State Legislators’ Web Presence: Frequency, Content, and Design
Julie M. Still
Paul Robeson Library
Rutgers University
300 N. 4th St.
Camden, NJ
08102
still@camden.rutgers.edu
Abstract: While the
use of web sites in national political campaigns has been researched from a
variety of angles, little attention has been paid to the use of the web at the
state level. This study of web sites for
state legislators in three states (Arizona, Missouri and New Jersey) looks at
the number of legislators who have web sites other than the brief space
allotted on the state’s web site, what sort of districts are represented and
the content and design of these sites.
In two of the states roughly 10% of the state legislators had an easily
located web site. The third state had a
higher ratio but the sites were more frequently identifiable as being less
frequently updated. Republicans and
women are more likely to have web sites.
There is little standardization of the type of information presented on
the sites.
Contents
Introduction
The influence of
the world wide web on politics is easily visible,
especially at the national level, in presidential, senatorial and congressional
races. Little study has been done,
however, on the use of the web at the state level, especially the state house. If the web is being used as a communications,
public relations, and campaign device on the national level, is the same thing
happening at the state level? There is
usually less money in these races, so the amounts to be spent on web designers,
hosting, content providers, and maintenance is smaller. How many state legislators use the web? What do they use it for? These questions have as yet been unanswered
and this study is designed to offer some initial information on the use of the
web at this level of politics.
Kaye and Johnson
(2002) have found that there are four primary motivations for seeking political
information online: guidance,
information seeking or surveillance, entertainment, and social utility. In the 1996 presidential campaign, it is
estimated that 29% of Americans used the Internet to find information on
candidates or political issues (Gibson and Ward, 2000). Web users in that race were more likely to
look for news than voting decisions.
Candidates who did have a web site were more likely to see a higher
number of votes cast in that race. (D’Alessio,1997). Unfortunately this did not translate into a
higher percentage of Americans voting (McManus, 2002). A more recent survey by the Democracy Online
Project showed that 37% of independents likely to vote seek political
information online, although they may seek information from more objective
sources than candidate or legislative web sites. (Munro,
2000). While the Internet is
often said to democratize society and it is clear that people are using the web
to locate information on candidates, there is criticism that politicians use
the web for their purposes but do not necessarily invite greater interaction
with their constituents (Stromer-Galley, 2000). All levels of elections have been given at
least cursory study, but most have focused on the national level. This study will look at the campaign web
presence of state legislators, and see how it compares to the study of national
politicians.
History and Literature Review
In 1995, the
U.S. House started placing the texts of bills and other legislative materials
on the web. The U.S. Senate was the
first to add individual pages for each senator (Davis, 1999, 123). In 1998, 72% of all senate candidates had
campaign web sites (Gibson and Ward, 2000, 301). By 2000, this had increased to
88% (Puopolo, 2001).
Although many must have appeared late in the campaign; by the end of
July 2002, only about half of all house or senate campaigns had a web
site. Incumbents were less likely than
challengers to have a web presence (Vaida,
2000). This may be in part because those
in office often have a very basic web page provided for them by the
office. Also in 2002, every Democratic
and 92% of the Republican gubernatorial candidate had a website (Chinni, 2002). A
1996 survey of US Congressional web sites found that the information most
frequently provided were biographies and contact information (over 90% of house
and senate sites) and press releases (74.7% of house sites and 65% of senate
sites). No other items were found on
more than half of the sites surveyed (Davis, 1999, 131). A study of the web sites of male and female
Congressional representatives found no real differences by gender (Niven and Zilber, 2001). Adler, Gent and Overmeyer (1998) found in the early stages of federal
congressional web presence that Republicans, younger legislators and those from
affluent districts were more likely to have a web site, but that Democrats and
those who could not count on an easy victory were more likely to use a site
that solicited feedback and problems from uers.
