United States Government Accountability Office

GAO Testimony before the House 

Subcommittee on Telecommunications 

and the Internet

DIGITAL TELEVISION 

TRANSITION 

Broadcasters’ Transition 

Status, Low-Power Station 

Issues, and Information on 

Consumer Awareness of the 

DTV Transition 

Statement of Mark L. Goldstein, Director 

Physical Infrastructure Issues 

For Release on Delivery

Expected at 9:30 a.m. EDT

Tuesday, June 10, 2008

 

GAO-08-881T 
What GAO Found

United States Government Accountability Office

Why GAO Did This Study

Highlights

Accountability Integrity Reliability

June 10, 2008

DIGITAL TELEVISION TRANSITION 

Broadcasters' Transition Status, Low-Power Station 

Issues, and Information on Consumer Awareness of 

Highlights of GAO-08-881T, a testimony the DTV Transition 

before the House Subcommittee on

Telecommunications and the Internet 

The Digital Television (DTV) 

Transition and Public Safety Act of 

2005, requires all full-power

television station in the United

States to cease analog broadcasting

by February 17, 2009. Low-power 

stations are not required to cease 

analog transmissions and most will 

continue broadcasting in analog.

Federal law also requires the

National Telecommunications and

Information Administration (NTIA) 

to subsidize consumers’ purchases 

of digital-to-analog converter 

boxes. After the transition, 

households with analog sets that 

rely on over-the-air broadcasts 

must take action or they will lose 

television service, but some

households might not be aware of 

this potential disruption. This 

testimony provides information on 

(1) technical and coordination 

issues facing full-power broadcast 

stations as they transition to digital,

(2) issues pertaining to low-power 

broadcasting and how they affect

consumers, and (3) the extent to 

which American households are 

aware of the DTV transition and 

likely to utilize the converter box 

subsidy program. GAO interviewed 

officials with the Federal 

Communications Commission 

(FCC) and NTIA and met with a 

wide variety of industry 

participants and other 

stakeholders. GAO conducted a 

Web-based survey of broadcasters 

to determine their status in

transitioning to digital and issues 

they were encountering and 

commissioned a survey of the U.S.

population on consumer 

awareness. This statement is based 

on GAO’s body of work on the DTV

transition. 

Broadcasters have made significant progress in preparing for the DTV 

transition. In fact, many stations are already broadcasting their full digital 

signal with the only remaining step being to turn off their analog signal. As of 

February 2008, 91 percent of broadcasters responding to our survey reported 

that they were already transmitting a digital signal. Nine percent of stations in 

our survey had yet to begin broadcasting a digital signal, but almost all of 

those stations expected to be broadcasting digitally by the transition date. In 

finalizing the transition to digital, some stations still must resolve technical, 

coordination, and construction issues. Technical issues include relocating 

either digital or analog antennas and, in some cases, constructing new 

broadcast towers. Some stations are bound by financial constraints related to

the costs of resolving these issues. In addition, some stations have 

outstanding coordination issues, such as the U.S. government reaching 

agreements with the Canadian and Mexican governments regarding signal

interference issues and coordinating with cable and satellite providers. 

Since most low-power stations will not transition to digital by February 2009, 

it is possible for viewers to receive programming in analog and digital after 

the transition. Potentially millions of viewers can receive low-power analog 

transmissions, including programming from the major networks, Spanish 

language broadcasting, and public television. To have access to both analog 

and digital television signals after the DTV transition, viewers could purchase 

a special kind of converter box that passes through an analog signal and a 

digital signal, or purchase other equipment. Public and private stakeholders 

have taken steps to educate the public about the low-power broadcasts 

potentially remaining in analog but some advocacy groups and others have 

expressed concerns that the messages intending to explain the low-power 

issue are instead confusing the public. Further complicating matters, many 

consumers do not know the difference between full-power and low-power 

stations or whether the signals they receive are full or low power. 

Most households will be unaffected by the DTV transition and a vast majority 

have heard of the transition. About 84 percent of people have heard of the 

transition, but fewer have more specific knowledge about the transition. 

