Draw me in, make me care. Perhaps tell a story that illustrates the problem and demonstrates why it's urgent, a personal anecdote or a case study. Paint a picture of the current dire situation, perhaps by describing a physical scene that typifies the problem. For instance, if gun control is your issue, you might describe a tragic scenario of children innocently playing with a gun, and its disastrous outcome. Begin with what you think will shock, seduce, or somehow involve the reader.
If appropriate, define relevant key words and technical terms. Be specific. For example, how is "euthanasia" different from "physician assisted suicide?" Explain the distinctions.
2. The Problem
Identify the controversy/conflict/problem/debate/trend. Offer factual evidence that it exists. Describe its magnitude and its urgency. Provide statistical evidence when possible. Does it affect certain people more than others (senior citizens more than students, the working class more than the rich, women more than men)? Demonstrate that the problem will soon become extremely serious, if it's not serious now.
3. History of the Problem
Provide the background and history your reader will need to know about to understand the problem. Your Historical Analysis will be greatly utilized for this part of the Proposal. Explain the development and the most significant historical events that have contributed to the situation as it currently exists.
4. Position
Clearly and concisely state your position on the issue and discuss why your point-of-view is the best approach.
5. Counterargument to Your Position
Thoroughly present your opposition's primary objections to your position.
6. Policy Proposal/Call to Action
In detail, no vague generalities, describe you proposal/solution. You'll need to provide the specifics of what should be done and how it all will work. Describe the change called for. Convince us why your solution is the best alternative for all concerned. Paint a picture of what the world will be like if we adopt your policy and give it a chance to work.
7. Agency of Change
Identify who can make the change happen. Explain why it should be them. If it's the "government," then what branch: executive, legislative, or judiciary? What level: city, county, state, national? Are there particular governmental agencies that address the problem you've chosen? Do we need to pass laws, bring lawsuits, write letters to our representatives? If "society" is to blame, then who? Private citizens everywhere? How are you going to make them all care? Are there international bodies that address this problem, like Amnesty International or the United Nations? Can private volunteer organizations help? Make it clear who will be on the forefront of this change.