Web sites, at
least campaign web sites, are also effective in fundraising. John McCain’s presidential campaign claims to
have raised more than $7 million over its web site (Munro, 2000). More recently, Howard Dean used the Internet
to energize segments of the population that had previously been inactive. While his web site was not technically sophisticated in and of
itself, what made it particularly valuable was the addition of tools that
allowed Dean supporters around the country to meet each other in real time
(Cornfield, 2004). Traditional
techniques, letters and phone calls, can be expensive, eating up almost half
(40%) of the amount raised. Internet
appeals are very inexpensive, especially if free email services are used, and
generate a higher response rate (Munro, 2000).
While simple e-mail services to a limited number of recipients is still
free, more complex email with personal domain names is available for a fee, and
it certainly is true that it is often cheaper than paying for printing and postage,
or hiring staff to make cold calls or automated call services.
Email usage to
communicate with voters goes both ways.
A 2001 study of Tennessee
state legislators found that voters were increasingly using email to
communicate with their state legislators.
This went across all age demographics, although racial minorities were
less likely to use email. Female
legislators were more likely to be contacted electronically than their male
counterparts. The legislator’s attitude
towards constituent services was also a factor.
The more emphasis a legislator put on constituent service the more
likely he or she was to receive email from voters. (Richardson,
2001). A 2000 survey of state
legislators in California, Georgia, and Iowa also found extensive use of email
by politicians at this level, not only to communicate with constituents but
also other policymakers, both in and out of office (Cooper, 2002).
The U.S. Senate as
well as the U.S. House offer simples web sites for their members, but these do
not provide for much space or information.
On the state level, many states also provide simple sites for members,
giving contact information, committee assignments and such, in a uniform
fashion, not allowing for any individuality or personal expression. States usually have a standard one screen web
page for all legislators providing a photo and basic information. These cannot be used for campaign purposes
and often provide little information other than contact points. They cannot be used for blatant campaign
purposes, such as the solicitation of volunteers or contributions. Legislators who wish to communicate further
with their constituents must maintain their own personalized web pages
(Legislative, 2002). This also is
problematic. A site managed by the
legislator’s office staff during office hours, or using public funds in any
way, cannot be used for campaign purposes.
Thus many sites do not look like campaign sites, but the fine print
states they are paid for by the “committee to elect” and so can, during
election season, be used for fund raising and campaigning. Even so, as previously mentioned, they are
less likely to have personal sites than challengers, who, unless they currently
hold another office, must have a personal site or page to have any web presence
at all.
The acquisition
and maintenance of a web site is not as easy as the average computer user might
think. National candidates can afford
professional consultants who will design and manage the site. State candidates, working on a much smaller
budget, may be dependent on volunteers, both for hosting and maintenance. Finding someone with the necessary equipment
and skills within their district, if this is an issue or requirement, narrows
the choices dramatically. Even selecting
the domain name (web address) can be complicated. Finding web address names for candidates
without having them in advance or finding them in a search engine can be
difficult. The variations are
endless. If Bob Smith is running, would
the URL (uniform resource locator, or web address) be bobsmith.com,
voteforbob.com, smithforcongress.com, smithcampaign.com or some other
combination of terms? Web savvy
politicians will purchase something simple that can be used across a number of
elections and offices and make sure the domain name costs are paid every
year. The consistency can help keep it
in the mind of voters. If the URL
changes with each election (bob2000.com, bob2002.com, and so on) published
materials have to be updated, and everyone reminded of the change. Hacking can be another problem. Volunteer sites may not have all the security
measures of a professional firm. One New
Jersey candidate for a state level office withdrew
from the race and shortly thereafter her site was altered to contain adult
images without her knowledge (Foot, 2002).
Thus, the site must be monitored.
It must be updated to keep it fresh and make sure links are
working. Only the most basic
“brochure-ware” sites, those conforming in appearance to a print brochure and
seldom updated, will need minimal tending.
While design and development are expensive and time consuming, it is the
maintenance and upkeep that are the most wearing. Even national campaign sites tend to be
dormant between elections.
Web sites at the
state level may be put up on the fly without much information going through
party lines. A 2001 TeamGOP
web site for Missouri listed
official web sites for all 76 candidates for state representative, but listed
only one personal site. Yet research for
this paper turned up personal sites for five others. This would be an indication that candidates
are posting web sites without assistance or guidance from the state party, or
that the state party did not update their site often.
