LOCAL GOVERNMENT 101
1400 K Street, Suite 205 • Sacramento, CA 95814 • 916.658.8208 • www.ca-ilg.org
Tips for Promoting Civility in Public Meetings
www.ca-ilg.org/OrientationMaterials
December 2011
What is Civility?
In the context of democratic debate, civility is about
how people treat each other. Civility involves the
display of respect for those who have positions with
which one disagrees.
Even though disagreement plays a necessary role in
governance and politics, the issue is how one expresses that disagreement. The key is to focus on the strengths and weakness of proposed solutions to community
problems—not to engage in personal attacks against
those who favor different solutions.
1 An even more
powerful leadership strategy is to listen for the
concerns and values that underlie people’s diverse
perspectives to try to identify points of agreement and common ground.
Specific Strategies
• Embrace Diverse Points of View. Local
officials are grappling with difficult policy
challenges. Bringing as many perspectives on what might be the best solution to a given problem increases the likelihood that the solution will indeed be successful and enduring.
A goal is to create a culture of tolerance for differing points of view that credits everyone with having the best interests of the community in mind.
• Everyone Gets a Chance to Share Their Views. Voltaire said "I may not agree with what you say, but I will fight to the death for your right to say it." Everyone’s right to have their view heard is a central democratic value. Conversely, a strategy that relies on drowning other perspectives out usually results in a turning up of the volume and corresponding decreases in civility in discussions.
Related Resources
This tip sheet is a distillation and
update of the Institute for Local
Government’s 2003 whitepaper called
Promoting Civility at Public Meetings:
Concepts and Practice, available at
www.ca-ilg.org/civility
.
Additional resources from the Institute
include
• Dealing with Emotions at
Public Hearings, available at
www.ca-
ilg.org/respondingtoconflict
and
• A Leader’s Role When Tragedy
Strikes, available at
www.ca-
ilg.org/tragedy
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• With Rights Come Responsibilities. For there to be time for everyone to weigh in on an issue, there may need to be reasonable time limits on how long individuals speak. The goal is to create a culture in which as many people as possible (including decision- makers) are respectful of other people’s time in attending and participating in the meeting.
• Avoid Debates and Interruptions. Interruptions should be discouraged so that individuals have the opportunity to
complete their thoughts. A good practice
for everyone participating in the
conversation is to make a note of a question
or different point of view that occurs to you
when someone is speaking and then
address that issue when it is one’s turn to
speak. This is an especially important
approach for decision-makers to model.
• Reduce Uncertainty. Assuring people
they will be allowed to share their views
and how can reduce concerns that they will
not be allowed to be heard. Explaining the
process to be used to allow all views to be
heard at the outset of a meeting or
discussion item can reduce tension levels.
• The Importance of Listening. Listening
is an important sign of respect, as is giving
others the opportunity to listen. Decision-
makers’ active interest in what people are
saying is vital. Repeating back core points
that a speaker makes reassures the speaker
that their message has indeed been heard—
even if one does not necessarily agree with
it. The mood turns ugly if the public thinks
the matter has already been decided,
decision-makers don’t care about public
input, or decision-makers are being impolite or disrespectful of the public they serve.
Everyone attending a meeting should respect other attendees’ right to both listen and be heard. One person should talk at a time, any private conversations should be taken outside or deferred, and smart phones should be turned off (texting and emailing should not occur during the meeting).
• Be Compassionate About the Fear Factor/ Heckling and Applause Not Allowed.
Polls suggest many people fear public speaking.
2 This fear can come from concerns about
Agenda Guidance
Some local agencies include language to
the following effect on their agendas:
Free expression of all points of view is
an important democratic value in this
community.
To allow all persons to speak who may
wish to do so, each speaker is allowed
a maximum of __ minutes. An
effective approach is to lead with your
key point or concern and then explain
the reasons underlying it.
If others have already expressed your
views, you may simply indicate that
you agree with the previous speaker.
If appropriate, a spokesperson may
present the views of a group.
To encourage and respect expression
of all views, meeting rules prohibit
clapping, booing or shouts of approval
or disagreement from the audience.
Tips for Promoting Civility in Public Meetings December 2011
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being judged negatively or having ideas that people will ridicule or reject. Allowing cheering and booing or other forms of heckling discourages people from sharing their views (even silence or no applause can be perceived as rejection). It also runs the risk that those that do speak will focus more on getting applause than moving the conversation towards addressing difficult
issues. (Eye-rolling and grimacing can be
non-verbal forms of heckling and also have
no place in communities that value mutual
respect.)
