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Money and Politics: Who Owns Democracy? NIF Report on theIssues, 2001.
National Issues Forums, Dayton, OH.
2001-00-00
31p.; Report prepared by John Doble Research Associates,

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ABSTRACT

National Issues Forums (NIF) bring together citizens todeliberate and make choices about challenging social and political issues ofthe day. These forums have addressed issues such as the economy, education,
health care, foreign affairs, and crime. This report is an analysis of what
happened in a forum on "Money and Politics" that took place in 44 states andthe District of Columbia. To learn how citizens feel about this issue, Doble
Research Associates, a public interest consulting firm, analyzed what
happened in these forums, including questionnaire results from 1,457
participants. It is divided into the following sections: "A Summary ofPeople's Thinking as They Deliberated" (presents an overview of the themesthat emerged from the 44 forums) ; "The Framework for Deliberation" (describes
the framework used in the forums); "Working Through: People's Thinking as
They Deliberated" (describes in detail how people felt about money andpolitics as they deliberated in a forum); "Questions and Answers about theForums" (addresses key questions about participants' views on the issue) ; and"The Impact of Deliberation" (describes how people felt after the forums).
Contains a summary of what 581 high school students thought about the issueof money and politics, the results of pre- and post-forum questionnaires, andan explanation of the research methodology. (BT)

Reproductions supplied by EDRS are the best that can be madefrom the ori inal document.

NIF Report on the Issues

2001

IVtriey and --dlitics
VIFFE,Ouvis Deniccrace
by John Doble Research Associates, Inc.

U.S. DEPARTMENT OF EDUCATION

Office of Educational Research and Improvement

EDUCATIONAL RESOURCES INFORMATIONCENTER (ERIC)PERMISSION TO REPRODUCE AND
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1

A Different Kind of Talk, Another Way to Act

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Money and Politics
Who Owns Democracy?
A Report for the National Issues Forums
by Doble Research Associates

November 2001

National Issues Forums (NIF)

NIF is a nonpartisan nationwide network of educational and community organizations that deliberate
about nationwide issues. NIF forums do not advocate a specific solution or point of view. Rather, deliberative forums provide a way for citizens to exchange ideas and experiences with one another, and makemore thoughtful and informed decisions. For more information about NIF, contact National Issues
Forums Research, 100 Commons Road, Dayton, OH 45459-2777. Phone: (800) 433-7834. wourili.crg
Doble Research Associates

Doble Research specializes in exploring public opinion about complex public issues.
For more information, contact Doble Research at 375 Sylvan Avenue, Englewood Cliffs, NJ 07632.
(201) 568-7200. InsmorichlereseErchomm
ecopyright National Issues Forums Institute 2001

7V,

About This Report
This report is an analysis of what happened in National Issues Forums (NIF) that took
place in 44 states and the District of Columbia, on "Money and Politics," a sample of thehundreds of NIF forums that continue to take place across the country. To learn how
citizens feel about this issue, Doble Research Associates, a public interest consulting firm,
analyzed what happened in these forums, including questionnaire results from 1,457
participants who sent in a questionnaire by August 1, 2001.
National Issues Forums bring together citizens to deliberate and make choices about
challenging social and political issues of the day. They have addressed issues such as the
economy, education, health care, foreign affairs, and crime. Throughout the nation,
thousands of civic, service, and religious organizations, as well as libraries, high schools,
and colleges sponsor forums. The sponsoring organizations select topics based on citizens'concerns, then design and coordinate their own forum programs.

Contents
A Summary of People's Thinking as They Deliberated

presents an overview of the themes that emerged from theforums convened in 44 states and the District of Columbia

1

The Framework for Deliberation
describes the framework used in the forums

3

Working Through: People's Thinking as They Deliberated

describes in detail how people felt about money
and politics as they deliberated in a forum

4

Questions and Answers about the Forums

addresses key questions about participants'
views on the issue

13

The Impact of Deliberation
describes how people felt after the forums

18

Additional Information:
Deliberation by High School Students summarizes what happened when 581 highschool students around the country took up the issue of Money and Politics.
Questionnaire Results shows the results of the pre- and postforum questionnaires.
Methodology explains the research conducted for this report.
About National Issues Forums describes NIF in greater detail.
About Doble Research provides information about the firm that prepared this report.

4

A Summary of People's Thinking as They Deliberated
1. The Impact of Money on Politics: Participants in National Issues Forums on "Money and
Politics" saw the influence of money on the political system as damaging and harmful in three
ways: first, they said, money warps political decision making so that the public interest isroutinely subordinated to special interests; second, they said it skews the election process,giving well-financed candidates a great and unfair advantage; third, they said it alienates
ordinary Americans who often feel that their voices do not count.
2. The Impact of Money on the Public Dialogue: Forum participants said that beyond its

harmful impact on government and elections, money corrupts the "public dialogue," theexchanges and ideas espoused by candidates, officeholders, and other public leaders that citizens hear, consider, and deliberate about. Forum participants operationally defined the issueof money and politics in public terms in terms of the public's right to hear. Money, theysaid, both limits the voices that people hear and amplifies some at the expense of others. The
net effect, they said, is that many people do not hear leaders who speak to their concerns orarticulate their deepest values.
3. Money and Politics and the Media: Understanding how people define the issue helps
clarify why so many Americans feel frustrated by the news media. Instead of helping the

public understand complex issues and sort through information and arguments about them,
forum participants identified five ways that the news media exacerbate the problem.
4. The Desire for a Level Playing Field: Defining the issue in terms of people's right to hearor listen also helps explain why so many participants said we should reduce the influence ofmoney by "leveling the playing field" in terms of elections.
5. Easier Access to the Media to Level the Playing Field: A large majority of participants
said the way to "level the playing field" is give all major candidates for public office free or
low-cost airtime on television and radio. That way, they said, the public would be able to hearmore clearly the voices and messages of those who seek to lead.
6. Using Public Financing to Level the Playing Field: A majority of participants said the way
to "level the playing field" is through the public financing of political campaigns, which would
enable more voices to be heard while simultaneously reducing the importance of contributions. However, a sizable minority opposed this idea.
7. Changed Perceptions about Lobbyists and Special Interests: It is often the case that as
people deliberate about a complex issue in what is often a two-hour National Issues Forum,
they learn more about it and have time to consider other points of view. A rather common
outcome is that people's attitudes are modified as they take in new information orconsiderations. In these forums, participants' views about lobbyists and special interestschanged, with a good deal of people's initial antipathy melting as they learned more anddeliberated about the role of these groups.
8. Changed Perceptions about Disclosure: Almost without exception, participants favoredfull and immediate disclosure of all campaign contributions, including disclosure in the media
and on the Internet. But as they deliberated, participants said disclosure would not curb theinfluence of money or remedy the problems they had identified.
Doble Research Associates19. Mixed Feelings about Direct Democracy Measures: Participants attitudes about this

aspect of the issue also evolved over the course of the forums. While most favored the idea ofgiving the public more direct say in running public affairs, a fair number also saw problems
with the idea and gave it, at best, their qualified support.
10. Interlocking Issues: Participants see "money and politics" not as a single issue, but as anumber of connected, interlocking issues. A woman from Panama City, Florida, explained it

this way:

We should pursue the issue of allowing candidates free airtime on radio andtelevision in order to have their voices heard without having to cram their ideas
into exorbitantly expensive 30-second spots. If candidates' views were mademore accessible to the public, [people] might take a greater interest in picking aqualified candidate and not be so disillusioned with what they consider to becorrupt leadership. And qualified leaders would be more likely to serve thepublic interest.