Methodology
This study looks
at the web sites of state legislators, using a data sheet to collect
information on a uniform set of topics.
The researcher selected 3 states, New Jersey,
Missouri, and Arizona,
to represent geographic diversity. The
research was done between the months of June and August 2001. The sites found
were either legislative or campaign, and in some cases functioned as both, but
all were personal sites of the legislator, and not the generic site provided by
the state. It is also a study of the
ease of locating these web sites.
Assuming that a constituent was researching a state representative, but
did not have the URL of the representative’s site, how would the constituent be
most likely to go about looking for it?
Some might just type in a few guesses.
More sophisticated users might try a search engine
State web sites
provided the names of all current congressmen (called assemblymen in New
Jersey). These
names were entered in the Google search engine, in conjunction with the name of
the state (i.e. “Jason Crowell” Missouri). Google was selected as being the example of a
search engine in common use, and one that the research felt had a good
reputation for being well-constructed and thorough. All entries (or the first 100 if a large
number were retrieved) were examined to see if the legislator had a web site
other than that provided on the state legislature page. The state web sites in these 3 states provide
a one-page template site for each legislator and this acted as a control mechanism. If this site did not show up on the first
screen of hits the researcher knew she had likely made a typo or other error in
the search and tried again. Variations
on the names were searched in these cases, for example, use of nicknames or
middle initials. Google provides a
“cached” copy of each website at the time it was indexed, thus, “ghost sites,”
which once existed but are no longer available on the web, can be retrieved in
a search. It is entirely possible that
some state legislators have pages that did not show up in this research. However, if it could be located in this way,
it is likely that constituents would be unable to find it unless they had the
URL in front of them. In those cases the
politician is then making good use of the site only if the URL is disseminated
widely enough that the average person would be able to type it in from memory
or have it next to their computer.
This method, in
addition to gathering information about the format and content of any available
sites, also provides information on which legislators have web sites and how
accessible the sites are. The greatest
majority of the sites located appeared on the first screen of hits in the
Google results. This placed them in the
top 10 sites retrieved. The official
state site most often appeared on this results page as well. One factor in retrieval is the commonality of
the politician’s name. New
Jersey’s two Bob Smiths provided a real challenge, as
did Tom Green of Arizona. While Bob Smith, even when used as a phrase
and searched in conjunction with the word Jersey, was
too common a phrase to provide workable results, Tom Greene is hampered by
having a name that is both the name of a county in Texas
and a popular comedian. Thus, even going
through the first 100 hits for these searches did not provide the type of
results usually retrieved. This provides
a warning to those in office and those who aspire to be: if your name is common or shared with others
in the media spotlight, find some way of making it unique You might adopt an unusual nickname,
use a full name (first middle last) or a middle name or some other
variant. If either Bob Smith began
referring to himself with a full name, such as Robert Allen Smith or Tom Greene
as Tom “Arizona” Green, locating
information about them on the Internet would be much easier. However, even in these cases, their sites
would not have been retrieved in this study unless the names used were those
found on the state site. Formally using
some form of a nickname or making sure it is listed on official state sites might
help constituents locate information.
Another way of ensuring better visibility of the site would be using
metadata or keyword terms. These are
included in the coding of the page and are invisible to viewers but readable by
search engines. To see whether or not a
page has these select “view” on the menu bar and then either “page source” or
“encoding” or something similar.
Keywords and metadata appear near the top of the screen and can include
key issues, place names, party affiliations, and name variations. For example, one New
Jersey legislator used keyword coding to make sure
his site could be found under either Francis Blee or
Frank Blee.
This study showed the relative lack of sophistication in web design at
this level of campaign sites. Many pages
did not have titles, let alone metadata terms.
They were retrieved as “untitled” and the researcher had to look at the
accompanying web addresses and relatively few words retrieved with each site to
decide whether or not the anonymous pages were related to the politician being
searched.
