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When the U.S. House of Representatives passed S.517 today, voting to send the “Unlocking Consumer Choice and Wireless Competition Act” that the U.S. Senate passed unanimously last week, the legislative branch completed an unprecedented democratic process: a bill that had in its genesis in a White House e-petition signed by more than 100,000 consumers was sent back to the White House for the President’s signature. If signed into law, the bill would 1) make it legal for consumers to unlock their cellphones in January 2015, reversing a controversial decision made by the Librarian of Congress in 2013 by reinstating a 2010 rulemaking and 2) direct the Librarian to consider if other mobile devices, like tablets, should also be eligible to be unlocked.
As Vermont Senator Patrick Leahy’s staff highlighted, the ranking members and chairmen of the House and Senate Judiciary Committees started cooperating on the issue in 2013 after the White House responded to the e-petition.
“I thank the House for moving so quickly on the bill we passed in the Senate last week and for working in a bipartisan way to support consumers,” said Leahy, in a statement. “The bipartisan Unlocking Consumer Choice and Wireless Competition Act puts consumers first, promotes competition in the wireless phone marketplace, and encourages continued use of existing devices. Once the President signs this bill into law, consumers will be able to more easily use their existing cell phones on the wireless carrier of their choice.”
In the annals of still-embryonic American experiments in digital democracy, I can find no ready equivalent or precedent for this positive outcome for the people petitioning their government. The closest may be when the White House responded to an e-petition on the Stop Online Piracy Act in 2012, taking a position on anti-piracy bills that posed a threat to online industry, security and innovation. Even then, it the voices of millions of people activated online to change Washington and the votes of members of Congress.
It’s critical to note that there’s a much deeper backstory to why activism worked: the people behind the e-petition didn’t stop with an official response from the White House. After making a lot of noise online, activists engaged Congress over a year and a half, visiting Capitol Hill, sitting in on phone calls and hearings, and being involved in the democratic process that led to this positive change.
“Many of the initial conversations on DMCA reform were engaged with the Republic Study Committee copyright memo in 2012, so it’s been a 21 month process,” said former Congressional staffer Derek Khanna, via email, “but such sea changes in policy usually take a long time, particularly if you’re confronting very powerful interests.”
Khanna, now a fellow at Yale Law School and columnist, was part of the coalition of activists advocating for this change in Congress.
“The campaign on unlocking was really trying to drive those issues and solutions through movement politics,” he said, “and that movement has succeeded in more than just the unlocking bill: now there is also the Judiciary Committee having hearings on copyright reform. The YG Network report, “Room to Grow,” also called for wholesale copyright and patent reforms and cited the RSC memo.”
This is an important lesson in why “clicktivism” alone won’t be enough to make changes to laws or regulations emanating from Washington: people who want to shifts in policy or legislation have to learn how Congress works and act.
“A key part of our success was starting small with definable goals, and taking small successes and building upon them,” said Khanna. “Most movements throughout history have followed this strategy. Sometimes, e-campaigns shoot for the moon when the small battles have not been won yet. This is particularly a problem with tech issues. One reason why the unlocking petition was more successful than others was because it was only a tool in the toolkit. While it was ongoing, I was arguing our cause in the media, writing op-eds, meeting with Congress, giving speeches, and working with think-tanks. We basically saw the petition as energy to reinforce our message and channel our support, not the entire ballgame. Some petition campaigns fail because they assume that the petition is it: you get it to 100,000 signatures and you win or lose. Some fail because they don’t have a ground presence in Washington, DC, trying to influence the actual channels that Members of Congress and their staff follow.”
The hardest part, according to Khanna, was keeping the momentum going after the e-petition succeeded and the White House responded, agreeing with the petitioners.
“We had no list-serve of our signatories, no organization, and no money,” he said. “It was extremely difficult. In fact, some of us were pushing for a more unified organization at the time. Others were more reluctant to go in that direction. A unified organization will be critical to future battles. Special interests were actively working against us and even derailed the original House bill after it passed Committee; having a unified organization would have helped move this process more quickly.”
That organization and DC ground game doesn’t mean that this e-petition didn’t matter: its success was a strong signal for policy makers that people cared about this issue. That’s also important: in the years since the launch of White House e-petitions in September 2011, the digital manifestation of the right of the people to “to petition the Government for a redress of grievances” guaranteed by the First Amendment of the Bill of Rights of the Constitution of the United States has come in for a lot of grief.