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The Framework for Deliberation
Participants deliberated using the NIF issue book, Money and Politics prepared by Public
Agenda in collaboration with the Kettering Foundation. Rather than conforming to the ideasof any one advocate, each approach represents a distinct set of American priorities and views.
The issue book outlines the issue in a nonpartisan way and presents three approaches toaddressing the issue:
Approach 1: Reform the Campaign Fund-Raising System

This approach says that democracy cannot thrive unless political candidates have enoughmoney to inform citizens about their competing ideas and qualifications. The problem is that
more than 90 percent of political contributions come from wealthy contributors and special
interests, which often have matters pending before government. As a result, many elections
are fund-raising competitions, and the democratic principle of "one person, one vote" iscorrupted into "one donor, much influence." In this view, the nation must regain control ofelections by choosing from a menu of reform options that includes publicly funded campaigns
and regulations that prevent special interests from subverting the public interest. The nation
is moving in this direction, but it's been a halfhearted effort lacking a real commitment toclean up politics. It's time to get serious about making real reforms.
Approach 2: Rein In Lobbyists and PoliticiansThis approach says that campaign finance reforms will only disappoint and disillusion
citizens because they focus narrowly on political campaign contributions, which are dwarfed
by the billions annually spent on lobbying politicians. So reforms that curb special interests'
spending on political campaigns merely redirect the flow of money in politics, sending it
deeper underground. In this view, the way to reduce money's corrupting influence is byexerting much more control over the way politicians and bureaucrats at every level ofgovernment interact with special interest lobbies. In addition to new restrictions on lobbying,
there also need to be more restrictions on politicians. Ballot measures, which permit voters insome states to enact or repeal laws when politicians ignore the public will, should bepermitted in all states and at the federal level. Laws should also make it easier for voters torecall elected officials who aren't serving the public interest.
Approach 3: Publicize All Political Donations, Don't Regulate ThemThis approach says that our representative system of democracy has withstood the test oftime and, until the 1970s, worked well without much regulation of campaign finance. Then,the Watergate scandal precipitated a rush to regulate political contributions, restricting
everyone's freedom. But freedom resists regulation, and the reform effort backfired,systematically distorting our democratic system and causing more damage than theoccasional bribery scandal ever did. Elections are now tipped toward incumbents, celebrities,
and the rich. Most challengers cannot raise enough money to compete. Political gridlock is
epidemic. To revive democracy, we need to free candidates and advocates to raise the money
they need for competitive campaigns that draw public attention to important issues anddecisions. A new requirement for fuller and faster disclosure of all political donations is thebest way to deter corruption and head off conflicts of interest.

Doble Research Associates

Working Through:People's Thinking as They Deliberated
1. The Impact of Money on Politics: Participants in National Issues
Forums on "Money and Politics" saw the influence of money on thepolitical system as damaging and harmful in three ways: first, they said,
money warps political decision making so that the public interest isroutinely subordinated to special interests; second, they said it skews theelection process, giving well-financed candidates a great and unfair
advantage; third, they said it alienates ordinary Americans who often feelthat their voices do not count.
The Public's Starting Point: As participants took up the issue of money and politics inforums in 44 states and the District of Columbia, they overwhelmingly began with one idea:
money, they said, translates into political power, which has a corrosive, damaging impact on
our political system and the public's welfare. Indeed, some defined political power in terms ofmoney. "Money is power," said a man from Dallas. A woman from Sumter, South Carolina,
expressed the same thought, saying, "Money and power go together."In forum after forum, participants said money shapes decision making so that government,
especially at the federal level, consistently puts the special interests of the rich and powerfulahead of the common public interest. A man from Des Moines said, "Common Cause andothers can document that the folks who vote for a special interest like, say, big tobacco arealmost always the [ones who] get contributions from that interest." A moderator from Mount
Pleasant, Michigan, said "Our people felt that votes can just be bought." A moderator from
Honolulu said that in a series of forums at and around the state capital, participants felt
"political decisions are made to benefit moneyed interests, not the public interest."
Participants said the integrity of elected officials is regularly compromised because they owe
so_ much to the donors who helped them win election. To a roomful of nodding heads, awoman at a forum in a correctional institution in Muncy, Pennsylvania, said "Once in office,campaign promises are out the window [because of] the candidate owing the campaign donor
his or her money's worth." A man at a forum in St. Paul expressed the same thought saying,"Anyone who doesn't believe [big contributors] expect something in return [for theircontributions] is living in a dream world." A moderator from El Paso said, "Our people feltthat politicians can be bought."

Participants did not much distinguish between the two major political parties. Some pointed
to the recent tax cut while others cited presidential pardons as examples of influence by big
contributors who expect something in return. And virtually without exception, participants
agreed that if contributors do not get something tangible, they at least get special access tomake their case. A moderator from Valparaiso, Indiana, said "Our group felt that those
without money constantly have to knock on doors and beg an audience." An Oregon man
said, "I don't have the kind of access to resources [that would enable me] to really have an
impact on the decisions elected officials make."
Beyond its impact on decision making, money, participants said, has a second effect it
skews the entire election process. "People in our forum felt that elections are 'bought' because
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8the candidates who can raise the most money are the ones who get elected," said a moderator
from Du Page, Illinois. Nearly four out of five agreed that candidates depend too heavily onlarge campaign gifts from wealthy donors.
Moreover, participants said, the ability of even the most-dedicated public official to do his or
her job is impaired by the constant, pressing need to raise money for the next campaign. "Ourpeople felt that officeholders spend so much time raising money that they don't have time todo the job they were elected to do," said a moderator from Louisville. A moderator from Rapid
City, South Dakota, heard the same thing. "Our group," she said, "said people in Washington
are spending too much time raising money and not enough time doing their job."

Most participants saw the issue in national terms and talked about the federal government.
But some pointed to local manifestations. A moderator from Gibsonia, Pennsylvania, said thatin his forum, people talked about a developer who wanted land rezoned. In Columbus, Ohio, a
moderator reported that people told stories about building contractors "who were big
contributors and not held accountable for the quality of what they built." A moderator from
Honolulu said people there talked about legalized gambling, saying "big money is coming in[and participants were afraid that] the lobbyists will win, even though polls show most people
don't want it."

Participants said the third way that money influences politics is perhaps the most serious of
all the alienating effect it has on ordinary Americans. Participants said they, and a great
many Americans like them, feel shut out from the political process. A student at the
Oklahoma State University was blunt, saying, "If you're not wealthy, you don't matter." A
woman from Portland, Oregon, said alienation is greatest among certain groups. "Fromgrowing up in a lower socioeconomic background," she said, "I know [that the impact ofmoney] makes poor people feel like their only choice is not to participate because theirinterests and values aren't represented by the billionaires or big money."

2. The Impact of Money on the Public Dialogue: People in the
National Issues Forums said that beyond its harmful impact on
government and elections, money corrupts the "public dialogue," theexchange of ideas espoused by candidates, officeholders, and otherleaders that citizens hear, consider, and deliberate about. Participants
operationally defined the issue of money and politics in public terms - interms of the public's right to hear. Money, they said, both limits the voices
people hear and amplifies some at the expense of others. The net effect,
they said, is that many people do not hear leaders who speak to theirconcerns or articulate their deepest values.
Defining the Issue in Public Terms: In 1981, Public Agenda, a nonpartisan researchorganization, conducted a comprehensive study of Americans' attitudes about free speech andfreedom of the press. That report, The Speaker and the Listener; found that most people define"freedom of speech" in public terms. That is, people operationally conceive of "freedom ofspeech," not in terms of the ability of speakers to say whatever they want, but in terms of theability of citizens to listen or to hear all that any public speaker might say.