Those at higher risk of being affected by the transition—households viewing 

over-the-air television signals—have higher levels of awareness than those 

who will be unaffected. Over half of the population has heard of the converter 

box subsidy program and those households at risk of losing television service 

who plan to take action are likely to utilize the program. However, only a third 

of those indicating plans to purchase boxes and utilize the coupons know how

to obtain coupons. In addition, there are indications that some consumers are 

confused about the transition, as 45 percent of those households who are at 

risk plan inadequate or no action to prepare for the transition. Conversely, 

amongst those unaffected by the transition, 30 percent indicated they have 

plans to ready themselves for the transition—despite the fact that no action 

will be required to maintain television service. 

To view the full product, including the scope 

and methodology, click on GAO-08-881T. 

For more information, contact Mark L. 

Goldstein at (202) 512-2834 or 

goldsteinm@gao.gov. 
Mr. Chairman and Members of the Subcommittee: 

I am pleased to be here today to discuss our recently issued report on 

technical issues arising from the digital television (DTV) transition1

 — 

Digital Television Transition: Majority of Broadcasters Are Prepared for 

the DTV Transition, but Some Technical and Coordination Issues

Remain—and our work on the extent of consumer awareness about the 

transition. My comments are based on our body of work on the DTV 

transition completed for this subcommittee.2

 We are continuing to review 

public and private sector efforts underway to implement the transition and

plan to report on those issues later this year. 

The Digital Television Transition and Public Safety Act of 2005 mandates

that full-power analog television broadcast signals cease on February 17,

2009. After that date, households who view television on analog sets solely 

through the reception of over-the-air signals must take action to ensure 

that they have the necessary equipment, such as a digital-to-analog 

converter box, or subscription video service to be able to view the digital 

broadcast signals. If they do not take such action, they will not be able to 

watch television programs. The act also directed the National 

Telecommunications and Information Administration (NTIA) to establish a 

$1.5 billion program through which households can obtain coupons for the 

purchase of digital-to-analog converter boxes. Beginning January 1, 2008, 

households could request up to two $40 coupons toward the purchase of 

eligible3

 digital-to-analog converter boxes. While federal law mandates that 

all full-power stations must cease to broadcast in analog on February 17, 

2009, low-power television broadcast stations are not covered by the law. 4

Low-power stations provide opportunities for locally-oriented television 

 1

GAO-08-510. 

2

See appendix II for our related products on the DTV transition. 

3

NTIA established technical and performance specifications that converter boxes must 

meet to be eligible for the converter box subsidy program. 

4

In addition to low-power stations, there are other low-power facilities that are not required 

by law to transition to digital by February 17, 2009. These facilities include (1) Class A 

television stations, which are a type of low-power station that qualify for interference 

protection rights and must satisfy certain requirements; (2) television translator stations, 

which simultaneously rebroadcast the programs of a full-power broadcast station in 

communities that cannot receive the signals due to large geographic barriers; and (3) 

television booster stations, which are low-power facilities that retransmit programming

from full-power stations and are intended to serve areas of low signal strength within fullpower stations’ contours. 

Page 1 GAO-08-881T 
service in small communities and these stations may continue to broadcast 

in analog after the DTV transition. Viewers who wish to continue watching 

low-power analog programming might need to take action to continue 

receiving analog signals after the transition. To help the public understand

the DTV transition and the various options they have, FCC, NTIA, and 

industry stakeholders are conducting consumer education and awareness 

programs. 

In my testimony today, I will discuss (1) the progress full-power broadcast

stations have made in transitioning to digital, as well as the technical and

coordination issues they face; (2) issues pertaining to low-power television 

stations and how they affect consumers; and (3) the extent to which 

American households are aware of the DTV transition and likely to utilize 

the converter box subsidy program. 