The data sheet
used (see Appendix 1) was designed to capture snapshot data on any web site
located, recording information on domain name, policy content, update date,
email link, forms and biographical information, as well as level of
sophistication and accessibility to multilingual or disabled users. Some parts of the data sheet, which worked
well in initial tests, proved untrustworthy in the actual study. The date of birth and year elected were not
always easy to find, certainly not on the web pages studied, although sometimes
on the state site. The level of
sophistication, initially considered by the number of pages in the site and use
of images or photos proved a poor measure of quality. Many sites with numerous screens lacked
titles for any of them, making them difficult to find. Photos and images were often grainy,
ill-sized, unflattering, and poorly placed.
The level of sophistication proved to be an artistic measure not easily
captured in anything but the eye of the beholder. Some of the sites were beautifully designed
and written (Rick Johnson of Missouri
comes to mind). Just by viewing the site
and reading the biography the researcher would gladly have written him a check
had her checkbook been handy. Others
were breathtakingly horrible. Just like
a train wreck, it was hard to look away.
Some pages had inconsistent font sizes (within paragraphs of text),
choppy appearance, poor images, and a long list of other design flaws.
Results
Who has a web site?
In New
Jersey, of the 80 assemblymen, only seven had active
web sites; there were three ghost sites.
While the legislature was at that time almost evenly divided between
Republicans and Democrats (45R to 35D) all of the currently used web sites were
for Republicans. Of the three ghost
sites, one was for a Democrat. The division between gender
was more aligned. Eighty-one percent of
the assemblymen were male, and seventy-one percent of those with web sites were
male (all three ghost sites were for men).
A higher percentage of women in the legislature had web sites than men,
but not by that much. Three of those
with web sites were in leadership positions (Deputy Speaker, Majority Leader, Majority Conference Leader).
All but one of the pages doubled as campaign and legislative pages. Marion Crecco
maintained both types of pages as separate entities.
In Missouri
there is a similar pattern. Only 17 of the 163 legislators had active web
sites. Of the 163, 46.5% are Republican, but of the seventeen with web sites
58.8% are Republican. Although women
make up only 25.1% of the legislature, 41% of those with web sites are
women. Again Republicans and women are
more likely to have a web presence.
Arizona
presents a break in some of these patterns. Of the 60 legislators, there were 18 locatable
active web sites, but many of these had not been updated recently and referred
to the 2000 campaign in name. Five of
the 18 were found in screens past the first screen of results, some as far back
as the 8th screen (putting them in with results number 70 through
80, too far back for most web users to look).
There were also two ghost screens.
The legislature is split by 36 Republicans and 24 Democrats, 39 men to
21 women. Again, however, a greater
percentage of the web sites belonged to Republicans (77%), who only control 60%
of the house seats. While women hold 35%
of the seats, they have 50% of the web sites.
Web site content and structure:
Most
web sites across all states had their own domain name (e.g. www.joecandidate.com) as opposed to
being part of a larger site (e.g. www.freespace.com/joecandidate). In New Jersey
all the legislators had their own domain name.
In Missouri 11 had their
own domain name and five were part of a larger site. In Arizona
15 had their own domain name and two were part of a larger site. Having a simple domain name makes it much
easier to find the site. Longer, more
complicated URLs, with one or more slashes, are much harder to remember and
more difficult to type.
As for policy content
(policy positions, voting records, views on upcoming votes, and lists of
sponsored legislation), in New Jersey five of the seven sites had some form of
policy content; in Missouri 10 of the 17 did, in Arizona, only nine of the 18
had policy content. Unfortunately this
was seldom in depth and comparisons are difficult with so little unstandardized material.
Providing an update date
was not a priority of any of the sites.
In New Jersey only two of
the seven sites had one; in Missouri
only four of the 17 had an update date, one from 1999 and the other 3 scattered
throughout 2001. In a rather telling
commentary a site not updated since 1999 included the following statement: “We are going to keep this web site up and
going. I hope to use it as a tool to
communicate with you in the upcoming legislative session.” In Arizona,
only three of the 17 sites had update dates, two from 2000 and one from
2001.