The report said that since most citizens do not think of themselves as public speakers, they
feel that the essential freedom to be protected by the First Amendment is citizens' right tolisten or hear all the voices in the marketplace of ideas. If people lack the ability to hear all
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voices, they cannot consider and decide about issues and candidates. Only after deliberating
about issues and candidates can the public set the boundaries of political permission within
which policy will enjoy broad, deep, enduring public support.
In the preforum, participants said money harms the public dialogue in two ways: first, it
restricts the number of voices the public can hear. "Instead of the best people as leaders,"
said a Detroit man, "we're getting people who have been paid for." A Des Moines woman said,"Without a lot of political contributions, new leaders can't participate or run for office." Asmany as 84 percent agreed that money limits the voices people can hear during a campaign
because "high campaign costs discourage good people from running for office." (See Table 1.)
Preforum participants also said that money amplifies certain voices at the expense of others.
A man in St. Paul said, "Money talks! [If you have] more money, your voice is louder." A
moderator from California said, "People in our forum agreed that money buys a great big
megaphone. And that without money, it's like your battery is dead." Participants said that
because the public cannot consider challengers who can't get their message out, 79 percent
agreed "current election laws favor those who already hold office." (See Table I .)Because the voices in the public dialogue are either limited or amplified, many citizens,participants said, find it hard to hear someone who speaks to them, addresses their concerns,
or talks about their needs. A woman from Detroit said that the "little guy's" voice is not heard,
adding, "When a wealthy guy gets elected, he'll pass laws that help his rich friends instead ofhelping the little guy who can barely pay for his children's shoes."

3. Money and Politics and the News Media: Understanding how
people define this issue helps clarify why so many Americans feel
frustrated by the news media. Instead of helping the public understandcomplex public issues and sort through information and arguments about
them, forum participants identified five ways that the news media
exacerbate the problem.
Money and Politics and the News Media: Participants said the news media intensify the
problems caused by money in five ways:

First, instead of countering the effects of money, which restricts the voices the publichears, the media further limit those voices while simultaneously filtering information
so that people do not hear directly from public leaders. A moderator from Des Moines
said, "Our group said people's willingness to donate to a campaign depends on a[candidate's] viability, which is [determined] by how TV presents the campaign." A
man from Detroit said, "Instead of our information coming directly from the mouth ofthe candidates, it comes from the way the news about them is reported."

The second way the media add to the problem, a number of participants said, is by
not presenting issues fairly. A woman from Panama City, Florida, said "At one time
you could not tell what a certain announcer was in favor of. But those days are gone."
A moderator from Du Page, Illinois, said "In our forum, people felt that the media do
not just report what they see, they put their own spin on the news." In Columbus,
Ohio, people felt that "opinions are formed, not informed" by the media.

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1. 0

The third way the media was felt to exacerbate problems caused by money was thatthey do not help people sort through manipulative, deceptive ads. "How does theaverage person know [if] what's on television is true, or deceitful or manipulative?"asked a woman in a forum in Des Moines. A moderator from Rockville, Maryland, said,"In our forum, the media was seen as an instrument of corruption [instead ofclarification]." A moderator from Gibsonia, Pennsylvania, said participants there feltthat "special interests should not be on TV because there's no filter for what is true
and not true."

Fourth, a number of participants complained that the news media focus too much on
overly personal information. A Florida man said, "I wouldn't run for public office[because] of fear of the warping of any point of view [of mine] so that it would be
portrayed in an unfair way." An Iowa man said:
Many people won't run for office because [they worry about] "How muchof your life do you want under the microscope?" Maybe something inyour past could be misconstrued. In that aspect, you're not at themercy of the public. You're at the mercy of the press.
Finally, some said the media intensify cynicism. An Iowa man said the reason the
public thinks all officeholders are crooked is because of the media. "And that," headded, "really encourages young people to say, my vote doesn't count anyway." A
woman from Portland, Oregon, said:

All we hear in the media is that all this money is out there, and thatit's being sent to certain [candidates]. But that's all [the information] weget. Which leaves us with an uncomfortable feeling [but not enoughinformation to do anything].

4. The Desire for a Level Playing Field: Defining the issue in terms ofpeople's right to hear or listen also helps explain why so many participants
said we should reduce the influence of money by "leveling the playing field"
in terms of elections.
Level the Playing Field: Time and again, participants said that, instead of a system thatallows just only candidates with money to get their message out, all candidates should have aroughly equal chance of being heard and considered by the public (with "roughly" left
undefined). "We need to make an even playing field," said a man from Roslyn Heights, New
York. "We'd like to see some sort of leveling of the playing field for political candidates runningfor office," said a woman from Des Moines. One of the hundreds of people who participated in
an on-line forum wrote, "There needs to be a greater sense of inclusion in politics that could
be created if candidates for office were forced to stand on more equal ground with each other."
The principle underlying the desire for a more level playing field was to ensure that voters areable to consider all candidates and points of view. A man from Poughkeepsie said, "We should
be willing to let all candidates be heard [because that will] ensure that the interests of thepeople are served." An Oklahoma State University student said, "Every candidate shouldhave a chance, and that chance should be as fair as possible."

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When they considered just how to level the playing field, many favored putting new limits oncontributions, especially by organizations. In Topeka, participants wanted to "limit the flow ofmoney toward politics." A woman from Rindge, New Hampshire, said "The amount of money
going for [candidates] to use has to be equalized so all the candidates can get theirinformation out to the people." In the postforum questionnaire, 70 percent favored strictly
limiting how much money citizens and special interests can give to political causes. (See Table
2.)

Another idea some favored was to shorten campaigns. Moderators at a forum in Columbus,
Ohio, said participants there felt that. "campaigns should be one-month long," with one
woman pointing to the British system as a model. A man from Des Moines agreed, saying,"Shortening campaigns [would] at least be part of the answer [because] no matter how muchmoney you raise, you'd have a limited amount of time to spend it."

5. Easier Access to the Media to Level the Playing Field: A large
majority of participants said the way to "level the playing field" is give all
major candidates for public office free or low-cost airtime on televisionand radio. That way, they said, the public would be able to more clearlyhear the voices and messages of those who seek to lead.
Free or Low-Cost Access to the Media: In most forums, participants talked about the needfor access to the media and how that relates to the problems of money and politics. A numberof them said the need for so much money is driven by the high cost of advertising, especiallyon television. "The greatest sucking sound for money is for the media and the cost of
portraying my political point of view in a 15- or 30-second commercial and doing thatthousands of times in a campaign," said an Iowa man. A woman from Panama City, Florida,said, "Some candidates weren't heard because they didn't have enough money." People in an
Atlanta forum, a moderator said, felt that "the cost of television ads is prohibitive."
Many participants were concerned about access. A woman from Hoschton. Georgia, said "I'mconcerned about access to the media of candidates from smaller parties." A college student
from Florida complained that when she went to vote, "There was a list of candidates I'd neverheard of, and I wish I knew something about their views."

Many participants said candidates would not need so much money and the playing fieldwould be more level if radio and television time were free (or at least available to candidates ata very low cost). A Florida man said, "People running for office should have free and equal
airtime [because] it's important that everybody hear their views." A man from Poughkeepsie
said, "In Canada, every candidate gets free airtime." A number of participants wondered why
candidates have to pay in the U.S. In Atlanta, a moderator said her group asked why
candidates have to pay "since the public owns the airways." In the postforum questionnaire,
63 percent favored requiring radio and TV stations to give free airtime to candidates. (SeeTable 2.)8

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126. Using Public Financing to Level the Playing Field: A majorityof participants said the way to "level the playing field" is through publicfinancing of political campaigns, which would enable more voices to beheard while simultaneously reducing the importance of contributions.
However, a sizable minority opposed this idea.
Support for Public Financing: Most participants said the best way to ensure that all

candidates have a roughly equal chance of being heard is through a system of publicfinancing. Forum participants favored public financing by 53 to 40 percent, EVEN IF thatwould cost taxpayers more money. (See Table 6.)"People in our forum favored leveling the playing field with public money and public financingof political campaigns," said a moderator in Laurel Lake, Missouri. A man from Dallas said
that public financing would "let all those who are campaigning come to the top so we could
see [all of] them." He added, "We need to see everybody, which we can't do now, so we'll neverknow if [the ones we didn't see] were good candidates." A moderator from Honolulu said
people there strongly favored public financing. And a woman from Poughkeepsie said:

Publicly funded campaigns would eliminate the presence and influence ofmoney in politics. Public financing would be relatively inexpensive and would
probably result in a higher voter turnout.