To obtain information on the technical and coordination issues facing 

broadcast stations, we conducted a Web-based survey of the full-power 

commercial and noncommercial television broadcast stations. From a 

total of 1,747 broadcasters, we surveyed 1,682 stations located in the 50 

states and the District of Columbia for which we could obtain contact 

information. To determine the extent of consumer awareness about the 

transition, we commissioned a telephone survey of the U.S. adult 

population. This survey followed a probability sampling procedure based 

on random selections of households and individuals. A total of 1,010 

completed interviews were collected during late March and early April 

2008. All percentage estimates presented have margins of error of plus or 

minus 6 percentage points or less. Further, we reviewed government 

documents and data and interviewed officials with the Federal 

Communications Commission (FCC) and NTIA, as well as a wide variety

of industry and other private stakeholders, such as satellite and cable 

television providers, manufacturers, national retailers, industry 

associations, and consumer advocacy groups. See appendix I for more 

detailed information on our scope and methodology. We conducted our 

work in accordance with generally accepted government auditing 

standards. Those standards require that we plan and perform the audit to

obtain sufficient, appropriate evidence to provide a reasonable basis for 

our findings and conclusions based on our audit objectives. We believe 

that the evidence obtained provides a reasonable basis for our findings 

and conclusions based on our audit objectives. 

Page 2 GAO-08-881T 
In summary: 

• Broadcasters have made significant progress in preparing for the DTV 

transition. Many stations are already broadcasting their digital signal in full 

power with the only remaining step being to turn off their analog signal. 

Specifically, as of February 2008, 91 percent of broadcasters responding to

our survey reported that they were already transmitting a digital signal. 

Nine percent of stations responding to our survey had yet to begin 

broadcasting a digital signal, but almost all of those stations expected to

be broadcasting digitally by February 17, 2009. In finalizing the transition 

to digital, some stations still must resolve technical, coordination, and 

construction issues. Technical issues include relocating either digital or 

analog antennas and, in some cases, constructing new broadcast towers. 

Some stations are bound by financial constraints related to the costs of 

resolving these issues. In fact, at the time of our survey, 69 stations 

indicated they have yet to start construction on their final digital facilities 

due to financial constraints. In addition, some stations have outstanding 

coordination issues, such as the U.S. government reaching agreements 

with the Canadian and Mexican governments regarding signal interference

issues and coordinating with cable providers and satellite companies. 

• Since most low-power stations do not plan to transition to digital by 

February 2009, it is possible for some viewers to receive programming in 

analog (from low-power stations) and digital (from full-power stations) 

after the transition date. Potentially millions of viewers can receive lowpower analog transmissions, including programming from the major 

networks (ABC, CBS, NBC, and Fox), Spanish language broadcasting, and 

public television. To have access to both analog and digital television 

signals after the DTV transition, viewers could purchase a special kind of

converter box that passes through an analog signal and a digital signal, 

often referred to as analog pass through, or purchase other equipment. 

Currently, converter boxes with analog pass through are available for 

purchase online and at two national retailers. Public and private 

stakeholders have taken steps to educate the public about the low-power 

broadcasts potentially remaining in analog and options available to 

consumers, but some advocacy groups and others have expressed 

concerns that the messages intending to explain the low-power issue are 

instead confusing the public. Further complicating matters, many 

consumers do not know the difference between full-power and low-power 

stations or whether the signals they receive are full or low power. 

• According to our consumer survey results, most households will be 

unaffected by the DTV transition and a vast majority have heard of the 

transition. While about 84 percent of people have heard of the transition, a 

Page 3 GAO-08-881T 
smaller number of people have more specific knowledge of the transition 

date and why the transition is taking place. Those at higher risk of being 

affected by the transition—households viewing over-the-air television 

signals—have higher levels of awareness than those who will be 

unaffected. Over half of households have heard of the converter box 

subsidy program and those households at risk of losing television service 

who plan to take action reported that they are likely to utilize the program. 

However, only a third of those indicating plans to purchase boxes and 

utilize the coupons reported knowing how to obtain coupons. While 

general awareness of the DTV transition is high, there are indications that

some consumers are confused or unknowledgeable about the transition, 

as 45 percent of those households who are at risk plan no action or 

inadequate action to prepare for the transition. Amongst those unaffected

by the transition, 30 percent indicated they have plans to ready themselves 

for the transition—despite the fact that no action will be required to 

maintain television service. 

All full-power television broadcasters are required by law to cease 

broadcasting their analog signal by February 17, 2009. There are numerous 

benefits to transitioning to digital-only broadcast signals, such as enabling 

better quality television picture and sound reception and using the 

radiofrequency spectrum more efficiently than analog transmission. With 

traditional analog technology, pictures and sounds are converted into 

“waveform” electrical signals for transmission through the radiofrequency

spectrum, while digital technology converts these pictures and sounds into 

a stream of digits consisting of zeros and ones for transmission. A digital 

receiver can make the digital picture and sound near perfect until 

significant fading occurs, at which point no picture can be seen. 