• Separate People from The Problem.
Personal attacks or questioning people’s
motives or character rarely moves the
conversation forward to a solution of a
problem. In the book about effective
negotiating called Getting to Yes,
3 the
authors encourage negotiators to attack the
problem, not the people involved in the
problem. Anything that approaches name-
calling should be off limits.
• Consider Using Titles. Referring to each
other by title and last name (Supervisor
Hassan, Council Member Lee, Board
Member Aviña) can serve as a way of
showing respect that an individual has been
elected and is participating in the
conversation in that capacity. Using
similar forms of respect for members of the
public (Mr., Ms, Sir, Madam) when
speaking can also reinforce the notion that
everyone is engaged in a special kind of
discussion. Community norms vary,
however, and in some communities this
may be perceived as an affectation.
• Take a Break. If conversations get heated,
consider taking a break. As one veteran
observer of public meetings noted “time
can be an anti-inflammatory agent” that can
give people a chance to calm down and
restore order.
4 A Note on Civility and Staff
Staff plays a critical role in providing
service to the agency and the public the
agency serves. An agency’s ability to
attract and retain capable and motivated
staff is an important determinant of how
satisfied the public is likely to be with
the agency’s performance and that of its
elected officials.
An old management saw counsels those
with oversight responsibilities to praise
in public and criticize in private. That
advice is sound for those in public
service.
If an elected official has concerns about
a staff member’s performance or
actions, a good practice is to make the
top administrative official of the agency
aware of those concerns.
Similarly, if a member of the public
raises concerns about the performance
of a public agency employee, refer it to
management with a request for follow
up.
If the communication is more in the
nature of a personal attack, try to
identify the underlying concern and
respond to that. Encouraging the person
to focus on the issue and avoid personal
attacks. Separating people from the
problem can be just as valuable a
strategy when it comes to staff.
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Parliamentary Procedure and Civility
Rules of parliamentary procedure are another tool to encourage civility and decorum at meetings.
The most famous source of parliamentary procedure is Robert’s Rules of Order. A good starting point is www.robertsrules.com/ (the “survival tips” page is especially helpful).
A former mayor and county supervisor (and now judge) has created a simplified version for use at the local level. Called “Rosenberg’s Rules,” the text and an explanatory video are accessible from the Institute’s website at www.ca-ilg.org/rosenbergsrules.
The following is an excerpt from Rosenberg’s Rules on about courtesy and decorum:
The rules of order are meant to create an atmosphere where the members of the body and the members of the public can attend to business efficiently, fairly and with full participation. At the same time, it is up to the Chair and the members of the body to maintain common courtesy and decorum. Unless the setting is very informal, it is always best for only one person at a time to have the floor, and it is always best for every speaker to be first recognized by the Chair before proceeding to speak.
The Chair should always ensure that debate and discussion of an agenda item focuses on the item and the policy in question, not the personalities of the members of the body.
Debate on policy is healthy, debate on personalities is not. The Chair has the right to cut off discussion that is too personal, is too loud, or is too crude.
Debate and discussion should be focused, but free and open. In the interest of time, the Chair may, however, limit the time allotted to speakers, including members of the body.
Can a member of the body interrupt the speaker? The general rule is “no.” There are, however, exceptions. . . .
Note that the chair may have greater latitude in enforcing decorum among decision-makers than between the public and decision-makers.
• Ejection a Last Resort. If a recess does not work to restore order and other techniques are not successful, calling in the sergeant of arms is a last resort. A good practice is to create a record that disruptor was given ample warnings and opportunity to leave or reform their behavior voluntarily. If selective removal of one or more disruptors does not restore order, state law does allow clearing the room with the media allowed to remain5 (as an even more last resort).
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• Walk the Talk. For civility to be a regular part of community discourse, community leaders must set the standard. Scholars are concerned—and the data seems to demonstrate—that public officials’ incivility to one another contributes to voter alienation and antipathy toward public officials and public agencies.6
A good approach is to treat people how you would like to be treated. This includes a) limiting one’s statements in discussions to those that move the conversation forward, b) keeping one’s remarks brief, to the point and non-repetitive of comments others have made (other than to note one’s agreement), c) avoiding personal attacks (in public and private) and d) otherwise adhering to the strategies described above.