Some participants saw public financing as an acceptable, but less than ideal solution, andfavored it despite some reservations. A man from Portland, Oregon, said "I'm not sure publicfinancing is the total answer, but I think we need to recognize that people [lose trust] when
they see reports that a big contributor gave five-hundred-thousand dollars." A moderator fromSun City, Arizona, said:

People in our forum said public funding would be an okay solution. But theirreal goal was to level the playing field because now money "buys" issues andvoices.

But a large minority opposed public financing and some were strongly opposed. A moderator
from Gibsonia, Pennsylvania, said "While people in our forum wanted to make the campaign
process more equitable, they also felt that 'equality is socialism, not democracy' and so did
not favor public financing." A moderator from Topeka said people there said it is "notacceptable to give money to candidates they don't support." A woman from Muncy,
Pennsylvania, said "My problem with public funding is I don't want my money going to a
candidate who supports abortion."

And a fair number of participants left the forums mulling over the issue. "Every candidate
should have an equal chance, but I'm not sure how to go about doing this," said a college
student from Stillwater, Oklahoma. "No matter what we do in terms of a public financing law,they'll probably find loopholes in it," said a college student in Aberdeen, South Dakota.

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r--

7. Changed Perceptions about Lobbyists and Special Interests:
As people deliberate about a complex issue in what is usually a two-hour
forum, they learn more about it and have time to consider other points ofview. A common outcome is that people's attitudes are modified as theytake in new information or considerations. In these forums, participants'
views about lobbyists and special interests changed, with a good deal ofpeople's initial antipathy melting as they learned and talked about therole of these groups.
Changed Perceptions: Before and after the forums, participants felt that lobbyists andspecial interests have too much political influence. In the postforum questionnaire, 74 percent
agreed that "lobbyists for special interests have too much power with public officials" and by amargin of 55 to 35, participants wanted to "curb the power of lobbyists, EVEN IF that means
reducing the power of interest groups that speak for you." (See Tables'. and 6.)

But as they deliberated, participants' antipathy toward lobbyists and special interests was
reduced as they learned more about the role of both groups, including that they themselves
might well be represented by one or both. A moderator from Columbus, Ohio, said "In ourgroup, there was a broader understanding of what lobbyists are and less hostility toward
them." A moderator from El Paso, Texas, said the same thing happened there. "We had a lotof initial tension between those who thought that 'lobbyist' is a dirty word versus those who
thought we'd be in a pickle without them," she said, adding that much of that sentiment was
blunted as they deliberated about the issue. A moderator from Winona, Minnesota, said "Ourgroup felt that lobbyists have a right to have a cause and to fight and persuade for thatcause." A man from Valparaiso, Indiana asked:
Who says "special interests" are bad? Suppose I belong to the Sierra Club andwe [use our influence to] keep the country clean. Is that a bad thing?
Most participants came to distinguish between lobbying, which they saw as both necessary
and inevitable, and giving gifts or honoraria or special favors to lawmakers, which they saidshould be illegal. To general agreement, a St. Paul woman said, "Lobbyists should be getting
information to [officeholders], but they should not be able to give gifts or money." A
moderator from Mount Pleasant, Michigan, said that people in her forum wanted to "limit
lobbyists' influence but clearly saw that there's an important place for them." A man from
Des Moines said, "The people representing us are not super geniuses and they need someone
to say, 'Here's something [you should know about] this issue.- But, he added, elected
officials do not need "someone saying, 'Let's take you to Cancun and spend a week there
studying the issue at a swimming pool.'" In the postforum questionnaire, 69 percent said weshould forbid lawmakers from accepting all gifts and favors from lobbyists. (See Table 2.)

S. Changed Perceptions about Disclosure: Almost without
exception, participants favored full, immediate disclosure of all campaign
contributions, including disclosure in the media and on the Internet. But
as they deliberated, participants said such disclosure would not reallycurb the influence of money or remedy the problems they had identified.
Changed Perceptions: Both before and after the forums, nearly every participant favored full,complete and immediate disclosure of all campaign contributions, both in the news media
and on the Internet. To general agreement, a woman at a forum in Portland, Oregon, said
10

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14

"Average citizens don't know who is doing the contributing. We don't know how the money isused." A moderator from Louisville said his group favored disclosure within 48 hours "so thatpeople can make up their minds about which interest groups favored which candidates."

But as they deliberated, most participants said that disclosure would not solve the moneyand-politics problems they had identified. First, they said, citizens would be hard-pressed toknow the connection between a contributor's interests and a candidate. A woman fromMuncy, Pennsylvania, said "Disclosure, by itself, is not enough [because] people need to findthe reason behind the donation as well." A moderator from Fairfield, California, said "In ourforum, the key question was the relationship between donors and policy; that's far more
important than just being saturated with information." A moderator from Laurel Lake,
Missouri, said "Our group felt that citizens have no way of tracing the connections between
big donors and candidates."
Some participants offered a second reason, saying full, strict, immediate disclosure would be
hard to enforce in a timely manner. A participant in an on-line forum wrote: "If a candidate
got a large contribution a few weeks before the election and refused to disclose it, what could
the average person do?"Indeed, the more they considered this approach, the more participants said that disclosure
would not solve the problems they identified. "Disclosure might cut down on corruption, but itwould not [do anything to] level the playing field," said a woman from Poughkeepsie. "Ourgroup felt that disclosure would not solve the problem because a contributor would still
expect something in return," said a moderator in Valparaiso, Indiana. A moderator from
Gibsonia, Pennsylvania, said "No one in our group was opposed to disclosure, but no one
thought it would solve the problem."

9. Mixed Feelings about Direct Democracy Measures:

Participants' attitudes about this issue also evolved over the course of theforums. While most favored the idea of giving the public more of a direct
say in running public affairs, a fair number saw problems with the idea
and gave it, at best, their qualified support.

Direct Davexracy Participants generally liked the concept of enabling the public to havemore say through the use of referenda, ballot initiatives, and the recall of elected officials. In
the postforum questionnaire, 62 percent agreed that "complex rules make it too hard forordinary citizens to put issues on the ballot" and 55 percent wanted to "make it easier for
voters to recall elected officials." (See Tables 1 and 2.)

But participants' support for direct democracy measures was qualified, with some expressing
concern that the public's mood or top-of-the-head opinion at a given point in time might beintemperate and unwise. A woman from Portland, Oregon, said "There are a lot of things you
could put on the ballot that would pass that would not be for the good of the state or thecountry." A man from Rindge, New Hampshire, expressed a similar view, saying, "A lot oftime we'd try to 'recall' someone based on the emotion of the moment."
Others, including some participants with direct experience with ballot initiatives, were not so
enthusiastic about this approach because of what they saw as unnecessary complexity oreven deception. For example, a Michigan woman said, "These ballot [initiatives] use
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11

doubletalk [and] make it so that a 'yes' is a 'no,' instead of using layman's terms so thateverybody can understand it." People in California, a New York-area man said, frequently
complain that television advertising for or against a ballot proposition is designed to mislead
and deceive, making it difficult, even for voters who have a clear preference, to know what tovote for in order to exercise that preference. A moderator from Du Page, Illinois, said "Ourgroup was concerned that when it came to ballot measures, the public would not be engaged
and thus would not clearly understand an issue."

