    Beating the Bureaucracy
   A Citizen's Guide to Influencing the Administration
     _________________________________________________________________

     Congress may write the laws, but it is up to the Administration,
     the President and its agencies, to execute the policies that affect
     every citizen."
     - White House staff member

                              The White House

                                Introduction
                                 __________

   20/20 Vision Education Fund has produced a resource for grassroots
   activists across the country on how citizens can most effectively
   influence the Administration. The Administration, or Executive branch,
   is made up of federal agencies which include departments with
   Secretaries who sit on the President's cabinet, agencies such as the
   Environmental Protection Agency (EPA), and the White House offices. In
   preparation for this report, 20/20 Vision staff interviewed over 25
   Administration employees to gain insight from their experience and
   observations. Staff met with representatives from the White House,
   Environmental Protection Agency, Department of Defense, Department of
   Energy, Department of State, and Department of the Interior. Sample
   questions included:
     * What happens to letters sent to the White House or other agencies?
     * Does the Administration pay attention to letters to the editor
       published in newspapers?
     * What number of letters or calls gets the Administration's
       attention?
     * Is it better as a citizen to affiliate yourself with a national
       organization?
     * Which actions are the most effective: phone calls, letters,
       editorials?
     * What is the role of members of Congress in influencing
       Administration officials?

   20/20 Vision subscribers and other citizen lobbyists have become
   skilled in lobbying Congress. Influencing the Administration, however,
   proves more difficult than influencing Congress. There are several
   inherent difficulties in targeting the Administration on current
   issues. Some of the differences include:

     * Administration agencies are highly bureaucratic and complex. The
       Administration is comprised of a constantly changing set of
       actors, and Administration staff directories are subject to
       changes right after publication. Not only do positions change from
       Administration to Administration, but during a President's term,
       political appointees resign or are reassigned. Thus, it is much
       harder to identify the appropriate Administration officials to
       whom you should direct your actions. Often it is unclear who is
       actually making the decisions and who is involved in the decision
       making process.
     * In addition, each agency is a separate entity operating
       independently of each other. Much like an individual business
       enterprise, each agency has its own hierarchy and methods for
       getting work accomplished. We found the agencies to be so
       compartmentalized that employees often do not interact with
       colleagues down the hall or know what tasks each division is
       responsible for. Because of this, responses to citizen requests
       take much longer to process in an agency than within a
       congressional office.
     * Administration agencies have no true constituency. Unlike members
       of Congress, who are accountable to the citizens who elected them,
       agencies do not have a public constituency. As a staff member
       pointed out, the Secretary of Defense has a constituency of one,
       the President. Therefore, Administration staff are not under the
       same political pressure to respond to inquiries or appeals.
     * Administration agencies' tracking systems for letters and phone
       calls differ widely. Unlike Congress, where correspondence is
       tracked, tallied, and responded to, most agencies are not equipped
       to handle large volumes of mail or phone calls. Because of this,
       phone calls are often not returned and letters may not be
       answered.

   These factors make contacting and communicating with the
   Administration extremely challenging, but not impossible. Throughout
   our research we were repeatedly told that the Administration needs to
   hear from concerned citizens. "Tell citizens to keep writing. The
   Administration needs to hear what the public is saying," said an EPA
   staff member. This guide is designed to help citizens overcome the
   challenges and determine the most effective ways to communicate with
   and influence the Administration.

   Several common themes emerged from 20/20 Vision Education Fund
   interviews with different Administration employees. Although the
   agencies varied widely, all agreed that the most effective means for
   attracting the attention of the Administration are to:
     * Work with your members of Congress;
     * Take advantage of regional offices;
     * Use the media; and
     * Utilize channels unique to the Administration.
     _________________________________________________________________

   - Department of Energy staff member

   Letters and calls from a member of Congress, especially a member on a
   committee or subcommittee with jurisdiction related to the particular
   Administration agency (e.g., responsible for funding the particular
   agency), carry a great deal of clout. "A letter from a member of
   Congress with seniority is best," said one Department of Energy staff
   member.

