UNIVERSITY OF ILLINOIS
..RAOMtai;J£i.... 19—69...
THIS IS TO CERTIFY THAT THE THESIS PREPARED UNDER MY SUPERVISION BY
... TERESA DEANN BROWN
ENTITLED...BIP.IU.Q..IN...THJ6..PABK...
A CASE STUDY ON ILLINOIS POWER
IS APPROVED BY ME AS FULFILLING THIS PART OF THE REQUIREMENTS FOR THE
D E G R E E O F B A C HE LOR OF ARTS...
Instructor in Charge
Approved : J <£>
HEAD OF DEPARTMENT OF....SPM ?.L.S9M *!.^n9H
A Case S t u d y on Ill in o is P ower by T e r e s a D ea n n D r own Thes 1 s for the D e g r e e of B a c h e l o r of Arts i n S p e e c h C o R R u n i c a t i o n
C o l l eg e of L i b eral Arts and S c i e n c e U n i v e r s i t y of Illi n oi s
U r b a n a , I ll i n o i s 1989
T a b l e of C o n t e n t s
I n t r o d u c t i o n p .l
C r a b l e and V i b b e r t p.l
Illinois P o w e r and It's O p p o s i n g A c t i v i s t s G r o u p s p.7 I l l i n ois P o w e r ' s R e s p o n s e to '*60 M i n u t e s " p.12
The f o l l o w i n g e s s a y a r g u e s that issue a a n a g e a e n t w h e n u t i l i s e d froa a c o r p o r a t e p e r s p e c t i v e can a l l o w o r g a n i z a t i o n s to a d j u s t the p u b l i c ag e nda. In the b e g i n n i n g , I will o u t l i n e C r a b l e and V l b b e r t ' s a p p r o a c h to i s sue w a n a g e w e n t . T h r o u g h ay e x p l a n a t i o n of the c a t a l y t i c wodel, I w i l l o f fe r ite s t r e n g t h s and l i a l t a t i o n s . Of p a r t i c u l a r l a p o r t a n c e , I will go one step f u r t h e r by e x p a n d i n g the aodel to i n c l u d e a b i l a t e r a l a p p r o a c h to issue a a n a g e a e n t . As a c a s e study, I aa a n a l y z i n g the issue a a n a g e a e n t of I l l i n o i s Power. I wil l e x p l a i n w h e r e I l l l o n i s P o w e r c u r r e n t l y lies in r e g a r d s to iss u e a a n a g e a e n t , and 1 will d e a o n s t r a t e h o w the a c t i v i s t s g r o u p s o p p o s i n g I l l i n o i s P o w e r have s u c c e e d e d in t h e i r issue a a n a g e a e n t . As a s p e c i f i c e x a a p l e of I l l i n o i s P o w e r s ' s a t t e a p t at issue a a n a g e a e n t , I wi l l a n a l y z e a r e s p o n s e aa d e by I l l i n o i s P o w e r to a r e p o r t do n e by "60 M i n u t e s " on I l l i n o i s P o w e r s ' s C l i n t o n N u c l e a r P o w e r P l a n t ' s c o n s t r u c t i o n c o s 1 8. Lastly, 1 will o f f e r ay own c o n c l u s i o n s as to why I l l i n o i s P o w e r is u n s u c c e s s f u l w i t h its c u r r e n t a p p r o a c h to issue a a n a g e a e n t .
C R A B L E A N D V I B B E R T
A c c o r d i n g to R i c h a r d C r a b l e and S t e p h e n V l b b e r t , "the p r o p e r use of issue a a n a g e a e n t can p e r a i t an o r g a n i s a t i o n w i t h no actual a u t h o r i t y to i n f l u e n c e p u b l i c p o l i c y . " P u b l i c p o l i c y is s h a p e d by a c o a p l e x I n t e r p l a y of s o c i a l f o r c e s i n c l u d i n g c i t i z e n s and b u s i n e s s . C i t i z e n s a n d b u s i n e s s do not h a v e e q u a l c o - a u t h o r i t y
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-but do have the power of Influence. C i t i z e n s and b u s i n e s s aust I n f l u e n c e t h r o u g h issue a a n a g e a e n t those w i t h the actual au t h o r i t y , the ha lls of g o v e r n a e n t , to d e t e r a i n e p u b l i c policy. An issue is c r e a t e d w h e n one or aore h u a a n a g e n t s a t t a c h s i g n i f i c a n c e to a s i t u a t i o n or p e r c e i v e d p r oblea. T h r o u g h e f f e c t i v e issue a a n a g e a e n t , Issues aay be t e a p o r a r i l y r e s o l v e d but are n e v e r solved. A t e a p o r a r y a n s w e r aay be found for an issue, but a final a n s w e r is not. It is i m p o r t a n t to r e a l i z e that not all issues are p e r c e i v e d as e q u a l l y iaportant. The i m p o r t a n c e that an issue hol d s for the J u d g i n g p u b l i c r e f l e c t s the '‘status" of the issue. C o r p o r a t i o n s s h o u l d not seek to re s o l v e an issue. T h e y s h o u l d seek to a a n a g e the p a r t i c u l a r st a t u s of the issue. "To d e t e r a i n e the stat us of s o m e t h i n g is to r e s o l ve its s t a n d i n g r e l a t i v e to o t h e r c h o i c e s " (p.5). T h e s e v a r y i n g levels of s t a t u s or l a p o r t a n c e aake it the task of the issue a a n a g e r to u n d e r s t a n d the p e r c e i v e d level of status that an issue holds for i a p o r t a n t p u b l i c s and to aove j u d g e s t o w a r d the d e s i r e d level of s t a t u s t h r o u g h c o a a u n i c a t l v e I n t e r v e n t i o n .