While White House e-petitions do sometimes work, 10% of successful e-petitions remain unanswered months or even years after they passed the threshold for a response, with activity in 2014 leading some critics to call “We the People” a “virtual ghost town.” Many of these criticisms remain founded in fact: popular epetitions do remain open. The longer these e-petitions remain open, the higher the chance that the platform will drive public disillusionment in “We the People,” not confidence that public participation of the people matters.
For instance, an e-petition on ECPA reform still sits unaddressed. For those unfamiliar with the acronym, it refers long-overdue legislative effort to make due process digital by updating the Electronic Communications Privacy Act to require law enforcement to get a warrant before accessing cloud-based email or data of American citizens online. A majority of the U.S. House of Representatives supports ECPA reform. The White House has voiced support for “robust privacy and civil liberties protections.” The Supreme Court has made it clear that law enforcement needs a warrant to search the contents of cellphones.
In a statement published by Politico, President Obama indicated that he would make unlocking cellphones legal: “The bill Congress passed today is another step toward giving ordinary Americans more flexibility and choice so that they can find a cellphone carrier that meets their needs and their budget,” he said.
Perhaps it’s now, finally, time for the President of the United States to personally respond to a second e-petition, making it clear whether or not a constitutional law professor believes that the federal government should have to get a warrant before reading the email or personal papers of citizens stored online.
— The White House (@WhiteHouse) August 1, 2014
— Kori Schulman (@ks44) August 1, 2014
This is an example of the federal government “answering the public’s call,” wrote Jeffrey Zients, Director of the National Economic Council and Assistant to the President for Economic Policy, Senator Patrick Leahy, Chairman, Senate Judiciary Committee.
“Today, President Obama will sign into law the Unlocking Consumer Choice and Wireless Competition Act, and in doing so, will achieve a rare trifecta: a win for American consumers, a win for wireless competition, and an example of Democracy at its best — bipartisan Congressional action in direct response to a call to action from the American people.
The story of how we broke through Washington gridlock to restore the freedom of consumers to take their mobile phone wherever they choose is one worth telling, and a model worth repeating.”
Activist Sina Khanifar added a celebratory note via email, echoing Khanna’s points about process and highlighting what’s left to do to enable all consumers to unlock their mobile devices:
The original petition did a lot to kick off the process, but it took about a year and a half of negotiating with stakeholders, going back and forth with congressional staffers, and pushing back against corporate lobbies to get to an actual law. A big thanks to public advocacy groups like Public Knowledge, Consumers Union and the Electronic Frontier Foundation who helped guide that process.
The bill’s a great step forwards, but we had to make a lot of compromises along the way. For one thing, it’s not a permanent fix. In 2015, the exemption expires and the Librarian of Congress will make another rulemaking and decide the fate of unlocking. I asked repeatedly for Congress to make the exemption permanent, and Rep. Zoe Lofgren even introduced the excellent “Unlocking Technology Act of 2013” that would have done just that. Unfortunately, Congress wasn’t ready to deal with the underlying copyright issue that makes it illegal to unlock your phone. Doing so would require amending the DMCA’s controversial anti-circumvention provisions, a step that’s desparately needed.
It’s not too late for Congress to pass real reform along the lines of Zoe Lofgren’s bill. I’ll continue to push for that change as part of my campaign at FixtheDMCA.org. In the meanwhile, I’m going to be celebrating tonight. And consumers have another year and half to unlock their devices. Hopefully the Librarian of Congress will have better sense than to deny an unlocking exemption again – congress sent a very clear message that unlocking should be legal by overturning a DMCA rulemaking for the first time in the law’s history.
UPDATE: On August 15th, weeks after the bill passed, the White House published a blog post with its take on how cell phone unlocking became legal, including a note regarding explicit involvement in policy change:
The White House policy team convened more than a half-dozen agencies and offices’ senior officials to ask a simple question: How can we move this issue forward? After careful deliberation, it was clear to us: The Administration couldn’t agree more with petitioners, and we came out in strong support of again making it legal for consumers to unlock their devices.