     * Ask Your Member to Contact the Administration.
       As a Department of State staff member said, "Calls from members
       who say 'I've gotten 100 letters from my constituents on this' are
       extremely effective." Citizens should ask their member of Congress
       to contact the Administration in support of a timely issue. For
       example, have your Senator write the President to urge his
       leadership in seeking to negotiate an international treaty. If it
       is not possible to ask your member to write directly, try one of
       the following.
     * Citizen Letters Forwarded.
       Letters carry more weight if forwarded to the Administration from
       a member of Congress. For example, you can make an inquiry or
       request that pertains to the work of a particular agency and your
       member of Congress will pass on your letter with a cover memo
       highlighting the request. This method catches the attention of the
       agency. "A congressperson or his/her staff interested in an issue
       gets your letter on top of the pile," commented a Department of
       the Interior staff member.
     * Double Duty.
       Citizens should write a letter to an Administration agency and
       send a copy of their letter to their member of Congress. Citizens
       should alert their member of Congress that they have written the
       Administration and hope that he/she will follow up with a phone
       call or letter.
     * Think Politically.
       "Letters from key political areas are more important; they get
       more attention," remarked a Department of Energy staff member. The
       Administration considers the viewpoints of constituents in
       politically sensitive states with large populations (such as
       California, Illinois, Michigan, New York, Ohio, Pennsylvania and
       Texas) when forming policy. The Administration pays attention to
       citizens in these states because they could be political "hot
       buttons" and have an impact on the primary races and/or the
       national election.
     _________________________________________________________________

                     Take Advantage of Regional Offices
                                 __________

     "A vast majority of issues are formed on the ground. Regional
     directors and field office directors have a sense of what's
     important to the community."
     - Department of the Interior staff member

   Some of the Administration agencies have regional offices or field
   facilities to cover specific areas of the country. Citizens can take
   advantage of regional offices of the Environmental Protection Agency
   and the Department of the Interior when addressing an issue specific
   to their locality, such as a landfill or pollution problem. The
   Environmental Protection Agency has nine regional offices with
   administrators working on community outreach. The Department of the
   Interior has regional public liaison offices to deal with inquiries
   and comments. Many day to day decisions are resolved in the field
   while overall policy and direction is funneled from Washington, D.C.
   Regional office staff are often more accessible. Although the
   Department of Energy has regional operations offices, citizens are
   recommended to contact the head office in Washington, D.C.

   To find out about regional offices, citizens should contact the
   department or agency public affairs office. When calling, state the
   issue you are concerned about and ask for the regional office that
   covers this issue, usually based on where you live. For example, the
   Department of the Interior has different regional offices for the
   National Park Service, the U.S. Fish and Wildlife Service, and the
   Minerals Management Service.
     _________________________________________________________________

                               Use the Media
                                 __________

         "This Administration is sensitive to what's in the news."
                    - Department of Defense staff member

   Another means for citizens to influence the Administration and its
   policies is strategic use of the media to catch the Administration's
   attention and convey public opinion.

   Agencies clip newspapers daily for articles, letters to the editor,
   and editorials. Agencies look for any mention of their agency or the
   issues their agency addresses. Agencies with regional offices or
   facilities clip corresponding local papers. Although each agency has
   it own system, daily clippings are regularly circulated throughout all
   agencies. "We are aware of media pieces that affect the department.
   All of us read the clips everyday," said a Department of the Interior
   staff member.

   Citizens should take advantage of the following media tools:
     * Letters to the Editor

     "Letters to the editor serve as a very important tool to gauge the
     mood of the public."
     - Department of the Interior staff member
       "A good letter in the right newspaper will be read in Washington,"
       remarked a State Department staff member. Letters to the editor
       are an easy way to voice your opinion to Administration policy
       makers and are impossible to overuse. Letters can be used to
       correct or interpret facts in response to an inaccurate or biased
       article which has appeared, to explain the connection between a
       news item and an issue, or to praise or criticize a recent article
       or editorial. Such letters provide a vehicle for showing how
       Administration policies impact a local community or region.
       In your letter you should mention a specific Administration
       official or agency to increase the likelihood of your letter
       landing on the right desk. Letters to the editor are sometimes
       used by a department to further its position on Capitol Hill. For
       example, the State Department used a favorable letter to the
       editor to support the Administration's request for funding
       peacekeeping efforts.
     * Op-Eds & Editorials