The d i f f e r e n t l e v e l s of p e r c e i v e d issue status can be e x a a i n e d t h r o u g h an issues lifecycle. The issue a p p e a r s to have a l i f e c y c l e as it is e x a a i n e d and r e a c t e d to by v a r y i n g a g e n t s who have p u b l i c p ol i c y Influence, A stage in the l i f e c y c l e is p e r c e i v e d as a s t atus of that Issue. The r e are five bas i c levels of issue st at u s. The fir s t level of l a p o r t a n c e is p o t e n t i a l
issue and f o r m u l a t e s a r g u m e n t s w h i c h s u p p o r t t he i r I n t e r p r e t a t i o n of the prob l o a . A f t e r p o t e n t i a l s t a t u s , c o s e s l a a i n e n t status. This i n v o l v e s the e n d o r s e m e n t by s o a e p e r s o n or g r o u p of the
i 8 8 a e a s - p r e s e n t e d . S i g n i f i c a n t p e o p l e or p u b l i c s a u s t i d e n t i f y l i n k a g e s b e t w e e n t h e m s e l v e s and o t h e r s I n t e r e s t e d in the issue. D u r i n g this stage the Jssue is g r o w i n g in p o w er but a a y not be p e r c e i v e d as i a p o r t a n t by p o l i c y a a k e r s . The t h i r d s t a t u s e v o l v e s whe n s o u r c e s w i t h w i d e s p r e a d c o m m u n i c a t i v e c o n t a c t s d i s s e a i n a t e i n f o r m a t i o n . The c o v e r a g e of the issue has t e n d e d to d i c h o t o m i z e the s i d e s or c h o i c e s in the i s s u e and v a r i o u s p u b l i c p a r t i c i p a n t s have c h o s e n to p l a y r o l e s in the " c i r c u l a t e d d r a m a . " The f o u r t h stage, c r i t i c a l s t atus, o c c u r s w h e n p e o p l e i d e n t i f y wi t h one p e r s p e c t i v e of the issue. C r i t i c a l issues are at some m o m e n t of d e c i s i o n , a c r i s i s w h e r e s om e p o l i c y d e c i s i o n is d e m a n d e d . The final s t atus is d o r m a n t w h e r e i s s u e s h a v e been d e a l t w i t h in so m e w a y and are c o n s i d e r e d r e s o l v e d u n t i l s o m e o n e sees the p o t e n t i a l of the issue again. O n c e an o r g a n i z a t i o n u n d e r s t a n d s the s t a t u s of an issue, it must u t i l i z e issue m a n a g e m e n t w h i c h i n v o l v e s a t t e n t i o n to is s u e s at "any level of i m p o r t a n c e or s t a t us . "Issue m a n a g e m e n t is a f u n d a m e n t a l way jf
I n f l u e n c i n g p o l i c i e s b e f o r e they b e c o m e p o l i c i e s " (p.9). This can be e v i d e n c e d t h r o u g h the four b a s i c s t r a t e g i e s far d e a l i n g w i t h i ssue m a n a g e m e n t . The first, the r e a c t i v e s t r a t e g y , o c c u r s when, " o r g a n i z a t i o n s y e a r n for the b e t t e r days of the past and a t t e m p t to ride out the d e v e l o p m e n t s o c c u r i n g a r o u n d t h e m " (p.9). The second, the a d a p t i v e s t r a t e g y o c c u r s when, " o r g a n i z a t i o n s
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-a t t e m p t to be o p e n to and a d j u st to c h an g es , o r g a n i z a t i o n s may c o m p r o m i s e w h e n faced w i t h u n d e s i r a b l e a c t i o n s " (p.10), C o n s i d e r e d the most e f f e c t i v e by J o n e s and Chase, is the d y n a m i c st r a t e g y , in w h i c h o r g a n i z a t i o n s a t t e m p t to a n t i c i p a t e c h a n g e s and even i n i t i a t e p r o j e c t s w h i c h are d e s i r a b l e . An e x a m p l e of the use of d y n a m i c s t r a t e g y can be seen w h e n C h r y s l e r and l a c o c c a a n t i c i p a t e d the n e g a t i v e r e a c t i o n s of the g o v e r n m e n t to their loan re q u e s t a n d i n i t i a t e d a d v o c a c y c e n t e r e d on free e n t e r p r i s e and the c o m m o n man.
The a b o v e three are all r e s p o n s e s to a g e n d a - s e t t i n g by ot hers. O r g a n i z a t i o n s u t i l i z i n g the r e a c t i v e a p p r o a c h wa i t until a d e c i s i o n is d e m a n d e d at w h i c h point the issue r e a c h e s c r i t i c a l status. This c a us e s them to have to a w a it w h a t e v e r will he the e f f e c t s of the n e w l y c h o s e n p o l i c ie s . O r g a n i z a t i o n s u s i n g the a d a p t i v e s t r a t e g y still wait until an issue has at least r e a c h e d c u r r e n t status, p o s s i b l y e v e n c r i t i c a l , and then they may s u p p o r t a l t e r n a t i v e s . Even the d y n a m i c a p p r o a c h w a i t s until an issue has r e a c h e d at least imm i n e n t status or even c u r r e n t status. The
l i m i t a t i o n of e a c h of these s t r a t e g i e s is that it is d e f e n s i v e In
nature. P r o p o s e d s o l u t i o n s and p o l i c y s u g g e s t i o n s may be o f f e r e d , but t h e s e are a s s u m e d to be m a d e s i m p l y to a v o i d the p r e d i c t e d p o l i c y i m p l i c a t i o n s of o t h e r forces. C r a b l e and V i b b e r t take t h e s e s t r a t e g i e s one s t e p f u r t h e r by o f f e r i n g a f o u r t h s t r a t e g y , the c a t a l y t i c s t r a t e g y . Th e y a r g u e that even the d y n a m i c s t r a t e g y doe s not b e g i n soon e n o u g h in the issue m a n a g e m e n t p r o c e s s . O r g a n i z a t i o n a l p l a n n e r s and e x e c u t i v e s
s e e k i n g to s u c c e e d in the p o li c y forun c a n n ot a f f o r d to wait until others have d e f i n e d and l e g i t i m i z e d issues b e f o r e e n t e r i n g the issue arena. The c a t a l y t i c a p p r o a c h urges o r g a n i z a t i o n s to take the o f f e n s i v e and to e n g a g e in a s s e r t i v e ac tion. The goai of the c a t a l y t i c a p p r o a c h is to take an issue t h r o u g h its li f e c ycle so that it is r e s o l v e d in d i r e c t i o n s f a v o r a b l e to the o r g a n i z a t i o n . This s t r a t e g y be gins wit h o r g a n i z a t i o n a l des i r e s , not r e a c t i o n s , and m o v e s t o w a r d e v e n t u a l a g e n d a set. ting by the mass media. The loan g i v e n to C h r y s l e r by the U.S. g o v e r n m e n t is an e x a m p l e of an issue taken t h r o u g h its l i f e c y c l e and r e s o l v e d in d i r e c t i o n s f a v o r a b l e to the o r g a n i z a t i o n by u t i l i z i n g the c a t a l y t i c a pp r o a ch .