10. Interlocking Issues: Participants see "money and politics" not as asingle issue, but as several connected, interlocking issues that are
defined in public terms.
Connected, Interlocking Issues: Some experts might say that the American people, as

represented by participants in the National Issues Forums, have serious misperceptions about
the issue of money and politics. They might say, for example, that people's discontent with
the news media does not take into account the First Amendment or what is within a station's
ability to control. And they might say that the public does not know even the basics aboutprior reforms or about key issues like campaign finance reform.

But to understand people's thinking we must understand that people define the issue inpublic, not expert terms.
First, people believe the political system favors those with money, thatmoney bends or warps or twists the system so that it routinely serves
special interests instead of the broad, general public interest.
Second, people believe that money skews the public dialogue by limiting
the information they receive, making it hard for people to hear all thevoices in the marketplace of ideas or understand what public leaders andcandidates truly stand for.

Third, they believe that instead of serving the public by counterbalancing
all this, the news media actually exacerbate the problem.

Understanding how the public defines the issue helps us see the interlocking or interconnectednature of the issue in the public mind. An examination of this summary comment from a
Florida woman reveals that she sees seven different issues related to money and politics, eachnumbered below:

We should pursue the issue of allowing candidates free airtime (1) on radio andtelevision in order to have their voices heard without having to cram their ideas(2) into exorbitantly expensive (3) 30-second spots. If candidates' views weremade more accessible (4) to the public, [people] might take a greater interest (5)in picking a qualified candidate and not be so disillusioned (6) with what they
consider to be corrupt leadership. And qualified leaders would be more likely toserve the public inter est (7).

12Doble Research Associates

16Questions and Answers about the Forums
I. The Public Approach

Questions
1. Does theNot quite.

public connect

While some leaders see the public as deeply concerned about this issue,
others point out that the number of Americans who name "campaign
finance reform" as a priority varies from a high of no more than 37
percent to a low of 1 percent, depending on question wording. And so the"conventional wisdom" would seem to consist of more than one school ofthought.

to this issue
as theconventional
wisdomsuggests?

Participants in this year's National Issues Forums were troubled, not somuch about the narrow issue of "campaign finance reform" but about thebroader issue of "money and politics." Forum participants saw "money inpolitics" as an underlying cause of the public's alienation, cynicism, andfeeling of disconnection from the political system. "There's a cancer in
American politics. And that cancer is money," said a man at a forum inPoughkeepsie, New York.

Participants defined the issue to encompass not only campaign
contributions but also the day-to-day influence of money on governmental
decision making, usually at the federal level, and the impact of money onwhat we will call "the public dialogue."

Participants did not think in expert terms. For example, there was almost
no mention of hard or soft money, let alone the distinction between thetwo, and little talk of PACs; and even well-publicized campaign financereform measures such as the McCain-Feingold bill were rarely mentioned.
Importantly, however, "expert knowledge" is different from "publicknowledge." While it is true that people in the forums did not have anexpert's understanding of the ins and outs of this issue, they were deeply
concerned about the corrosive effect of money on the nation's publicdialogue, public policy, and political system.
2. How does theWith real distress.

public approach

Forum participants said that because of the influence of money, thepolitical system is warped or twisted so that it routinely subordinates the
public interest to special, moneyed interests. A woman at a forum in St.
Paul said, "Basically it only takes one or two people with a lot of money tooffset the influence of many, many voters." A woman from Panama City,
Florida, said "Right now the whole system is broken."

the issue?

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3. Are there

Yes.

other
dimensions of
the issue thatpeople in theParticipants said that instead of counterbalancing the influence of money,
the news media exacerbate the problem.

forums see?

The role of the media, participants suggested, is to help citizens
understand their choices, including the costs and consequences of each,so that people can sort through the cacophony of voices vying for theirattention and make a decision about them. The media's role, accordingly,
should be to offset the influence of money (which skews what people hear)by helping the public understand all that exists in the "marketplace ofideas."

But instead of enabling citizens to hear all the viewpoints that deserve
their consideration, the media, participants said, present issues narrowly,
and often in terms of two extremes. For example, a moderator in Atlanta
said participants there felt that the media always present issues in termsof two sides liberal vs. conservative, Democrat vs. Republican. And as aresult, the average person often finds it hard to locate his or her own
point of view or deep concerns expressed in a polarized public dialogue.

II. The Deliberation
4. What values

A number of values were at play in the discussion.

were at play in

The Public Interest. Participants felt that the common public interest isregularly subordinated to the narrow, special interest of those withmoney. A moderator from Vallejo. California, said people in that forum"felt that they are not represented because politicians serve large donors
rather than the people who cast the votes."

the discussion?

Integrity. Many participants said the need for campaign contributions is
so great that it is a constant threat to officials' independence andintegrity. In an on-line forum, one participant wrote, "A democracy
committed to a culture of integrity should have, as one of its highest
values, the principle that elected officials ought not to be tied to special
interests. They should serve on behalf of all citizens, no matter how pooror unable to contribute."
Fairness. Participants felt that all candidates for office should be able tocompete on a roughly level playing field so that all had a chance to makethemselves known and their views considered. In a day-to-day sense,
participants felt that the public should be able to consider all serious
ideas about public issues. A man from Albertson, New York, said "People
don't have equal opportunity to run for office."
The American Dream. Though there was no consensus about how to makethis happen, participants wanted to ensure that well-qualified people are
not foreclosed from seeking office because of a lack of personal wealth. A
student from Stillwater, Oklahoma, said "Only those with a lot of money
seem to run Ifor public office]. But being wealthy does not mean someone

is qualified."

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Freedom. A number of participants said that individuals should be free tospend their money as they choose, and wanted to balance this freedom
against their desire to curb the influence of money. A student from
Aberdeen, South Dakota, said that while people are frustrated by thepolitical system, "they also value the freedom of doing what they want fora candidate they support."
5. What effectdid deliberation
have?

Deliberation had two pronounced effects.

First, participants' antipathy toward "lobbyists" and "special interests"
abated as they came to see that they might be represented by either. A
South Dakota college student said, "As a future educator, I want my voice[as represented by teachers' groups] to be heard in Washington."
Second, deliberation affected how people felt about disclosure. Whilenearly everyone favored full, immediate disclosure of contributions, mostsaid, as they deliberated, that disclosure would not reduce the influenceof money on politics because:
Contributions could easily be disguised;
DI.

Pl.

Citizens would find it hard to sort through so much informationand make connections between contributors and their interests;
andStrict disclosure would be hard to enforce in a timely fashion andvoters would be pressed to quickly process so much information.

A New Hampshire man asked, "How can you enforce a disclosure
requirement if we can't enforce any other kind of regulation in politics?"

6. What mattered

As they deliberated, people agreed that money:

to people as theya)deliberated?

Challenges democratic values.

Participants strongly felt that government should first serve the public
interest. But because of money, they said, officials, especially at thefederal level but also at the state and local level, give higher priority to
the interests of those with money. A woman from Dallas said, "Youstill have the opportunity to buy government. Which means I
influence how all of you live your lives."b)

Reduces people's sense of being connected to the political system.

Participants said that while ordinary Americans want to be moreconnected to the political system, they are alienated by the influenceof money. "What people like me think just doesn't count anymore,"said a man from St. Paul. "Because it's the politicians, with themoney from lobbyists and special interests, taking care of theirfriends [instead of ordinary people]."Doble Research Associates

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III. The Outcomes
7. Is a "public

Yes.

voice"First, they said that money corrupts the political system so that it is
responsive, not to the public interest, but to special, moneyed interests.

recognizable?