Conclusion
How a community conducts its public meetings is a reflection of the community and its values.
As Dr. Martin Luther King’s observed:
In a neighborhood dispute there may be stunts, rough words, and even hot insults; but when a whole people speaks to its government, the dialogue and the action must be on a level reflecting the worth of that people and the responsibility of that government. 7 Dr. King’s admonition to his listeners to set their standards of discourse high--irrespective of how others behave--is consistent with the quote from Gandhi to his followers that “you must be the change you wish to see in the world.”
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About This Resource
This resource is a service of the Institute for Local Government (ILG) whose mission is to promote good government at the local level with practical, impartial, and easy-to-use resources for California communities. ILG is the nonprofit 501(c)(3) research and education affiliate of the League of California Cities and the California State Association of Counties. For more information and to access the Institute’s resources on Local Government 101, go to www.ca-ilg.org/localgovt101.
*The Institute welcomes feedback and suggestions on enhancing this resource:
• Email: [email protected] Subject: Tips for Promoting Civility in Public Meetings • Mail: 1400 K Street, Suite 205 ▪ Sacramento, CA ▪ 95814
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Sample Codes of Civility
Drafting Note: A threshold issue is whether an agency’s code will be positive or negative. In other words, will the code describe conduct that is prohibited or describe the kind of conduct it desires to be the norm. Describing the kind of conduct that is preferred has the advantage of being more instructive in setting the goal and encouraging people to meet that goal.
Commitment to Civil Behavior
To maintain a cohesive, productive working environment, the members of the San Diego County Water Authority Board of Directors commit to:
1. Support the Authority’s mission.
2. Bring Authority related concerns, issues, and conflicts to the Authority Board for discussion.
3. Offer alternative solution(s) when addressing a problem or issue.
4. Show respect to each other as appointed representatives of their member agencies.
5. Promote civility during Board meetings and tolerate nothing less.
6. Maintain the confidentiality of material discussed during closed Board meeting sessions.
Similarly, not to disclose the content or substance of confidential or privileged communications relating to Authority business.
7. Limit the length of comments during Board meetings to three minutes per Director per item and not repeat points that already have been stated by other Directors.
Pledge of Civility
1. The manner in which we govern ourselves is often as important as the positions we take.
2. The organization’s collective decisions will be better—and truer to our mission— when differing views have had the opportunity to be fully vetted and considered.
3. All those who appear before the organization’s board and committees have the right to be treated with respect, courtesy, and openness. We value all input.
Accordingly, we commit to conduct ourselves at all times with civility and courtesy, to both those with whom the Board interacts and to each other. We also pledge to endeavor to correct ourselves, should our conduct fall below this standard.8
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Resources and References
1 Burgess, Guy and Heidi, The Meaning of Civility , Conflict Research Consortium at www.colorado.edu/conflict/civility.htm.
2 http://www.gallup.com/poll/1891/Snakes-Top-List-Americans-Fears.aspx (fear of public speaking ranks second to fear of snakes).
3 Fisher, Roger and Ury, William L., Getting to Yes: Negotiating Agreement Without Giving In (1991). 4 See Vermont Institute for Government, Born to Chair: An Introduction to the Science and Art of Chairing a Board Meeting (1998), available at http://www.sec.state.vt.us/municipal/pubs/chair.pdf and http://crs.uvm.edu/citizens/chair.pdf., page 3.
5 See Cal. Gov’t Code § 54957.9, which provides:
In the event that any meeting is willfully interrupted by a group or groups of persons so as to render the orderly conduct of such meeting unfeasible and order cannot be restored by the removal of individuals who are willfully interrupting the meeting, the members of the legislative body conducting the meeting may order the meeting room cleared and continu e in session. Only matters appearing on the agenda may be considered in such a session. Representatives of the press or other news media, except those participating in the disturbance, shall be allowed to attend any session held pursuant to this section. Nothing in this section shall prohibit the legislative body from establishing a procedure for readmitting an individual or individuals not responsible for willfully disturbing the orderly conduct of the meeting.
6 Carter, Stephen L., Civility: Manners, Morals and the Etiquette of Democracy (1998) at 9. 7 From the March on Washington for Jobs, Peace and Freedom, 1963. 8 Adapted from the Pledge of Civility adopted by the California Public Employee Retirement System Board.