The C r a b i e and V J bbe rt model has many s t r e n g t h s . The model e n f o r c e s the idea of c o r p o r a t i o n s ta k i n g c h a r g e of their own m e d i a future. It e n c o u r a g e s c o r p o r a t i o n s to a n a l y z e their goals t h r o u g h each o r g a n i z a t i o n d e t e r m i n i n g how they want to i n f l u e n c e pu b l i c policy. This helps c o m p a n i e s to s t r u c t u r e their e n v i r o n m e n t inorder to meet these goals. It p r o v i d e s a plan for t h o u g h t f u l , in depth a n s w e r s to p o l i c y q u e s t i o n s . An o r g a n i z a t i o n needs to use a p r o a c t i v e s t r a t e g y and r e a c h an issue befo r e it is an actual issue. The model p r o v i d e s a s t r a t e g y for c o r p o r a t i o n s to u t i l i z e s y m b o l i c c o n s t r u c t i o n i n o r d e r to a c h i e v e c o r p o r a t e goals. C o r p o r a t i o n s can d e f i n e the p a r a m e t e r of the issue and focus on the larger issue or big pic t u re. It e n c o u r a g e s them to see t h e m s e l v e s as e q u a l s with o p p o s i n g s i de s and the press. Most i m po r t a n t l y, o r g a n i z a t i o n s
H
can i n f l u e n c e p o l i c i e s long befo r e o p t i o n s are ( , eat e d by others. For an o r g a n i s a t i o n , the key s t r e n g t h s of the C r a b l e and V i b b e r t Model ire the a b i l i t y to a n a l y z e goals, f o r m u l a t e issues, seek l e g i t i m i z a t i o n of issues, and c a p t u r e the a t t e n t i o n of m e d i a and key p u b l i c judges.
A l t h o u g h the C r a b l e and V i b b e r t model has p r o v e n to work u n i l a t e r a l l y , It has not been a p p l i e d b i l a t e r a l l y . The model falls to d 1s c u 8 s the r e p e r c u s s i o n s of c o m p e t i n g a c t o r s d e f i n i n g the same issue. The model needs to be e x p a n d e d to i n c l u d e an o p p o s i t i o n a l p e r s p e c t i v e . C r a b l e and V i b b e r t s a n c t i o n a u n i l a t e r a l c o n s t r u c t i o n of s y m b o l i c r e a l i t i e s . Karely, however, is 'he b u s i n e s s e n v i r o n m e n t s y m b o l i c or o t h e r w i s e , that simple. C o m p l e x i n t e r a c t i o n s of social a c t o r s and s y m b o l i c s t r a t e g i e s must be t ake n into a c c o u n t . This m a ke s it i m p o r t a n t to a n a l y z e the g o als of the o p p o s i n g side a l o n g with t h eir own. K n o w i n g the o p p o n e n t ’s goals can hel p in d e a l i n g with c o m p e t i n g views of the agenda. it is e x t r e m e l y i m p o r t a n t to be p r o a c t i v e to the other side. A c o r p o r a t i o n w a n t s the o p p o s i n g side to have to rea c t to their a g e n d a rathe r than the o p p o s i t e . This will make it e a s i e r for the c o r p o r a t i o n to set and i d e n t i f y the p a r a m e t e r of the issue. O r g a n i z a t i o n s must appeal to the key judges of p u blic p o l i c y and c o n v i n c e them that t h eir c o n s t r u c t i o n of the iss u e not the o p p o n e n t s is the c o r r e c t one. It Is important, to a d j u s t to p o s s i b l e i n f l u e n c i n g t a c t i c s used by ot he r s . An o r g a n i z a t i o n mu s t e n f o r c e the c r e d i b i l i t y of their r e p u t a t i o n t h r o u g h fair issue m a n a g e m e n t . Th e c o m p e t i n g focus o f f e r e d by the c o r p o r a t i o n
ought to be as c o m p l e x as the e n v i r o n m e n t in w h i c h It is f o r m u l a t e d . I will use a b i l a t e r a l a p p l i c a t i o n of C r a b 1 e and V i b b e r t ’s model t h r o u g h the case study of I l l i n o i s Power. The two c o m p e t i n g a ctors are I l l i n o i s Power and the a c t i v i s t g r o u p s o p p o s i n g Ill i n o i s Power.