Second, participants said that money corrupts the public dialogue by
skewing and limiting the information people receive, making it hard forthem to understand what candidates stand for, or the true costs andconsequences of various positions on key issues.
As a result, they said, many Americans are alienated from public life.

8. Was any firm

Yes.

common groundfor action
revealed?

Participants called for more public education and more discussion about
the issue in order to raise its visibility and help people see what is atstake. A participant from Stillwater, Oklahoma, said "We need to keep
deliberating, examine all the options." A participant from Honolulu
echoed this sentiment saying that what was covered in the forum was "thetip of the iceberg. We need to go into greater depth."

In terms of specifics, participants said these steps would reduce theinfluence of money and politics:
NO Permit campaign contributions only by individuals, limit whatanyone can contribute, and shorten campaigns;
Prohibit lobbyists from giving gifts and require full, immediate
disclosure for all contributions; andIP. Make sure all serious candidates have free or low-cost access tothe media, use public financing of elections, and take other steps
to "level the playing field" and ensure that more candidates have afair, reasonable chance to be heard and considered.
However, these views should be seen, not as policy prescriptions, but as"proxies" or guidelines for change that stems from participants' values
and their deeply rooted concerns.

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the public's

Some experts might say the public, as represented by people in theforums, is poorly informed about this issue. They might say, for example,
that the public's discontent with the media does not take into account theFirst Amendment and that the public does not know certain basics about
the issue, including the political lines of demarcation around campaign

thinking

finance reform.

evolved?

But understanding public thinking about the issue requires
understanding what it means for the public to know something, i.e.,
public knowledge, as well as the framework people bring to an issue.

9. At what stage
is the public on
this issue? Has

Participant's knowledge of this issue - like the public's knowledge about
so many other issues, including education and health care comes froma combination of concern, direct experience, common sense, and what
people talk about with their friends and family members as well as what
they learn from the news media.
10. What needs

to happen next
in the national
dialogue?

Despite all the news coverage about campaign finance reform over the
past few years, participants simply did not talk about money and politics
in those terms. And so, if the issue is framed in terms of "campaign
finance," most people cannot see a role for themselves. But to most people"money and politics" is a totally different issue.

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People's Thinking after the Forums:
The Impact of Deliberation
There is no single, uniform effect of participating in a National Issues Forum.
Deliberating with other citizens about a public issue often has an impact, sometimes
a dramatic impact on people's thinking. But the nature of that impact is sometimes
similar and sometimes not.

As people deliberated about money and politics, they often learned more and began
to develop a deeper, clearer, more certain judgment about what to do. "I know a little
more now to help me form an opinion," said a man from Dallas. A Florida man said,"The forum opened my mind to other approaches to regulate money in politics suchas funding elections through public funds." A man from Rapid City, South Dakota,
said that he had learned about the issue and that "now I can brainstorm ways to fix
the problems."

Some became more concerned about the issue. "I'm more angry than before theforum," said a woman from Hoschton, Georgia. A man from Hyde Park, New York,agreed, saying "I'm more vehement in my belief that there needs to be reform."
Sometimes people left feeling upbeat, including a Georgia woman who said, "Myawareness [about] finding an acceptable and equitable solution has been brightened."
But some reached the opposite view. "I realize the problems are far more complex
than would lend themselves to simple solutions," said a man from Poughkeepsie. "I'm
not confident that true reform is possible," said a woman from Des Moines.

Some participants including a college student from Stillwater, Oklahoma, said they
had changed their mind about some aspects of the issue. "I had a very one-sided
opinion on several issues, mainly lobbyists, [and] now I have a much broader view."
Others said their preforum thinking had been strengthened. "I'm even more sure that
campaign finance reform needs to happen," said a woman from Independence,
Missouri. "I believe even more strongly in full disclosure," said a man from Adrian,Michigan.

Finally, it was frequently the case with these National Issues Forums that people
walked away mulling over the issue or stewing about it. "I understand now that thisis all very complicated and that finding one true answer is next to impossible," said awoman from Rapid City, South Dakota. "My thinking is more muddied about theissue. But it's a thoughtful kind of confusion," said a woman from Osage Beach,
Missouri.

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22Deliberation by High School Students
Below is a summary of what happened when high school students deliberated in, andsometimes moderated, forums at the 4-H Association National Conference in Chevy Chase,
Maryland; Hofstra University in Hempstead, New York; Montgomery Community College in
Rockville, Maryland; Potomac High School in Dumfries, Virginia; and Northern University in
Aberdeen, South Dakota.

The Students' Starting Point: One moderator said the issue was not especiallyrelevant to students who were 14 and 15. "Initially, most of the younger kids found theissue confusing," said a moderator at the 4-H forums. Indeed, a great many highschool students were "not sure" about a host of questionnaire items before the forums.
But in Winona, Minnesota, where students deliberated about the issue for two, twohour sessions, a moderator said the more they deliberated, the more they learned "andtheir interest in it increased a lot." And some students, especially the 17-year-olds,
were interested in the issue from the beginning of the forum. "Our kids were from aleadership training program," said a moderator in Rockville, Maryland. "And many ofthem were more informed about this issue than they are about many others."

Regardless of their initial interest, the vast majority of the students came at the issue
with a cynical attitude. "Our kids felt that people with money run democracy," said amoderator at the 4-H forums. "Our students were very cynical and felt that money
dirties the system," said a moderator in Hempstead, New York. A high school teacher
in Dumfries, Virginia, said his group felt that "there is too much money corrupting
public officials and the political process."
As They Deliberated: The students did not always agree about what to do. Some,

including many at the 4-H forums and in Winona, Minnesota, wanted to cap
contributions and campaign spending. But in Dumfries, Virginia, and Aberdeen, South
Dakota, most opposed this step, saying any limit on spending or donations would
amount to limiting freedom of speech. On Long Island, students favored publicfinancing. But in South Dakota and at the 4-H forums, most students opposed thisidea.

When it came to lobbyists and disclosure, the students' thinking evolved, with initialhostility toward lobbyists easing as students learned more about them. "Our kids feltthat while lobbyists should not have so much influence or be able to corrupt theprocess, they are necessary," said a moderator from Rockville, Maryland. Moreover,while there was strong support for disclosure, many students concluded that thisreform would not solve the problem. "Our students said, 'People will always find a way
to get around any law," said a moderator from Dumfries, Virginia.
The Impact of Deliberation: The reaction of the young people to the forum experience
was often dramatic. In Rockville, Maryland, students felt that though they disagreed,

they acknowledged and respected their right to do so. And sometimes, students left theforums stewing about the issue. A young woman from Aberdeen, South Dakota, said
that in the course of the 90-minute forum she had "done about 300 [mental] flip-flops"
about different aspects of the issue.
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Questionnaire Results
NIF issue books include a pre- and postforum questionnaire that participants may fill out at
the forum. In the tables below, we report the questionnaire results from 1,457 participants
who sent in questionnaires by August 1, 2001. The results are analyzed separately so that theviews of 581 high school students can be compared to the responses of participants 18 andolder.

Those who filled out the questionnaires are a self-selected group and thus the questionnaire
outcomes should not be construed as polling data using a probability sample that yields
results within a statistically precise margin of sampling error. The outcomes should beconsidered in conjunction with the rest of this analysis as indicative of how a diverse group of
Americans feel about money and politics after deliberating together, considering other pointsof view, and weighing the costs and consequences of different approaches to the issue.