Email links
were more popular. In New
Jersey four of the seven sites had email (mailto)
links). In Missouri,
12 of the 16 sites had an email link. In
Arizona 11 of the 17 sites had
email links. If as previous research (Richardson)
suggests, constituents are contacting their state legislators by email, they
are not getting the email address off of the legislator’s personal web site.
Accessibility is not a
primary concern to state legislators.
Although federal rules require all federal agencies use technology that
is accessible to individuals who may have some impairment, the state
legislators’ sites found in this study did not choose to indicate that they
were accessible. This can be done by
using standard online evaluations (such as Bobby, at bobby.cast.org). Nor were languages a concern. Even in Arizona,
where parts of the state have a high percentage of Spanish-speaking residents
none of the sites found in this study had Spanish translations. This is not all that surprising considering
that as of mid-June 2002 neither the Republican nor Democratic candidate for
governor in California had
Spanish equivalents of any part of their sites (Cornfield, 2002). A study of Hispanic and Asian American
candidates on gubernatorial and federal level showed that Hispanic candidates
were less likely to have Spanish language web pages as their ethnicity was
enough to appeal to Hispanic voters (Nash, 2003), but both George Bush and Al
Gore has some Spanish language presence on their campaign web sites (Len-Rios,
2002).
Where are the sites?
It is also
of interest to look at the geographic distribution of the legislative districts
represented by current web sites.
Initial expectations might be that those districts with higher incomes,
and therefore more likely to have higher levels of Internet access, might be
the ones with web sites. That is not
borne out. However,
the districts to tend to cluster in specific areas.
In Missouri,
of the 17 sites, the majority were found near the largest metropolitan
cities. The St.
Louis area hosted six, the Kansas
City area five.
Five of the remaining six were found near smaller cities, Columbia
(home of the state university’s flagship campus), Springfield,
Cape Girardeau, Poplar
Bluff and Joplin. The remaining site was in the southeast part
of the state. While the high
concentration in the St. Louis and Kansas
City areas might be intuitive, one wonders why the
other three city’s legislators had a web site and not those from St.
Joseph, Rolla, Sedalia,
Jefferson City, or other populated
areas. What is, perhaps, more interesting
is that the sites tended to cluster, not just in urban areas, but even within
those areas, in close proximity. In the St.
Louis area, districts 88, 90, and 105 touch in a
stacking formation, one atop the other, with 99 just a hair’s breath away from 90; all west and south of the city
center. Only districts 59 and 69 are
geographically separate from the larger cluster (and from each other). In the Kansas City
area a similar arrangement is found.
Districts 52, 56, and 124 are in a stack. District 45 is one district removed from 56;
all on the south and east side of the city center. District 35 is north of the city. Three other districts are in close proximity,
154 (Poplar Bluff), and 159 touch,
with 158 (Cape Girardeau) almost
touching the corner of 159. Districts
128, 142, and 23 are geographically separate, from each other as well as the
other clusters.
In New
Jersey there is a similar pattern. Like Arizona,
there are not separate districts for the state and house, but 2 representatives
are elected for each state district. In New
Jersey each of the districts with a legislative web
presence represented only one assemblyman.
In no district did both assemblymen have a site. Nor was any site used to represent both. It was clearly a site for just the one. Again, there were more sites in the most
densely populated part of the state.
Three sites were located in the northern part of the state, near but not
touching, New York City. Districts 34, 36, and 38, are clustered
together, each touching the other two. Atlantic
City is represented by district 2. The other three districts are not in heavily
populated areas. Again, two districts,
11 and 10, cluster one atop the other, along the eastern coast. District 25 is in the northern part of the
state but does not contain any large cities.
It is interesting to note that of the three ghost sites (no longer on
the web when the research was conducted but still available as a “cached” file
in Google), district 24 is adjacent to 25, and 32 is adjacent to 36. District 21, the last ghost site, is also in
the northern densely populated area but does not touch on another other
district represented with a web site.
Like Missouri several
larger New Jersey cities, Camden,
New Brunswick, and Trenton,
were unrepresented in this survey.