I L L I N O I S P O W E R and ITS O P P O S I N G A C T I V I S T S G R O U P S
The focus of my case study is on a p u b l i c utility, Illinois Power. Ill i no i s P ower is, "a p u b l i c u t i l i t y e n g a g e d p r i c i p a l l y in the ge n e r a t i o n , t r a n s m i s s i o n , d i s t r i b u t i o n , and sale of e l e c t r i c e n e r g y in the state of Illinois" ( I l l in o i s P o w e r ' s Annual Report, 1989). O n e - q u a r t e r of the state r e l i e s on I l l i n o i s Power as its p u b l i c utility. The c o m p a n y s e rves a p p r o x i m a t e l y 5 4 8 . 0 0 0 c u s t o m e r s and is r e g u l a t e d by the state g o v e r n m e n t t h r ou g h the I l linois C o m m e r c e C o m m i s s i o n . I n order for a rate increase, I l l i n o i s Pow e r must s e e k a p pr o v a l from the state. The g o v e r n i n g b o a r d ov e r Il linois P o w e r is the Ill i n o i s C o m m e r c e C o m m i s s i o n . I l linois P o w e r also owns and o p e r a t e s the C l i n t o n N u c l e a r Powe r Plant. The e x p e n s e s of this n u c l e a r power plant have ca u s e d I l li n o i s Pow e r to submit rate i n c r e a s e r e q u e s t s to the ICC.
I l l i n o i s Power both in the past and c u r r en t l y , faces a h o s t i l e public. Due to rate I n c r e a s e r e q u e s t s and their c o n t r o v e r s i a l o p e r a t i o n of the Clinton, Illin o i s, N u c l e a r P o w e r Plant, Illi n o i s P o wer is a c o n s t a n t target of n e g a t i v e c r i t i c i s m . The f o l l o w i n g e d i t o r i a l s , from n e w s p a p e r s w h o ' s c i r c u l a t i o n
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-n o g a t i v e cri c l s a . T h e J a c k s o n v i l l e Jo u r n a l C o u r i e r 's e d i t o r i a l states, "Are we i n d e e d a b o u t to be d e l i v e r e d froa the d e p r e d a t i o n s of an I l l i n o i s P o w e r C o a p a n y so a r r o g a n t that its o f f i c i a l s a c t u a l l y th o u g h t t h e y could a a k e the i r c u s t o a e r s s w a l l o w the w h o l e cost of one of the g r e a t e s t f i n a n c i a l f i a s c o s of this r e g i o n ' s h i s t o r y ? ( r e f e r i n g to the C l i n t o n N u c l e a r Power Plant). It loo ks as if the h e y d a y of the I r r e s p o n s i b l e I l l i n o i s Power j u g g e r n a u t aay f i n a l l y be over. The i n n o c e n t and long s u f f e r i n g r a t e p a y e r s have been h a d by I l l i n o i s Po w er " (April 20, 1988). A n o t h e r e d i t o r i a l froa The A l t o n T e l e g r a p h s t a t e s , "It w o u l d he d e r e l i c t i o n of duty if I llinois P o w e r w e r e a l l o w e d to pass the e x p e n s e (456 a i l i i o n d o l l a r C l i n t o n N u c l e a r P o w e r Plant o v e r r un) a l o n g to its c u s t o a e r s a f te r an I C C - o r d e r e d a u d i t by To u c h e Ross and C o a p a n y , c o n c l u d e d the cost s c o u l d h a v e been a v o i d e d if I ll i n o i s P o w e r had a a i n t a i n e d t i g h t e r c o n t r o l d u r i n g c o n s t r u c t i o n " (April 13, 1988). The n e g a t i v e c r i t i c i s e c o n t i n u e s with an e d i t o r i a l froa The B e l l e v i l l e N e w s - P e a o c r a t . " I l l i n o i s P o w e r ’8 d e c i s i o n not to r e f u n d 22 a i l i i o n d o l l a r s in o v e r c o l l e c t i o n s to its c u s t o a e r s has f u r t h e r d a a a g e d the c o a p a n y ' s f r a g i l e c r e d i b i l i t y . It will take d r a s t i c a c t i o n by I l l i n ois P o w e r to c o n v i n c e us and the g e n e r a l p u b l i c that the c o a p a n y is s e r i o u s about a d d r e s s i n g its r at e s in g o o d faith. Right now it a p p e a r s to us that I l l i n o i s P o w e r is o n l y b u y i n g tiae w h i l e it p l a n s its next a o v e " ( S e p t e a b e r 29, 1987), As the e d i t o r i a l s d e a o n s t r a t e , I l l i n o i s P o w e r is f o r c e d to c o n d u c t its b u s i n e s s in a h o s t i l e s y a b o l l c e n v i r o n a e n t .