Participants' Pre- and Postforum Views
Large majorities said money has a harmful effect on politics.
Agree with Statement
Difference

Preforum

Postforum

High campaign costs discourage good people from running for office84

84

Candidates depend too heavily on large campaign gifts from wealthy donors

78

79

1

Current election laws favor those who already hold office

74

79

5

Lobbyists for special interests have too much power with public officials

69

74

5

Complex rules make it too hard for ordinary citizens to put issues on the ballot

59

62

3

Table 1

Statement:

Large numbers favored a number of steps to reduce the influence of money.
Agree with Statement
Preforum%

Postforum%

Difference%

Strictly limit the amounts of money citizens and special interests can give topolitical causes

65

70

5

Require radio and TV stations to give free airtime to candidates

64

63

1

Forbid lawmakers from accepting all gifts and favors from lobbyists

62

69

7

Make it easier for voters to recall elected officials

52

55

3

Let candidates raise as much money as they want, but strictly enforce
disclosure laws

46

49

3

Lift restrictions on campaign fund-raising to ensure that all candidates have achance to win

43

49

6

Table 2
We Should:

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The number that "strongly" favored a number of measures increased after the forums.
"Strongly" Agree with Statement
Preforum%

Postforum%

Difference%High campaign costs discourage good people from running for office

40

48

8

Current election laws favor those who already hold office

34

41

7

Forbid lawmakers from accepting gifts and favors from lobbyists

34

44

10

Strictly limit the amount of money special interests can give to political causes

28

37

9

Table 3

Statement:

Adults' Preforum Views Compared to High School Students
Adults were more likely than high school students to say that current laws
favor incumbents and that lobbyists have too much power.
Agree with Statement
Statement:%

17 & Under%

Difference%High campaign costs discourage good people from running for office

87

81

+6

Current election laws favor those who already hold office

83

61

+22

Candidates depend too heavily on large campaign gifts from wealthy donors

82

73

+9
+21

18 & Over

Table 4

Lobbyists for special interests have too much power with public officials

77

56

Complex rules make it too hard for ordinary citizens to put issues on the ballot

62

55

+7

Restricting political donations infringes on the free speech of citizens

33

34

-1

Adults were more likely to favor a number of measures to reduce the influence of money.

Agree with Statement
18 & Over%

17 & Under%

Difference%

Require radio and TV stations to give free airtime to candidates

72

52

+20

Forbid lawmakers from accepting all gifts and favors from lobbyists

71

48

+23

Strictly limit the amounts of money citizens and special interests can give topolitical causes

70

59

+11

Make it easier for voters to recall elected officials

56

48

+8

Let candidates raise as much money as they want, but strictly enforce

45

48

-3

36

55

-19

Table 5
We Should:

disclosure laws

Lift restrictions on campaign fund-raising to ensure that all candidates have achance to win

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Participants' Postforum Views
After the forums, participants wanted to curb the power of lobbyists and use public funds
to finance elections, but opposed removing the restrictions on political donations.
Strongly/Somewhat Strongly/Somewhat
Table 6

Difference

Favor

Oppose.

Curb the power of lobbyists for special interests, EVEN IF
that means reducing the power of interest groups that speak
for you

55

35

+20

Reduce the power of special interests by using public funds
to finance elections, EVEN IF that would cost taxpayers more
money

53

40

+13

Remove restrictions on political donations, EVEN IF thatmeans that some candidates will have much more money

26

65

-39

Statement:

than their opponents

Demographics (Participants 18 and over)Table 7

Table 8Are you male or female?

How Much Schooling Have You Completed?
%%
Female52

High school grad or less

15

Male

47

Some college

34

College grad or more

51

No answer

1

No answer

1

Table 9

Table 10

Table 11Are you?

How old are you?

Where Do You Live?

White
African American
Asian American
Native American
Hispanic/Latino
Other
No answer

18 - 29
30 - 49
50 - 64
65 or older
No Answer

83
4
3
2

2
4
2

47
19
20
15

NortheastSouth
MidwestSouthwest

22
10
24

West

5
5

Other
No Answer

13

22

Demographics (Participants 17 and under)
Table 12Are you male or female?

%%
FemaleMale
No answer

22

62
38

Doble Research Associates

Table 14
Are You?

Table 13
Where Do You Live?

NortheastSouth
MidwestSouthwest
West
Other
No Answer

17
9
61
3
2
4
5

%

White
African American
Asian American
Native American
Hispanic/Latino
Other
No Answer

85
3
5
2
1

4
1

Methodology
In preparing this analysis of people's
thinking about "Money and Politics: Who
Owns Democracy?" Doble Research drew ona sample of forums in 44 states and theDistrict of Columbia from the hundreds offorums that took place across the country.
Five research methods were used:"A Public Voice" Forums
We transcribed and analyzed four National
Issues Forums videotaped for the annual
PBS special, "A Public Voice," hosted byFrank Sesno. Those forums took place inPanama City, Florida; Des Moines, Iowa;
Rindge, New Hampshire; and Portland,
Oregon.

Moderator and Convenor Interviews
We conducted 22 telephone interviews withforum moderators and convenors. We asked
them to describe people's main concerns,

their starting points on the issue, the costs
and consequences they took into consideration, and the shared understanding or common ground for action that emerged. The

Special thanks to the convenors and moderators
who shared their forum reflections with us: Joyce
Buttermore, Renee Daugherty, Bennie Davis, Joel
Diemond, Bill DiMascio, Michael D'Innocenzo,
Larkin Dudley, Jim Erickson, Sadie Flucas, Delores
Foley, Monica Gomez, Tim Grove, Jeanmarie
Heriba, Steve Haseley, Margaret Holt, Terry Jack,
Hanson Kappelman, Judith Kirkey, Karen Leith,
Laurie Maak, Phyllis Nelson, Carole Paterson, Craig
Paterson, Dave Patton, Russell Petty, Jean
Pinkerton, Joan Porter, Tracy Russman, Bruce
Smith, James Smith, Nathan Starr, Susan Taylor,
Sue Williams, Kristi Wagner.

Forum Observations
We observed four National Issues Forums,
listening to initial concerns and learning
how deliberation influenced people's
thinking. In addition, we interviewed twoparticipants and the moderator after each
forum. These forums were held at:
I.
2.
3.
4.

forums were held at:
The Carter Library, Atlanta, GA
The College of Du Page, Glen Ellyn, IL
The General Federated Women's Club,
Mount Pleasant, MI
4. Gulf Coast Community College, Panama City, FL
5. Hawaii State Capital, Honolulu, HI
6. Hofstra University, Hempstead, NY
7. KCOS (Channel 13) live broadcast, El Paso, TX
8. Laurel Lake Retirement Community, Hudson, OH
9. Minnesota Humanities Commission, Winona, MN
10. Montgomery College, Rockville, MD
11. National 4-H Conference Center, Chevy Chase, MD
12. The Ohio State University, Columbus, OH
13. Outreach Center for the Baptist Church, Topeka, KS
14. Potomac High School, Dumfries, VA
15. Private Residence, Sun City, AZ
16. Public Library. Gibsonia, PA
17. St. Raphael Church, Louisville, KY
18. The Chiesman Foundation, Rapid City, SD
19. United Methodist Church, Fairfield, CA
20. Valparaiso Public Library, Valparaiso. IN
21. Virginia Tech, Blacksburg, VA
22. On-line forums with participants across the country
1.

2.
3.