But we didn’t just agree; we offered a template for how to make it a reality. Our response laid out steps that the Federal Communications Commission (FCC), wireless carriers, and Congress could take to make sure copyright law didn’t stand in the way of consumer choice. And over the following weeks and months, we worked with the FCC and wireless carriers to reach voluntary agreements to provide consumers with additional flexibility. That captured national attention, including support from national editorial pages.
All that helped motivate Congress to take action, and heed the call in a bipartisan way.
This post has been updated with a statement from the White House, comments from Derek Khanna, Sina Khanifar, a post by Senator Leahy and Jeffrey Zients, director of the National Economic Council and Assistant to the President for Economic Policy, and a WhiteHouse.gov blog post.
I generally agree with the assessment of Washington Post, with respect to how well Maryland Governor Martin O’Malley’s “Ask Me Anything” on Reddit went for him, though I give him far more credit for venturing onto the unruly social news platform than the reporter did. The Post’s report that he only answered 5 questions was just plain incorrect.
O’Malley answered 19 questions this morning, not 5, a fact that could be easily and quickly ascertained by clicking on GovMartinOMalley, the username he used for the AMA, including a (short) answer to a question on mental health that the Post said went unanswered. (An editor made multiple corrections and updates to the Post’s story after I pointed that out.)
He subsequently logged back on in the afternoon to answer more questions, rebutting the Post’s assessment and that of a user: “I don’t know, I’m having fun! This is my first AMA. I had to step away to sign a bunch of bills, and I’m glad to be back,” he commented.
He answered at least one tough question (from a questioner who appears to have joined Reddit today) after doing so, although the answer hasn’t been highly rated:
@bmoreprogressive91: Thanks for doing an AMA. Just one question: How does the Maryland healthcare exchange, which cost taxpayers $90 million to implement before your administration found that it would be cheaper (at an additional $40-50 million) to just replace it than to fix it, show that your Administration has been effectively using taxpayer dollars to better the lives of individual citizens?
O’Malley: No one was more frustrated than I was about the fact that our health exchange website didn’t work properly when we launched. But our health exchange is more than a web site, and we worked hard to overcome the technical problems. We have enrolled about 329,000 people thus far, exceeding the goal we set of 260,000. I often say that we haven’t always succeeded at first, but we have never given up. We learn from both success and failure.
By the end of the day, Maryland’s governor answered 36 questions in total. (You can read a cleanly formatted version of O’Malley’s AMA at Interview.ly). Reddit users rated the quality of some answers much higher than others, with the most popular answer, “Yes,” coming in response to whether he would support a constitutional amendment to reverse the Citizens United decision by the Supreme Court.
To be fair — and reasonable observers should be — Reddit’s utility for extracting answers from a politician isn’t so great, as Alexis Madrigal pointed out after President Barack Obama did an AMA, back in 2012. That said, I’m generally supportive of elected leaders engaging directly with constituents online using the tools and platforms that citizens are active upon themselves.
Popular questions that go unanswered can be instructive and offer some insight into what issues a given politician would rather not talk about in public. As such, they’re fine fodder for media to report upon. The record online, however, also means that when a reporter botches the job or misrepresents an interaction, question or answer, we can all see that, too.
Postscript: Andrew MacRae was critical of the governor and his team’s approach to Reddit and offered a tip for other politicians that venture onto the social news platform for an AMA. More on that in the embedded tweets, below:
— Andrew MacRae (@IAmAMacRae) May 5, 2014
— Andrew MacRae (@IAmAMacRae) May 5, 2014
This post was further updated after the Governor went back online in the afternoon.
[Image Credit: Governor O’Malley]
Designing digital democracy is hard. The structures and conventions that have evolved for deliberative democracy, as messy as it can be offline, don’t transfer perfectly into machine code. Many different companies, civic entrepreneurs, nonprofits and public servants are working to create better online forums for discussion that make better use of technology. This morning, New York City’s new chief digital officer, Rachel Sterne, asked how NYC could use technology to serve citizens. In 2011, the White House is using an unprecedented mix of Web 2.0 platforms at its new State of the Union page for tonight’s speech, integrating graphs and other elements to the WhiteHouse.gov livestream.