O r g a n i z a t i o n s such as the C o n s u m e r U t i l i t i e s B o a r d and I l l i n ois Public A c t i o n Council, have be e n formed to p r o t e c t I l l i n o i s P o w e r ’s c o n s u m e r s from high rates and p r o p o s e d increases. The tool used by these o r g a n i z a t i o n s is the print media: e s p e c i a l l y the local town n e w s p a p e r s . B e c a u s e Illinois Power is r e g u l a t e d by the state, o p i n i o n s of state o f f i c i a l s are p a r t i c u l a r l y i m p o r t a n t to Illinois Power. It is r e p r e s e n t a t i v e of I l l i n o i s P ower to r e c e i v e n e g a t i v e c r i t i c i s m at the Capitol. " I l l i n o i s P o w e r ’s 1 0 - y e a r rate hike r e q u e s t is o u t r a g e o u s and is an e f f o r t to bail the c o m p a n y out of the f i n a n c i a l l y m i s m a n a g e d C l i n t o n N u c l e a r P o w e r Plant, a c c o r d i n g to State r e p r e s e n t a t i v e Kurt G r a n be r g , l) C a r y l e " (C c n t r a l l a S e n t i n e l , Nov. 22, 1987). I l l i n o i s Power has found that st ate o f f i c i a l s can use their p o s i t i o n s to o r g a n i z e p r o t e s t s of I ll i n o i s P o w e r ' s rates. " R e p r e s e n t a t i v e G r a n b e r g d e l i v e r e d more than 14,200 p e t i t i o n s p r o t e s t i n g Ill i n oi s P o w e r ' s high rates to Il linois C o m m e r c e C o m m i s s i o n C h a i r m a n M a r y B u s h n e l l " (The T r e n t o n S u n , Nov. 4,
1987). R e p r e s e n t a t i v e G r a n b e r g p r o v i d e d the n e c e s s a r y force for area r e s i d e n t s to p r o t e s t their high s u m m e r rates, and the local m e d i a p r o v i d e d the tool for him to use. " W i l l i a m Maine, M a d i s o n C o u n t y Bo a r d m e m b e r , Alton, i n t r o d u c e d a r e s o l u t i o n r e q u e s t i n g the C o u n t y B o a r d to i n v e s t i g a t e the e f f e c t of r e c e n t l y p r o p o s e d I l l i n o i s Po wer rate I n c r e a s e s on the c o u n t y budget" (G r a n i t e City P r e s s - R e c o r d , Dec. 3, 1987). " C o un t y g o v e r n m e n t o f f i c i a l s s h o u l d he e d the w i d e s p r e a d , g r a s s - r o o t s r e s i s t a n c e to I l l i n o i s Power rate i n c r e a s e s , " M a i n e said. The a c t u a l a u t h o r i t y ov e r
public p o l i c y rests w h e r e it has for over two h u n d r e d years; in the h a l l s of g o v e r n m e n t . Prom the e x a m p l e s above, it is e v i d e n c e d that I l li n o i s P o w e r s h o u l d not c o n t i n u e to ignore g o v e r n m e n t o f f i c i a l s and the i r use of the m e d i a as a p o wer tool for d i s s e m i n a t i n g their o p i n i o n s .
A l s o us i ng the m e d i a as a powe r f u l tool are the a c t i v i s t s grou p s who have o r g a n i z e d a g a i n s t I l l i n o i s Power. T h e i r m a i n focus is that of o p p o s i n g I l l i n o i s P o w e r ' s high rates and C l i n t o n N u c l e a r P ow e r Plant. U s i n g the C r a b l e and V i b b e r t model as a guide to issue m a n a g e m e n t , the act i vi s t g r o u p s have c o n s t r u c t e d their issues e f f e c t i v e l y l e a v i n g Il l i n o i s P o w e r little room for re sponse. U s i n g a c a t a l y t i c strat e gy , has a l l o w e d them to i n f l u e n c e issues in terms of the pu b l i c de ba t e . T h e y have set their g oal s and d e f i n e d the issues w h i c h leaves I l l i n o i s Power with a r e a c t i o n a r y stance. A g r o u p c a l l e d C i t i z e n s A g a i n s t I l l i n o i s Power, have g a t h e r e d e x t e n s i v e c o m m u n i t y s u pport. HThe main goal of C A I P is to file suit a g a i n s t Il l i n o i s Pow e r for m i s m a n a g e m e n t . Ove r 300 p e o p l e a t t e n d e d the C h a m p a i g n meet i n g , w h i c h p r o m p t e d the ci t y c o u n c i l and Ma y o r to u n a n i m o u s l y vote to check into a l t e r n a t i v e pow e r s o u r c e s " (M a h o m e t C i t i z e n , Aug. 13, 1987). This g r o u p b o o s t e d the issue to c r i t i c a l status. " L i t e r a l l y , p e o p l e and g r o u p s of p e o p l e mak e issues out of m a t t e r s in w h i c h they have an i nt e r e s t " (p.4). "A g r o u p of G r a n i t e Ci t y and N a m e o k l T o w n s h i p r e s i d e n t s have f o r m e d a c o m m i t t e e to o p p o s e r e c e n t e l e c t r i c r a te s i n c r e a s e s g r a n t e d to
I l l i n o i s Power. The g r o u p has r e c e i v e d a lot of p u b l i c i t y and
c a l l s Itse'f P O W E R c o m m i t t e e , s h o r t for P e o p l e O p p o s i n g Wi l d E l e c t r i c i t y R a t e s " (St^___ Lou i s__ Po s t D i s p a t c h , Oct. 1. 1987 ). A n o t h e r group, " C i t i z e n s F i g h t Back A g a i n s t U t i l i t i e s are u r g i n g the d i s p l a y of red r i b b o n s to s i g n a l they have had e n o u g h of r o c k e t i n g p o w e r bills" (D e c atur___H e r a l d and R e v i e w, Aug. 21. 1987 ) .
What do all these g r o u p s h a v e in c o m m o n ? They are all a c t i v i s t g r o u p s, "who have s t i m u l a t e d the a g o n d a s e t t i n g p r o c e s s s i m p l y b e c a u s e these g r o u p s have d e t e r m i n e d w h a t c h a n g e s they w o u l d like to see in the r e a l m of p u b l i c p o l i c y " (p.14). T h e s e g r o u p s have no more l e g i t i m a t e p o w e r than the large c o r p o r a t i o n ,
I l l i n ois Power. In fact, it. w o u l d s e e m that I l l i n o i s Power w o u l d have all of the a d v a n t a g e s of i n f l u e n c e i n c l u d i n g m o n e t a r y f u n d i n g and e x t e n s i v e r e s o u r c e s , but these a c t i v i s t g r o u p s have a n a l y z e d their goals, f o r m u l a t e d issues, s o u g h t l e g i t i m i z a t i o n of issues, and a t t e m p t e d to c a p t u r e the a t t e n t i o n of the m e d i a and key public judges. I l l i n o i s P o w e r has a l l o w e d this m e d i a c o v e r a g e to set its a g enda. I l l i n o i s Powe r is c u r r e n t l y u s i n g a r e a c t i v e s t r a t e g y to issue m a n a g e m e n t . I l l i n o i s P o w e r y e a r n s for the days b e f o r e the C l i n t o n N u c l e a r Power P l a n t and its cost i n e f f i c i e n c i e s . W i t h I l l i n o i s P o w e r ' s c o n t r o v e r s i a l and r e c u r r i n g d e m a n d s for rate hikes, I l l i n o i s P o w e r does not a t t e m p t to use e f f e c t i v e issue m a n a g e m e n t but "ride s out" the c o n t r o v e r y unt i l the g o v e r n m e n t m a k e s a d e c i s i o n . R e l y i n g on the r e a c t i v e a p p r o a c h , I l l i n o i s P o wer w a i t s for an issue to a c h i e v e c r i t i c a l status, m a k e s a "fast" d e c i s i o n w h e n d e m a n d e d , a n d
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awaits w h a t e v e r will be the effects. Illinois Power cannot afford to wait until others have d e f i n e d and l e g i t i m i z e d an issue before e n t e r i n g the issue arena.