     "Op-eds and editorials are an important way to communicate policy
     and influence the Administration."
     - Department of Defense staff member
       Op-eds and editorials can serve to build support for or against an
       initiative. For example, editorials in newspapers have served to
       gain the Administration's support for a particular policy, such as
       declaring a nuclear testing moratorium. "Political people are
       educated by editorials and op-eds. They cause awareness of an
       issue," commented a White House staff member. On the other hand,
       critical op-eds and editorials printed about a President's
       political appointment nominee have worked against candidates. Such
       pieces were seen to reflect a tide of negative reaction to the
       nomination.
     * Events

     "Citizens should take advantage of media events which get a lot of
     attention and make a difference."
     - Department of Energy staff member
       Administration staff members encouraged citizens to use media
       events to get the Administration's attention. For example, press
       conferences and televised town meetings help shape Administration
       policy. Furthermore, "With over 60 percent of the American
       population tuning in to talk radio, the Administration is aware of
       how the media mirrors public opinion," remarked a campaign
       consultant.
     _________________________________________________________________

               Utilize Channels Unique to the Administration
                                 __________

   In influencing the Administration, citizens must keep in mind that not
   all policy decisions have to be run past and/or approved by Congress.
   In fact, the Administration has powers restricted to the office of
   President as well as the entire Executive branch. In determining how
   to lobby the Administration, citizens should look at a variety of
   vehicles that set policy.

     * Agency Decisions

     "Citizens can influence how regulations are written."
     - Department of Defense staff member
       Rather than pass highly detailed laws, Congress legislates in
       broad language, setting certain goals and instructing
       Administration personnel to hammer out technical matters,
       regulatory procedures, and rules that meet those goals. Agency
       rule makings (i.e. regulations) are the process by which laws are
       implemented and are not subject to congressional approval. They
       usually involve a public comment period. Citizens can write and
       submit comments to the public docket or write to the policy maker
       within the department. Public comment periods may also be
       accompanied by open meetings at which citizens can testify or
       attend. Information about rule makings and public comment periods
       is listed in the Federal Register, the official U.S. government
       record published each weekday of all Executive branch
       announcements, proposals, and regulations. Copies of the Federal
       Register may be found in major libraries or purchased from the
       Government Printing Office at (202) 512-1800.
       For example, a public comment period was opened when the EPA was
       determining whether or not to adopt stringent car emission
       standards in the 12 northeastern states.
     * Presidential Veto.
       When Congress passes legislation the President has the power to
       sign the bill into law, or to refuse to sign it: a veto. The
       President must veto a bill within ten days after it is submitted
       and return it to Congress with a message stating his reasons.
       Congress may try to override his veto and enact the bill into law.
       The override of a veto requires a recorded vote with a two-thirds
       majority voting in both the House and Senate. Citizens can write
       to the President encouraging him to veto a piece of legislation
       that is coming to him for a signature. In addition, citizens can
       contact their member of Congress to vote for or against the
       override of a veto.
     * Executive Orders.
       This critical instrument of active presidential power is nowhere
       defined in the Constitution, but generally is construed as a
       directive that becomes law without prior congressional approval.
       Executive orders usually pertain specifically to government
       agencies and officials, but their effects often reach to the
       average citizen. For example, Lyndon Johnson in 1965 required
       firms that win federal government contracts to create programs for
       hiring more minorities, thus significantly affecting private
       sector employment practices. There are no specific constitutional
       procedures for issuing executive orders, but the text of all
       executive orders must be published in the Federal Register.
       An executive order addresses the Executive branch across the
       board, is long term (may carry over from one Administration to the
       next), and is public. For example, such executive orders have
       included:
          + requiring the federal government to use recycled paper, to
            convert 11,000 federal vehicles from gasoline to alternative
            fuels, and to utilize energy efficient computers.
          + promoting "environmental justice," aimed at controlling
            hazardous substances in communities regardless of race or
            economic circumstances.

   Proposed executive orders can originate from almost anywhere in the
   Executive branch. A few are composed directly in the White House, but
   most emanate from various agencies. Some orders, such as those
   affecting another nation, may be written at the explicit instruction
   of the President, but most are composed by career staff personnel in
   the agencies to implement federal regulations or propose new rules or
   procedures. Executive orders by nature exclude Congress from the
   process of decision making, often leaving the legislature to catch up
   after the fact. Citizens can contact the President and request an
   executive order to be produced.

   Another instrument, which usually deals with national security issues,
   is called a Presidential Decision Directive (PDD) and gives specific
   instructions to a limited number of agencies. Although classified,
   often the language of presidential directives gets leaked to the press
   prior to being officially approved and signed by the President.
   Citizens can write the Administration during the period when a PDD is
   being debated. For example, when the Administration reviewed its arms
   transfer policy, citizens wrote to the President to express an
   alternative position.