To facilitate the digital transition, Congress and FCC temporarily provided 

each eligible full-power television station (both commercial and 

noncommercial educational stations, including public stations) with 

additional spectrum so they could begin broadcasting a digital signal. This

companion, or paired, digital channel simulcasts the analog program 

content in digital format. Assignment of the paired digital channel began in 

1997 and FCC completed the digital channel assignment for most stations 

in August 2007. A station’s final digital channel could be (1) the same 

channel as its paired digital channel, (2) the same channel that its analog 

signal uses to broadcast, or (3) an entirely new channel. 

The DTV transition involves preparation on the part of American 

households. This preparation will require citizens’ understanding of the 

Background 

Page 4 GAO-08-881T 
transition and the actions that some might have to take to maintain 

television service. The specific equipment needs for each household to 

transition to DTV—that is, to be able to view broadcast digital signals—

depends on certain key factors. The method through which a household 

watches television, and whether it has already upgraded its television 

equipment to be compatible with digital television, will factor into the 

equipment needs of the household. While many households may need to

take specific actions to ensure that they continue to receive television 

signals, others may not need to take any action. As we have previously 

reported, households with analog televisions that rely solely on over-theair television signals received through a rooftop antenna or indoor antenna 

must take action to be able to view digital broadcast signals after the 

termination of analog broadcasting. Options available to these households

include (1) purchasing a digital television set that includes a tuner capable

of receiving, processing, and displaying a digital signal; (2) purchasing a 

digital-to-analog converter box, which converts the digital broadcast 

signals to analog so they can be viewed on an existing analog set; or (3) 

subscribing to a cable, satellite, or other service that provides the 

necessary signal to eliminate the need to acquire a digital-to-analog 

converter box. 

The Digital Television Transition and Public Safety Act directed NTIA to 

establish a $1.5 billion subsidy program through which households can 

obtain coupons for the purchase of digital-to-analog converter boxes. 

NTIA established that beginning January 1, 2008, households could request 

up to two $40 coupons toward the purchase of eligible digital-to-analog 

converter boxes. Households requesting coupons must submit the name of 

the person requesting the coupon and a valid United States Postal Service 

address. Initially, any household is eligible to request and receive the 

coupons, but once $890 million worth of coupons have been redeemed, 

and issued but not expired, NTIA must certify to Congress that the 

program’s initial allocation of funds is insufficient to fulfill coupon 

requests. NTIA will then receive $510 million in additional program funds, 

but any households requesting coupons during this second phase must 

certify that they do not receive cable, satellite, or other pay television 

service. Total possible program funding, which includes coupons 

redeemed, and issued but not expired, is $1.5 billion. The last day for 

consumers to request coupons is March 31, 2009, and coupons can be 

redeemed through July 9, 2009. As required by law, all coupons expire 90 

days after issuance. The fully funded program could provide 33.5 million 

coupons. 

Page 5 GAO-08-881T 
While all full-power broadcast stations must cease analog broadcasts, lowpower stations may continue broadcasting in analog after February 17, 

2009. FCC established low-power television service in 1982 to provide 

opportunities for locally-oriented television service in small communities. 

These communities may be in rural areas or may be individual 

communities within larger urban areas. Low-power stations provide 

programming from networks, syndicated programs, movies, and a wide 

range of locally-produced programs. According to FCC, there are more 

than 2,100 low-power stations in operation, some of which broadcast 

syndicated content of major commercial networks and public television 

and numerous other stations reaching a broad swath of the television 

viewing public. Low-power broadcast stations are not required to cease 

broadcasting in analog as of February 2009 and most will continue to 

broadcast in analog after the conclusion of the full-power transition. 

Because there is no mandated transition date for the low-power stations, it 

is unclear when these stations will transition to digital broadcasts. 