Tonight, a new alpha feature in Google Moderator is adding some social signals to help identify the questions that citizens want President Obama to answer in his YouTube interview on Thursday night. Every tweet with an #askObama hashtag will be added to the Google Moderator instance at YouTube.com/AskObama. And every retweet of an #AskObama tweet will count as vote in the Moderator instance. (For the uninitiated, a retweet on Twitter is when a user reshares another user’s tweet. To count as a vote on Moderator, the retweet has to be a “native RT,” not the older manual version where text is copied.)
It’s a simple tweak but it’s one that could make the tool more useful for people who wish to crowdsource questions. “There’s a lot of experimentation going on with Gov 2.0,” said Ginny Hunt, product manager for Google Moderator. “There’s a lot of people on all sides trying to figure out how to involve people in a more useful, participatory, exciting way.”
Hunt looks at Moderator as a way to aggregate and rank answers from many different places across the Web. “We don’t see Moderator as a Q&A platform in quite the same way that you might look at Yahoo Answers or Quora,” she said. “We see it as a way to have an ongoing conversation with constituents in a way that’s efficiently organized. That’s why it fits so naturally with YouTube, because there’s a very clear connection with engaging content.”
Hunt emphasized that what people will see on Moderator tonight “is really alpha” and isn’t available on the standard module on YouTube. “It’s a small step in the evolution of social engagement,” she said. “The more we can simplify the process for government and partners, the better. What you’ll see with Twitter tonight is just the first step. Tweets will get integrated into Moderator with your Twitter identity. It’s just a tiptoe into how we can aggregate ideas in a smarter way and is highly experimental, which is why it’s in Google Labs.”
Part of that process is in making the Google Moderator API available to developers. For instance, Google Moderator powers 10 Questions, which the Personal Democracy Forum relaunched in an effort to reboot citizen to candidate engagement.
“We’ve now used the API to kick of something called YouTube World View, which will be a monthly interview with a world leader,” said Hunt. “You can use the API to plug into anything you want to socialize to allow ranking. We made it open because we expect people to be more innovative than we can anticipate in terms of easily crowdsourcing within a community.”
The content from a Moderator series can also be exported as comma-separated values (CSV) files, which allows developers and designers to take the information and do analysis with the raw data.
There are many challenges in creating platforms for civic discourse, including building in incentives for participation, mitigating identity or privacy issues, addressing vocal minorities overwhelming the system, or ensuring systems scale under heavy traffic. (On that last count, Google’s servers have had little trouble keeping up the load: the Google Moderator instance for last year’s YouTube interview on the CitizenTube channel received over 11,600 questions and over 660,000 votes.)
Even as the role of the Internet as a platform for collective action is growing, however, the technical challenges of getting this right include numerous design, community and cultural challenges. The ways that connection technologies can be turned to governance, versus campaigning, will become increasingly critical as more people go online. Many of the social platforms that are in current use give their users substantial ability to personalize what information or conversations they receive.
Clay Shirky, speaking at this year’s State of the Internet Conference, said that government and technologists have systematically undersigned social spaces where hard choices are addressed. “We have, thanks to James Madison, lots of well designed systems to do that [offline]” he said. “We don’t have as many online. The tendency to rant or opt out prevents the kind of bargaining or horsetrading that’s important.”
The Google Moderator team has made an effort to address some of those issues. “We’ve tried to address that by giving everyone a way to let their voices be heard and to weigh in on the process. Ideally, a small, loud, organized group wouldn’t block the virtual room for others,” said Hunt. “The online systems haven’t caught up to the checks and balances that exist in an in-person town hall. Sometimes, they can be more disruptive. We’re still figuring that out. We do care that people have fair space to have their voice heard.”
Hunt posits that when you ask community about not just what they want to say but what they care about, you’ll get more useful results. “We’re not just inviting people here to post something. We’re asking them to contribute and then vote on something they care about. Freedom of speech in a representative democracy can be messy but that’s part of the process that makes it what it is. The challenge is getting closer to giving people who are busy, with a lot on their minds, a way to get involved.”
The real time Web needs to become the right time Web for most of those citizens to find it relevant in their everyday lives, as it did today when a new geolocation app launched that connected trained citizens with heart attack victims. People need actionable intelligence. Geeks hacking smarter government to make asking questions and gathering feedback simpler can and will make a difference. “If we can make it simpler for folks to plug in, that’s a good thing for everyone,” said Hunt. For those that want to #askObama a question about his plans for 2011, that Moderator instance closes at midnight on Wednesday.