I L LI NO IS POWER ' S HLSp()NSF, t o ^ 6 0 JA LNLT E
The f o l l o w i n g case s tudy will a n a l y z e the e f f o r t s of Illinois Power at issue m a n a g e m e n t . On Nov. 2 5 , 1 9 7 9 , Illinois Power and the c o n s t r u c t i o n of its C l i n t o n Nu c l e a r Power Plant was a topic of one segment of the CBS News program, "60 M i n u t e s . " The news p r o g r a m with Harry lie a a on or repor t i n g , cent, e red around the c o n s t r u c t i o n costs of the C l i n t o n N u c l e a r Power Plant. The idea for the story came at the u r g i n g of o p p o n e n t s of the nuclear power plant . These o p p o n e n t s included both a n t i - n u c l e a r groups and those o b j e c t i n g to the high cost of the plant itself.
Illinois Power a g r e e d to c o o p e r a t e on the c o n d i t i o n that they we ve as s ur e d b a l a n c e in t he r e p o r t . T o he precise, I I I in o t s Power taped e v e r y t h i n g "60 M i n u t e s " taped while on Illinois Power's p r o p e r t y The report aired on national t elevision. Nov.
2 5, 1979 and r e a c h e d over 24 m i l l i o n homes. Illinois P o w * r .
after v i e w i n g the report, felt they were t r e a t e d u n f a i r l y by "60
M i n u t e s " and d e c i d e d to film a r e s p o n s e to the "60 Minutes" report p o r t r a y i n g Illinois P o w e r ' s side of the story. Illinois Power s t a t e d that they knew they could not reach ail those they felt had been n e g a t i v e l y i n f l u e n c e d by the p r o g r a m but. had an o b l l g a M o n to c o r r e c t it. Illinois P o w e r ' s r e s p o n s e was s t r u c t u r e d such that s e g m e n t s of the "60 Minu t e s " report uere aired w i t h a r e s p o n s e by Illin o i s Power i m m e d i a t e l y following.
thoir overall reac t i v e s t r a t e g y . In this sense, it. holds t h e o r e t i c a i u t i l i t y as both an i n d i v i d u a l case s t u d y and also its cr y s t a l izat. ion of Illinois P o w e r ' s b r o a d e r s t r a t e g y . Illinois Power lacks i n n o v a t i o n in its r e s p o n s e and uses the sane s t r u c t u r a l for m a t as " 60 M i n u t e s . " An i l l u s t r a t i o n of this can be seen in the b e g i n n i n g w h e r e a st o p w a t c h ticks, s i m i l a r to the one used by "no M i n u t e s " w i t h the w o r d s "60 M i n u t e s Our R e s p o n s e . " "60 M i n u t e s " d e f i n e d and l e g i t i m i z e d the issues and Illinois Power reacts t. o this without s u b s t a n t i v e l y a I tcr i ng th e terms o I t he deba t e e s t a b l i s h e d by "60 Minu t.es . "
It must be c o n c e d e d that I l l i n o i s P o w e r ' s r e s p o n s e does raise c e r t a i n t r o u b l i n g ques t ions r egar d i ng the c r e d i b i l i t y of
"60 M i n u t e s . " Illinois Power d i s c r e d i t s "60 M i n u t e s " r e p o r t i n g in several s i t u a t i o n s . For e x a m p l e , "60 M i n u t e s " re p o r t s that t h e C | i n t o n N u c l e a r Power Pl a n t is c o s t i n g a m i I 1 i o n d o l l a r s a day or 30 m i l l i o n d o l l a r s a month. Illi n o i s Power1 o f f e r s d o c u m e n t a t i o n that the cost is "only" 22 m i l l i o n d o l l a r s a month.
"60 M i n u t e s " r e p o r t s that the I l l i n o i s Power c u s t o m e r s will be p a y i n g a l4 % rati » increase a ion! h t o c o v (* r t he const ructi on costs of C l i n t o n three years bfilere the plant even operates.
Illinois P o w e r refutes this by s t a t i n g that "only" 2 8 % of the 14% increase will be used to cover i n t e r e s t p a y m e n t s on the C l i n t o n Plant, not the c o n s t r u c t i o n costs.
W h i l e the factual v e r a c i t y of t hose claims is c o n t r o v e r i a i , Illinois p o w e r '8 r e s p o n s e still fails to cha n g e the issuer. The
a c t i v i s t s pro u p s ’ use of Issue management. have made the rate i n c r e a s e s due to the C l i n t o n P lant the main issue of the debate.