Most broadcasters have made significant progress in preparing their 

stations for the transition to digital, with approximately 91 percent of 

broadcasters responding to our survey reporting that they were already 

transmitting a digital signal. A small number of stations responding to our 

survey (9 percent) had yet to begin broadcasting a digital signal, but 

almost all of those stations expected to be broadcasting digitally by 

February 17, 2009. Before the transition to digital can be finalized, some 

stations still have to resolve (1) technical issues, such as the relocation of

their digital or analog antenna; (2) coordination issues, such as the U.S. 

government reaching agreements with the Canadian and Mexican 

governments and coordinating with cable providers and satellite 

companies; or (3) other issues, such as the construction of broadcast 

towers or financial constraints that might hinder their ability to complete

the steps necessary for the transition. 

Broadcast stations have made substantial progress in transitioning to DTV,

with the vast majority already transmitting a digital signal. Information 

obtained from our survey of broadcast stations indicates that 

approximately 91 percent of full-power stations are currently transmitting 

a digital signal. Our survey further indicated that approximately 68 percent 

of respondents are transmitting their digital signal at full strength. In 

addition, 68 percent of survey respondents are currently transmitting their 

The Vast Majority of 

Broadcasters are 

Transmitting a Digital 

Signal, but Some 

Broadcast Stations 

Face a Range of 

Technical, 

Coordination, or 

Other Issues in 

Completing Their 

DTV Transition 

Almost All Stations are 

Transmitting a Digital 

Signal and the Majority are 

Operating at Full Power 

Page 6 GAO-08-881T 
digital signal on the channel from which they will broadcast after the 

transition date. Twenty-three percent of stations that responded to our 

survey indicated they will be moving their digital signal to their analog 

channel. In addition, other stations need to move to a completely new 

channel. While almost all full-power stations are already broadcasting a 

digital signal, 97 stations, or 9 percent of stations responding to our 

survey, are not currently broadcasting digitally. Almost all of these 

stations, however, indicated that they plan to have their digital signal 

operational by February 17, 2009. Three stations responded that they were 

not planning to broadcast a digital signal by February 2009. According to 

FCC, stations that are not currently transmitting a digital signal either (1) 

were granted a license to operate a digital signal along with their analog

signal but have yet to begin broadcasting digitally or (2) were not given a 

companion, or paired, digital channel and plan to turn off their analog 

signal at the same time that they turn on their digital signal—known as 

“flash cutting.” According to our survey, 5 percent of the stations (61 

stations) indicated that they plan to flash cut to a digital-only broadcast. 

According to FCC, flash cutting may present challenges, since it will 

involve stations’ ending their analog television operations and beginning

their digital television operations on their current analog channel or, in 

some cases, will require that a station change to a new channel to be fully 

operational. Of those stations responding to our survey that plan to flash 

cut, only 21 percent had begun constructing final digital facilities at the 

time of our survey. Furthermore, 64 percent of the flash cutters

responding to our survey noted that they need to order equipment to 

complete their digital facilities. 

Some stations, including those already broadcasting a digital signal, still 

have technical, coordination, or other issues that need to be resolved 

before completing their transition. For example, over 13 percent of 

stations responding to our survey indicated that they have to install or 

relocate their digital or analog antennas in transitioning to digital. Some 

stations still needed to order equipment, such as antennas, to build their 

final digital facilities. According to an antenna manufacturer we contacted, 

it can take from 6 weeks to 9 months to design, order, and install an 

antenna, depending on the antenna’s complexity. This manufacturer told 

us that stations need to have their orders placed by June 2008 to be 

assured of having the equipment installed prior to the transition date. 

Furthermore, stations may have coordination issues to address in 

completing their final digital facilities. For example, some stations are 

awaiting agreements with the Canadian and Mexican governments 

regarding their signals crossing the borders of these respective countries

Some Broadcast Stations 

Need to Address Technical, 

Coordination, and Other 

Issues to Support a 

Smooth Transition 

Page 7 GAO-08-881T 
before the stations can complete their digital facilities. Stations will also 

need to coordinate with cable providers and satellite companies to ensure 

that cable and satellite facilities can receive digital signals when the analog 

signals are turned off; most of those responding to our survey indicated

that they are coordinating with or are planning to coordinate with cable 

providers and satellite companies. Lastly, stations that have to construct 

broadcast towers or have financial constraints might be affected during 

their transition. According to our survey, 47 stations indicated that they

need to construct a broadcast tower or reinforce an existing tower to build 

their digital facilities. Another 69 stations responding to our survey 

indicated that due to financial constraints, they have not started 

construction on their final digital facilities or that they have not begun 

broadcasting a digital signal. 