     "People on the ground writing letters provide a highly valuable
     tool for getting the word out to policy makers."
     - Department of the Interior staff member

   Keep in mind letters can be used as reinforcement to back up or
   determine an agency policy. For example, if an agency has not yet
   determined its internal position, stacks of citizen letters may be
   used to show public opinion or support and persuade department
   personnel to select the public stance exhibited in the letters. A
   Department of Energy staff member recalled, "When the department was
   undecided on its position, a stack of citizen letters helped the
   secretary reach a decision." When you write keep in mind:

     * Format. Unlike sending handwritten notes to Congress, letters
       should be typed (if possible), include full name, phone number and
       address, and a specific request or questions regarding the
       Administration's policy or position. Your message should be clear,
       focused, thoughtful, and concise.
     * Influential Author.
       A letter from an organization or well known individual carries
       more clout than a letter from an average citizen. Also, a letter
       from an unlikely supporter of a position will get noticed. For
       example, a letter from a retired army general in favor of reducing
       the military budget will get noticed, because this viewpoint is
       unexpected.
     * Give Praise.
       When the Administration has listened to citizen input or has taken
       a position that you agree with, let the Administration know. "When
       people write they are usually complaining about something. The
       President needs to get positive mail too to show support of his
       policies. People should write to support him as well as complain
       or comment," explained a White House staff member.
     * Raise New Issues.
       Write letters to the Administration in support of an issue and
       bring attention to something not currently being addressed. For
       example, citizens wrote to the Administration to highlight an
       upcoming international population conference asking for the
       Administration to become involved and make public its position.
     _________________________________________________________________

                       On Calls to the Administration
                                 __________

   Unlike calling your member of Congress, Administration offices are not
   all equipped to deal with large volumes of phone calls. Staff members
   pointed out that they tend to get "overwhelmed" by calls. Within the
   bureaucracy of each agency there is not an assigned receptionist to
   field citizen phone calls. "We just don't have the secretarial support
   to cover calls," reported a Department of Defense staff member.

   Furthermore, it is often difficult to find the right person to speak
   with in Administration agencies. Calls to senior officials are not
   likely to be returned, unless a well known individual calls.

   The vast majority of Administration staff recommended writing rather
   than calling to increase the chances that your inquiry receives
   attention and generates a response. "Calls from citizens won't be
   returned; messages are taken," explained a Department of Energy staff
   member. The general practice in all agencies is to take messages.

   The EPA was the only agency that recommended phone calls from
   citizens. If you only have time to call, ask a specific question (such
   as the deadline for comments to a public docket) rather than trying to
   influence Administration decisions and policy.

   Identifying who your letter or call should be directed to is an
   important step in the process. When interviewing Administration staff,
   we consistently heard four themes:

     * Consider Politics.
       Many times political strategists are the decision makers versus
       technical policy people. Political people especially influence the
       President's position. Such people include the President's senior
       advisors, strategists, and the Chief of Staff. Citizens should
       look to newspaper articles and weekend talk shows to determine who
       is making policy decisions and providing input to the
       Administration's policy initiatives. Technical people for the most
       part do not rely on citizen input. For example, many of the issues
       covered by the Department of Defense are technical and complex in
       nature. It is difficult for citizens to provide valued input or
       opinion, unless a citizen has specific issue expertise.
     * Cast the Net Broadly.
       When targeting the Administration, citizens should "cast the net
       broadly" within each agency, pointed out a Department of Energy
       staff member. In other words, hit the worker bee level as well as
       the top level of management. Send a letter with copies to
       employees at various levels of the hierarchy. This ensures that
       your inquiry will get noticed by someone.
     * Potential Allies.
       Citizens should attempt to select target(s) who might be swayed or
       who are undecided on an issue and need to be persuaded. Just like
       targeting potential "swing voters" in Congress on a particular
       piece of legislation, citizens should try to identify undecided
       decision makers. Read the paper to gather useful information such
       as position changes and who is influencing the President on a
       particular issue.
     * Double Impact.
       Citizens may want to write to the Secretary of an agency as well
       as to the President. As one EPA staff member said, "both is
       better." When doing so, a citizen should send separately addressed
       letters.