Illinois P ower c o u l d have r e d e f i n e d the issues, such as the r e l a t i v e e f f i c i e n c y of the C l i n t o n Plant as o p p o s e d to other n u c lear plants. The 2 8 % increase, r e g a r d l e s s of its b e i n g used to pay inte r e s t p a y m e n t s , is still e a r m a r k e d for the Cl i n t o n Plant. "60 M i n u t e s " offers t e s t i m o n y from a past c o n s t r u c t i o n s u p e r v i s o r for the C l i n t o n Plant. "60 M i n u t e s " d i s t o r t s the man's v o i c e and d a r k e n s his face to p r e v e n t his i d e n t i f i c a t i o n . The w o r k e r c o m p l a i n e d that he was r e p r i m a n d e d for f i n d i n g valid cost s a v i n g p r o c e d u r e s d u r i n g the plant c o n s t r u c t i o n . Illinois Power r e s p o n d s by s e v e r e l y d i s t c i t i n g their s p o k e s m a n ’s v oice and d a r k e n i n g his face. The Illinois Power s p o k e n a n s t a t e s that,
often i l l u s i o n is more c o m p e l l i n g than r e a l i t y . " Illinois Power cent tout's to state that they can i d entify the w o r k e r and that he was h i e d for not f o l l o w i n g d i r e c t i o n s A l t h o u g h Illi n o i s Power has a v a l i d point that t.h«* w o r k e r may not be a c r e d i b l e s o u r e e , ihose v i e w i n g the r e s p o n s e w o n d e r what the p u r p o s e of Illinois Power u s i n g d i s t o r t i o n and s h a d o w s serves. Again, I l l i n o i s Power c o n s t r u c t s a r e s p o n s e on the terms set by "60 M i n u t e s , " even r e s o r t i n g to t h e a t r i c a l stunts.
In an i n t e r v i e w with I l l i n o i s P o w e r ' s E x e c u t i v e Vice- P r e s i d e n t , Bill G e r s h n e r , H a r r y K e a s o n e r asks why the C l i n t o n Plant r e m a i n s b e h i n d s c h e d u l e and the c o n s t r u c t i o n cos t s c o n t i n u e to rise. He r e s p o n d s by s t a t i n g that the C l i n t o n Plant isn't any d i f f e r n t from any o t h e r c o n s t r u c t i o n p r oject. Th e y all fall
b e h i n d s c h e d u l e and cost more than estimated. Illinois Power fails to r e a l i z e that the C l i n t o n Plant is d i f f e r n t l r o m o t. h e r c o n s t r u c t i o n projects. O ther co n s t r ue t i o n p r o j e c t s do not cause h i g h e r u t ility rates for Illinois Power cu s t o m e r s . O t h e r c o ri s t r u c t i o n p r o j e c t s do not ask the c o n s u m e r s to help pay
interest, rates on b u i l d i n g loans.
"60 M i n u t e s 1' c o n t i n u e s its report with a focus on an
I llinois C o m m e r c e C o m m i s s i o n h e a r i n g at w h i c h I llinois Power is r e q u e s t i n g a rate increase to help pay C l i n t o n c o n s t r u c t i o n cost increases. At the hearing, Illinois Power is act'used of gross m i s m a ri a g e m e n t of the C l i n t o n Plant c o n s t r u c t i o n by a c t i v i s t g r o u p s against the plant's c o n s t r u c t i o n . "60 M i n u t e s " r e p o r t e d that the? m a j o r i t y of ICC m e m b e r s were a g a i n s t the rate increase.
Illi n o i s P o w e r ' s r e s p o n s e sta t e s that this is untr u e and the ICC v o t e d to r e c o m m e n d the i ncrea )e . Only two mhe r s of t he boa rd w e r c against the increase. Illinois Power c l a i m s t h a t. t li c y c a l l e d R e a s o n e r four days before the report was a i r e d and told him the outcome. "60 M i n u t e s " aired the false c laim anyway. In t h e i r response, Illinois P o w e r c o n t i n u e s to debate the; issues as d e f i n e d ‘ v "60 M i n u t e s . " A bett e r r e s p o n s e w o u l d have been to r e s p o n d to the c laim of gross m i s m a n g e m e n t of the C l i n t o n P l a n t ' s c o n s t r u c t i o n . C o n t i n u i n g the i n t e r v i e w with (iershner, R e a s o n e r asks G e r s h n e r w h y a report s u b m i t t e d by Steve Rad c l i f f , a former e n g i n e e r on the C l i n t o n project, was not analyzed. The report c o m p a r e d C l i n t o n ' s c o n s t r u c t i o n s c h e d u l e and costs with o t h e r c o n s t r u c t i o n p r o j e c t s similar' to C linton. A l t h o u g h w i t h i n
Illinois P o w e r ' s r e s p o n s e , S t e v e R a d c l i f f is p r o v e n to lack c r e d i b i l i t y as an e x p e r t w i t n e s s , G e r s h n e r r e s p o n d s to H e a s o n e r ' s q u e s t i o n by s t a t i n g that you can' t: e o m p a r e C 1 i nton to ot.her c o n s t r u c t i o n p r o j e c t s , This c o m p l e t e l y c o n t r a d i c t s G e r s h n e r * s e a r l i e r s t a t e m e n t that, " t: h e ( M i n t o n c o n s t r u c t i o n p r o j e c t is Just like any o t h e r c o n s t r u c t i o n p r o j e c t in cost o v e r r u n s and s c h e d u l i n g p r o b l e m s . ” The report c o n t i n u e s with R e a s o n e r c i r c l i n g t e s t i n g s c h e d u l e s on a m i l e s t o n e chart and c o m p a r i n g those to o t h e r n u c l e a r pow e r plant t e s t i n g s c h e d u l e s . R e a s o n e r st a t e s that I l l i n o i s P o w e r e s t i m a t e s c o m p l e t i o n of some tests in r e c o r d time. I l l i n o i s P o w e r ' s r e s p o n s e s t a t e s that R e a s o n e r c i r c l e d the v r o n g s c h e d u l i n g e s t i m a t e one time and that his r e p o r t i n g was a c a r e l e s s m i s h a n d l i n g of the facts. The "60 M i n u t e s " r e p o r t c l o s e s w i t h R e a s o n e r asking, "Who s h ould pay for the costs of n u c l e a r e n e r g y ? ' 1 The Il l i n o i s P o w e r r e s p o n s e c l o s e s wi t h a q u o t e from A b r a h a m L i n c o l n ma d e In C l i n t o n 100 y e a r s ago.