Northern State University, Aberdeen, SD
Dutchess Community College, Poughkeepsie, NYState Correctional Institute, Muncy, PA
The Oklahoma Partnership for Public Deliberation
at Oklahoma State University, Stillwater, OK

Questionnaire Results
Before and after a forum, participants wereasked to fill out a questionnaire that frames
the issue and identifies key tradeoffs fordifferent choices. We analyzed a total of
1,457 pre- and postforum questionnaires,
including 581 from high school students,
received by August 1, 2001.
Research Forums

We conducted three research forums or
focus groups, each with a demographically
representative cross-section of up to a dozen
people. The sessions paralleled NIF forumsin that participants viewed the starter video,
filled out the pre- and postforum
questionnaires, and deliberated together
about the choices for about two hours. The
research forums were held in:
1. Detroit, MI
2. St. Paul, MN
3. Dallas, TX

1/4/01

2/22/01
5/17/01
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Methodology
People who participated in the NIF forums analyzed for this report are a sample of thethousands of people who continue to deliberate about this issue in communities across thecountry. Forum participants represented in this report came from the following states andcommunities:

Alabama
Arizona
Arkansas
California
Colorado
Connecticut
DelawareDistrict of Columbia
FloridaGeorgia
Hawaii
Illinois

Indiana
Iowa

Kansas24

Doble Research Associates

KentuckyLouisiana
MarylandMichiganMinnesota
Mississippi
MissouriMontana
Nebraska
New Hampshire
New Jersey
New Mexico
New York

North Carolina
North Dakota

Ohio

Oklahoma
OregonPennsylvania
Rhode Island
South Carolina
South Dakota
Tennessee
Texas
Utah
Virginia
Washington
West Virginia
Wisconsin
WyomingAbout National Issues Forums
National Issues Forums (NIF) bring together

citizens to deliberate and make choices about
challenging social and political issues of theday. They have addressed issues such as the
economy, education, health care, foreign
affairs, and crime.
Throughout the nation, thousands of civic,
service, and religious organizations, as wellas libraries, high schools, and colleges,sponsor forums. The sponsoringorganizations select topics based on citizens'concerns, then design and coordinate theirown forum programs.
A Different Kind of Talk

No two forums are alike. While they range
from small study circles to large gatherings
modeled after town meetings, all forums areunlike everyday conversations andadversarial debates. Since forums seek toincrease understanding of complicatedissues, participants need not start out withdetailed knowledge of an issue. Forumorganizers distribute issue books featuring a
nonpartisan overview of an issue and achoice of several public responses. By
presenting each issue in a nonpartisan way,
forums encourage participants to take a fresh
look at the issues and at their own
convictions.

In the forums, participants share theiropinions, their concerns, and theirknowledge. With the help of moderators, theissue books, and a "starter" videotape,participants weigh several possible ways forsociety to address a problem. They analyzeeach choice, the arguments for and against
it, and the tradeoffs and other implications of
the choice. Moderators encourage
participants as they gravitate to one option or
another, to examine their basic values as
individuals and as community members.
The Common Ground

Forums enrich participants' thinking on
public issues. Participants confront eachissue head-on, make an informed decision
about how to address it, and come to termswith the likely consequences of their choices.
In this deliberative process, participants often

accept choices that are not entirely
consistent with their individual wishes andthat impose costs they had not initiallyconsidered. This happens because the forum
process helps people see issues from different
points of view; participants use discussion to
discover, not persuade or advocate. The best
deliberative forums can help participants
move toward shared, stable, well-informed
public judgments about important issues.
Participants may hold sharply different
opinions and beliefs, but in the forums they
discuss their attitudes, concerns, andconvictions about each issue and, as a group,
seek to resolve their conflicting priorities andprinciples. In this way, participants movefrom making individual choices, to making
choices as members of a community - thekind of choices from which public action may
result.
Building Community through Public
Deliberation

In a democracy, citizens must come together
to find answers they can all live with while
acknowledging that individuals have differing
opinions. Forums help people find areas
where their interests and goals overlap,
which allows a public voice to emerge thatcan give direction to public policy.

The forums are nonpartisan and do not
advocate a particular solution to any public
issue, nor should they be confused withreferenda or public opinion polls. Rather, theforums enable diverse groups of citizens todetermine together what direction they wantpolicy to take, what kinds of action andlegislation they favor, and what, for theircommon good, they oppose.
From Agreement to Action

Forums can lead to several kinds of public
action. Generally, a public voice emerges in

the results of the forums, and that helps set
the government's compass, since forum
results are shared with elected officials eachyear. Also, as a result of attending forums,
individuals and groups may decide to takeaction individually or in association withothers to help remedy a public problem.
Doble Research Associates

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-

About Doble Research
Doble Research Associates is a public interest consulting firm that specializes in exploring,from a nonpartisan perspective, public and leadership opinion about complex public issues
including crime and corrections, education, health care, and teenage pregnancy. Each year,
Doble Research prepares an "NIF Report on the Issues" that analyzes how citizens across thecountry are thinking about a difficult issue in National Issues Forums. Doble Research islocated in Englewood Cliffs, New Jersey and can be contacted at www.DobleResearch.com orat (201) 568-7200.
Doble Research Clients and Partner Organizations:Foundations
The Center for Crime, Communities & Culture (OpenSociety Institute/The Soros Foundation)
The Chiesman Foundation
The Edna McConnell Clark Foundation
The Community Life Foundation of Owensboro
The Englewood Community Foundation
The Fetzer Institute
The Walter and Elise Haas Fund
The Hager Educational Foundation
The William and Flora-Hewlett Foundation
The Kellogg Foundation
The Kettering Foundation
The Charles Stewart Mott Foundation
The Peninsula Community Foundation
The Pew Charitable Trust
The Seva Foundation

Government Agencies
The Board of Pardons and Parole, State of Georgia
The Department of Corrections, Cedar Rapids, Iowa
The Department of Corrections, State of Indiana
The Department of Corrections, State of Vermont
The Environmental Protection Agency (EPA)
The Governor's Family Council, State of Delaware
The National Institute of Corrections (NIC)
The National Institute of Justice (NIJ)The National Parks Service, Nebraska
The Vermont Commission on Public Healthcare Values
and Priorities

OfficeThe Educational and Social Science Consortium
The General Federation of Women's Clubs
The Harwood Institute
The National Collegiate Honors Council (NCHC)
The National Conference of State Legislatures (NCSL)The National Academy of Social Insurance
The National Environmental Policy Institute (NEPI)The National Issues Forums Institute (NIFI)The Oklahoma State-Centered Project
The Pennsylvania Prison Society
The Points of Light Foundation
Public Agenda

The South Carolina State-Centered Project
The Southern Growth Policies Board (SGPB)The Southern Regional Council
The Study Circle Resources Center (SCRC)
Weavings, A Journal of the Christian Spiritual Life
The West Virginia Center for Civic Life
The Western Governors' Association

StatesThe State of Indiana
The State of New Hampshire
The State of North Carolina
The State of Oregon
The State of South Carolina

Colleges and Universities
The College of DuPage

Public Service Organizations
The American Judicature Society
The Audubon Area Community Services, Owensboro,
Kentucky
The Buckeye Association for School Administrators
The Center for Effective Public Policy
The Center for Sex Offender Management (CSOM)The Cleveland Summit on Education
The Council of Governors' Policy Advisors

26

The Council of State Governments, Eastern Regional

Doble Research Associates

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Institute on Criminal Justice, University of Minnesota
The Mershon Center at The Ohio State University
The University of California at Davis
The University of Delaware

Corporations
Clark, Martire & Bartolomeo, Inc.
Simon and Schuster, Prentice Hall Division
Weiner's Stores, Inc.

For information, contact:
National Issues Forums Research
100 Commons Road
Dayton, Ohio 45459-2777
1-800-433-7834

www.nifi.org

A Different Kind of Talk, Another Way to Act

U.S. Department of Education
Office of Educational Research and Improvement (OERI)National Library of Education (NLE)
Educational Resources Information Center (ERIC)ERIC

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