Madison Council Members Used Signal to Chat, Raising Questions on Transparency

Eight members of the Madison Common Council participated in a private group chat on the messaging app Signal, according to screenshots reviewed by local journalist Robert Chappell. At various points over the last several years, as many as twelve of the council's twenty current members were included in these conversations. The use of Signal, an app designed to secure communications, has drawn scrutiny regarding how public officials manage their digital records.

The Signal app is widely used by journalists and activists because the nonprofit that developed it does not store messages or user data on a central server. Once a message is deleted, it is permanently removed, and authorities cannot inspect data that no longer exists. The platform also features an optional disappearing messages function that automatically erases content after a set time. While this security is beneficial for whistleblowers, it creates challenges for public bodies that are subject to open records laws.

Chappell, the executive editor of Madison365 and Blueprint365, became aware of the group chat a few months ago. He noted that the member who created the group explicitly instructed participants to turn off the disappearing messages setting. The creator also warned that no city business should be discussed in the group. All council members who responded to his inquiries stated that the chats were strictly for social planning, sharing news articles, vacation photos, and recipes.

However, Chappell observed that several council members altered the timer for the disappearing messages feature during an 18-month period. The timers were sometimes set to delete messages after a day and other times after a week. These adjustments demonstrate that the participants were aware of the function and knew how to use it. Because the messages are deleted automatically, neither the reporter nor the public has a way to verify whether city business was discussed beyond the members' word.

Unlike personal emails or text messages, which remain in existence even if they are exempt from disclosure, Signal messages can vanish completely. If a records custodian claims personal emails are private, a court can still review them and compel release if necessary. With Signal, the records are often gone before a dispute can be resolved. Chappell argues that while officials may be following the letter of the law, they should take extra caution to avoid the appearance of secrecy.

The Madison Common Council is composed of residents who often share social circles and community board memberships before taking office. Many view their election as a continuation of their existing community service. The council members have not publicly responded to the specific issue of Signal's disappearing message feature in the context of this report.

The column is part of a monthly series distributed by the Wisconsin Freedom of Information Council, a nonpartisan nonprofit dedicated to open government. The group advocates for transparency in local decision-making processes.