                  What happens to letters you send to the
                                 President?
                    ___________________________________

     "What's different about the Clinton Administration, is that they
     answer mail, unlike previous Administrations."
     - Volunteer, White House mailroom

   The White House told us that letters to the White House are sorted by
   topic, and are entered into a main computer. Answers have been
   previously formulated and approved by the President.

   However, if a letter details an unusual firsthand experience, that
   citizen will likely receive a personal answer. "The President receives
   between 40,000 to 60,000 letters per week," explained a staff member
   of the White House Office of Correspondence. Letter readers give the
   President 10-15 letters a week to read. Fifty percent of the letter
   readers in the White House are volunteers.

   If the White House receives form letters or campaign generated
   postcards, responses are not sent. If an individual writes several
   times on the same topic, he/she will receive only one response. Unlike
   Administration agencies, typed and handwritten letters addressed to
   the White House receive the same amount of attention.

   Citizens, if they are the leaders of a local organization or chapter
   of a national organization, should note their affiliated organization
   when addressing the President. Otherwise noting your organization is
   not recommended, as it will draw attention to the fact that your
   letter is part of an orchestrated letter writing campaign. Like
   Congress, the Administration may discount letters it believes are part
   of a manufactured campaign. However, it is effective for groups to
   band together when writing the President. Several may wish to write
   and sign a joint letter, thus showing broad support for the issue.

   The tracking of letters is very sophisticated at the White House.
   According to a Department of State staff member, when he attends
   meetings at the White House, "the staff members are aware of the
   number of letters they are receiving or not receiving on a particular
   issue."

                      What happens when you e-mail the
                                 President?
                    ___________________________________

                         Communicating by Computer

     * Electronic Mail (e-mail)
       You can e-mail the President at:
       president@whitehouse.gov
       You can e-mail the Vice President at:
       vicepresident@whitehouse.gov
     * Visit the White House on-line
       You can also access the White House using the World Wide Web. This
       site provides a graphical interface and allows your to send e-mail
       to the White House.
       "Welcome to the White House: An Interactive Citizens' Handbook"
       can be visited at:
       http://www2.whitehouse.gov/

   This Web site or "home page" offers citizens the opportunity to direct
   comments to the President or Vice President. By selecting the
   "comments" item on the World Wide Web home page, a screen entitled
   "speak out" appears. The citizen is asked questions, such as his/her
   e-mail address and if he/she is writing on behalf of an organization.
   In addition, a citizen can choose to indicate the purpose, general
   topic (such as environment or defense), and major subject of the
   message.

   According to the Director of Correspondence for the President, the
   President has received thousands of messages from people all over the
   world since coming on-line in 1993. A detailed report is provided to
   both the President and Vice President based on the number and type of
   e-mail messages received. To facilitate contact with either the
   President or Vice President, try to write short and concise messages,
   address only one issue per message, and send only one copy of your
   message.

   Shortly after you send your message, you will receive an electronic
   acknowledgment that the message was successfully accepted and is being
   forwarded to the White House. You will not receive an electronic
   response to your inquiry. However, if you supply your standard mailing
   address, a reply to your comment will be sent via the U.S. Postal
   Service.

            What happens to your phone calls to the President?
                    ___________________________________

     "If you really want your opinion to get to the President, the White
     House comment line is an effective way to express your opinion."
     - White House staff member, Greetings Office

   The White House has a comment line available Monday - Friday, 9 am to
   5 pm EST (202/456-1111). The comment line begins with a survey of
   recent topical issues, such as healthcare or gun control. Callers are
   given a choice of responding to the survey or bypassing it and simply
   leaving a message or speaking to an operator. The comment line
   receives over 2,000 calls every day. The calls are tallied and a
   summary is given to the President daily.
     _________________________________________________________________

     20/20 Vision Education Fund has additional materials including "Is
     Anyone Listening: A Search for Effective Lobbying Techniques" and
     fact sheets on "Writing Effective Letters to the Editor" and
     "Writing and Publishing an Op-Ed." For more information, contact
     20/20 Vision Education Fund at (202) 833-2020.



    20/20 Vision National Office
    1828 Jefferson Place, NW
    Washington, DC 200036
    (202) 833-2020
    (202) 833-5307 (fax)
    (800) 669-1782 (info)
    vision@igc.apc.org

    Last Updated: Wednesday, February 14, 1996



.