"If you on c e f o r f e i t the c o n f i d e n c e of your f e l l o w c i t i z e n s , you can never r e g a i n t h e i r r e s p e c t and esteem, it is true that you may fool all the p e o p l e some of the time, you can even fool some of the p e o p l e all the time, but you can 't fool all the p e o p l e all t. h e time."
T h r o u g h o u t this ca s e a n a l y s i s , the key is that I l l i n o i s P o w e r '8 r e s p o n s e is ju s t that, a r e s p o n s e. I ll i n o i s P o w e r Is r e s p o n d i n g to the a g e n d a set by "60 M i n u t e s . " The g e n e r a l s t r u c t u r a l s i m i l a r i t y of the I l l i n o i s Pow er r e s p o n s e can be se e n as a m e t a p h o r for t h e i r uae of the r e a c t i v e a p p r o a c h . By
r e s p o n d i n g d i r e c t l y to the "60 M i n u t e s " report, we are still left with the n e g a t i v e i m p r e s s i o n of I l linois Power given to us by "60 M i n u t e s . " Illinois Power is c o m p l e t e l y r e t r o a c t i v e in Its r e s p o nse wi t h o u t even o f f e r i n g any I n n o va t io n in the s t r u c t u r a l format. By not d i s p r o v i n g the c h a r g e s of m i s m a n a g e m e n t , I l l i n o i s Power all o w s this to rema i n an important issue in the v i e w e r ' s mind. The issue of r e l e v a n c e r e m a i n s the rate in c re a s e s with the p u b l i c ' s c o n t i n u e d a r o u s a l for concern. From the p e r s p e c t i v e of the c a t a l y t i c model, this r e s p o n s e fails to r e d e f i n e the Issues in I l linoi s P o w e r ' s favor. A l t h o u g h I l l i n o i s Power c a l l s the c r e d i b i l i t y of the news p r o g r a m "60 M i n u t e s " into q u e s t i o n ,
Illinois Power fails to change the agenda. T h r o u g h I l l i n o i s P o w e r ’s c o r p o r a t e a d v o c a c y e f forts. "60 M i n u t e s " floats in a sea of i solated incide n t s w h i l e c h a l l e n g i n g the f u n d a m e n t a l s y m b o l i c issue of rate hike j u s t i f i c a t i o n . I l li n oi s Power u t i l i z e s a r e a c t i v e strategy, y e a r n i n g for the days be f o r e the C l i n t o n N u c l e a r Power Plant and the rate c o n t r o v e r s y . C l o s i n g w i t h a quote from A b r a h a m L i n c o l n with a p i c t o ri a l of a n u c l e a r power plant in the b a c k g r o u n d can be seen as ironic for I l l i n o i s Power.
In a f o r w a r d looking n u c l e a r age*, Illinois Power i n c o n s i s t e n t l y uses a h i s t o r i c a l q u o t e s e t t i n g t v e agenda to days long ago.
C O N C L U S ION
T h r o u g h o u t this essay, I c o n t e n d that I l linois P o w e r is u n s u c c e s s f u l w i t h its issue m a n a g e m e n t It ^ to s u g g e s t that C r a b l e and V l b b e r t ’s model p r o v i d e s a comp e l l i e o r t i c a l e x p l a n a t i o n of the s y m b o l i c c o n s t r u c t i o n of c o r p o r a t e r e a i i t i e
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More s p e c i f i c a l l y , < 1 o x t n n d s the a n a l y s i s t. o a d i a t e e t i c ft 1 context in w hich a c a t a l y t i c a p p r o a c h as u t i l i z e d hy the a c t i v i s t s , is c l e a r l y seen as r h e t o r i c a l l y richer than the r e a c t i v e a p p r o a c h used bv I l l i n o i s Power. As I o u t l i n e d e a r l i e r for o r g a n i z a t i o n s in conflict over issues, a hi lateral a p p r o a c h to the c a t a l y t i c model c o u l d prove to be s u c c e s s f u l . As e v i d e n c e d in the n e w s p a p e r r e ports, the a c t i v i s t s groups o p p o s i n g Illinois Power have been s u c c e s s f u l in f r a m i n g issues in their favor. I l l i n o i s P ower c o u l d learn a lesson from these a c t i v i s t s groups and take a p r o a c t i v e a p p r o a c h to issue m a n a g e m e n t .
Illinois Power has the r e s o u r c e s and a b i l i t y to set the p u b l i c agenda but fails to u t i l i z e this power. T h r o u g h o u t I l l i n o i s P o wer's "60 M i n u t e s " r e s ponse, I llinois P o w e r found that the facts a l o n e are not enough. Illinois P o w e r needs to c o n s t r u c t the pub) if; and c o r p o r a t e agenda. i n s t e a d of the r e a c t i v e a p p roach, a c a t a l y t i c a p p r o a c h w o u l d h a v e prov e n to he more e f f e c t i v e . While I l l i n o i s P ower can learn a lesson from the a c t i v i s t s g r o u p s o p p o s i n g it, the c o r p o r a t e w o r l d can learn a lesson from the u n s u c c e s s f u l a t t e m p t s at issue m a n a g e m e n t by Illi n o i s P o w e r .
l , d r a l) ) »• P o I i c y , 1
a n d V i Fi ber t , i m k I s h u i i s a n d I n f I u e n <; i n \\ P u b 1 \ c R e l a t i o n s R e v i ' w S u mme r 198 f> ,
