S	S	S	S
Michigan	B	B	H	H
Minnesota	B	H	H	H
Mississippi	B	B
Missouri	H				4
Montana	B	B	B		5
Nebraska	U		U		6
Nevada	B	B
New Hampshire	B	B
New Jersey	H		H
New Mexico	H		H
North Carolina	B
North Dakota	B		B
Ohio	B	B	B
Oregon	S	S	S
Pennsylvania	H
Rhode Island	B
South Carolina	H	H
South Dakota	B		B
Tennessee	B		B
Texas	B	B		B	7
Utah	B
Vermont	B
Virginia	B	H	B		8
Washington	S
West Virginia	H	H	H
Wisconsin	B				9
Wyoming	B	B	B
Puerto Rico	H			H

Key: S = Senate
H = House or Assembly
B = Both Chambers
U = Unicameral

Notes:

1. Indiana: Governor, First Lady, Chief Justice, NCSL and CSG are also faculty.

2. Kentucky: NCSL, CSG, SLC and ALEC are also faculty.

3 Louisiana: House also includes keynote, lunch and dinner speakers.

4. Missouri: House also includes media.

5. Montana: Media are also faculty.
Nebraska: Media are also faculty.
Texas: Media are also faculty.

8. Virginia: Media are also faculty.

9. Wisconsin: NCSL and CSG are also faculty.

House, Pennsylvania Senate, South Carolina Senate, Washington House, West Virginia Senate and Puerto Rico Senate.

Table 5a. Substantive Issues Covered by New Member Orientation

	Substantive Issues
State *	None	Taxes and tax policy	Education system	Health/ welfare/ other human service programs	Environment/ natural resource programs
Alabama		H	H	H	H
Arizona
Arkansas		S
California		H	H	H	H
Colorado		B
Delaware		B	B	B	B
Florida		H	H	B	H
Hawaii
Idaho
Indiana		B	B
Iowa
Kansas
Kentucky
Louisiana		B	S	S	S
Massachusetts
Michigan	H
Minnesota	S	H	H
Mississippi	B
Missouri
Montana
Nebraska
Nevada
New Hampshire