Arizona
also has the same legislative districts for state senate and house, with 2
legislators elected from each district.
Fifteen of the 30 districts had at least one web site and in three
districts (12, 27, 28) both legislators had a web site. Because of the high percentage of web sites,
the large number of districts represented, and the arrangement of the state
districts (reflecting the population density), it would be highly unusual for
any grouping of districts not to be adjacent in some way. Indeed, all of the districts with web sites
are touching at least one, sometimes two or more, other districts with
sites. Four of the districts are in the Tucson
area, the others at least partially in the Phoenix
area.
It is also
interesting to look at the demographic data for the districts to see if there
are certain characteristics that seem to be either the cause or effect of a
legislator having a site. As
demonstrated by the geographic diversity discussed above, districts in large
metropolitan areas were somewhat more likely to have a web presence. However, as city and suburban areas can have
income and sociological extremes, it is important to look at other factors as
well. Also, legislative districts do not
always follow city or even county boundaries so locating comparative
information is not easy. The Almanac
of State Legislatures and State Legislative Elections provide some
data, on income, age and education.
One factor
to look at is income. In Missouri,
of the 17 legislative districts with sites, 9 had above average income
(compared with 61 statewide), and average percentage of households with an
income of $50,000 or above. Only five of
the 17 represented districts with more than average percentage of constituents
over the age of 55. Only three had an
above average percentage of African Americans (compared with 32 of the 163
districts statewide). Statewide 60 of
the 163 districts had an above average percentage of college educated constitutents. Of
the 17 districts with web sites, 9 had constituents with a higher than average
percentage of college degrees.
In New
Jersey, only two districts with web pages had an above average income, compared
to 18 of the state’s districts and only three had a larger than average percentage
of households with an income of over $50,000.
Five had a higher than average percentage of constituents over the age
of 55. Only two had a higher than
average percentage of African Americans (compared with 14 of 40
statewide). Three had a higher than
average percentage of college education constituents, compared to 19 statewide
In Arizona,
8 districts had above average incomes, compared to 11 of the 30 statewide, 7
had higher than average households with an income over $50,000. Eleven had a higher than average population
over the age of 55. Only two had a
higher than average percentage African American population (compared to 8 of 30
districts statewide). Nine had a higher
than average percentage of college education constituents, compared with 13 of
the 30 statewide.
Looking at the stability of the parties in the districts, only one
district with a web site in Arizona had not elected a legislator from the same party from 1992-1996. In Missouri
only four sites were from volatile seats.
In New Jersey none of the
districts had switched parties during those years.
Conclusions
It looks as though
only about 10% of state legislators in New Jersey
and Missouri maintain an easily
located web site, 30% of those in Arizona
do, although some are not as easy to locate.
Across all three states Republicans and women were more likely to have
web sites than Democrats and men. Adler,
Gent and Overmeyer (1998)
found that in the early stages of federal congressional web presence that Republicans,
younger legislators and those from affluent districts were more likely to have
a web site. State legislators, still in
the early stages of web site usage, may be mirroring those categories. However, it is clear that there is very
little standardization of content on these sites, reflecting a lack of
agreement among legislators as to what should be presented to the public and
either a lack of generalized public expectation or a failure to meet those
expectations. It is probably a
combination of both. That legislators do
not use their personal web sites to keep the public informed of their
activities is obvious, especially from the lack of current updates on these
sites. However, national campaign sites
are often dormant between elections so this may simply be a reflection of that
practice. As the public becomes more web
savvy politicians at all levels may need to be more attuned to their web
presence. Since the amount of money raised in these
races is unlikely to support or justify the expense of a professional web
designers and managers there is probably a greater reliance on volunteers who
can only devote a certain amount of time and effort to the job. The incidence of geographic clustering of
sites is intriguing but more research will need to be done among other states
to see if this is a national trend or merely a coincidence.
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suggested citation: Still, Julie M. 2005 State Legislators' Web Presence: Frequency, Content,
and Design [available at http://www.rci.rutgers.edu/~still/poliwebpages.htm]
posted 03/18/05