Potentially millions of viewers can receive low-power analog 

transmissions, including programming from the major networks (ABC, 

CBS, NBC, and Fox), Spanish language broadcasting, and public 

television. According to FCC data, 296 low-power stations broadcast one 

of the four major networks, 109 low-power stations broadcast a Spanish 

language network, and 45 low-power stations are affiliated with the public 

broadcasting service. Since most low-power stations will not transition to 

digital in February 2009, it is possible for viewers to receive programming 

in analog (from low-power stations) and digital (from full-power stations) 

after the transition date. As previously noted, one of the options 

households have to prepare for the transition is purchasing a digital-toanalog converter box. However, such a box could prevent the television 

from receiving low-power analog signals. To have access to both analog

and digital television signals after the DTV transition, viewers could use a 

special kind of converter box that passes through an analog signal and a 

digital signal, often referred to as analog pass through. Absent a converter 

box with analog pass through capability, viewers could obtain a small 

device called a “splitter.”5

 According to the National Association of 

Viewers Have Options 

to Prevent Loss of 

Service from LowPower Analog 

Broadcasts, but 

Concerns Remain 

About the Clarity of 

Information 

Pertaining to this 

Issue 

 5

Households with digital televisions will also be able to receive both digital and analog 

signals. 

Page 8 GAO-08-881T 
Broadcasters (NAB), installing the splitter and new wiring is similar to 

connecting a television to a DVD player and VCR.

6

Currently, converter boxes with analog pass through are available for 

purchase online, and two national retailers indicated the boxes are 

available in their stores now. The remaining national retailers we 

contacted told us they would begin stocking such boxes in mid June 

through early September.

7

 At least one national retailer we spoke with is 

carrying items (such as the splitter) which would allow consumers to view 

both digital and analog signals without purchasing a converter box with 

analog pass through. The retailers we contacted said all of their stores will 

be selling converter boxes with analog pass through, regardless of location 

or prevalence of low-power stations. Some retailers said they are analyzing 

market data to help them understand which markets will have increased 

need for these boxes. For example, one retailer told us that it is analyzing 

data to determine which markets will need and therefore initially receive 

more boxes with analog pass through, with the goal of having boxes with 

analog pass through in all stores later in the summer of 2008.

Public and private stakeholders have taken steps to educate the public 

about the low-power issue and the options available to consumers. For 

example, FCC issued a consumer advisory which serves as a resource 

guide on low-power television.8

 Further, FCC is urging all low-power 

broadcasters to immediately begin educating their viewers about this 

issue. FCC noted that such stations could notify their viewers that they are 

watching a low-power broadcast station that will continue to offer analog 

service after the transition date and viewers that plan to purchase a 

converter box should purchase a model with analog pass through. NTIA 

also developed a resource guide.

9

 According to NTIA, it has provided 

information to operators of low-power stations so they can inform their 

viewers of the options they have regarding the DTV transition. NTIA said it 

 6

According to NAB, consumers who use an antenna splitter and/or an antenna A/B switch 

can then switch back and forth between analog reception directly with the television or 

digital through the converter box. An A/B switch and splitter and additional antenna cables 

are inexpensive and can be found at most consumer electronic retailers. 

7

We contacted all national retailers who are participating in the converter box subsidy 

program, except for one retailer who was unwilling to meet with us. 

8

The FCC guide is available online at 

http://www.fcc.gov/cgb/consumerfacts/DTVandLPTV.html. 

9

NTIA’s resource guide is available online at https://www.dtv2009.gov/lowpower/. 

Page 9 GAO-08-881T 
has encouraged converter box manufacturers to consider the needs of all

viewers, including viewers of low-power stations, in the development of 

converter boxes. NAB and others have added information about lowpower stations to their Web sites and clarified that only full-power stations 

are transitioning in February 2009.10 However, the Community 

Broadcasters Association, which represents low-power stations, believes 

public and private education efforts about the DTV transition focus on the 

end of analog broadcasts and are misleading to viewers. 

While public and private efforts are ongoing to inform the public about 

low-power stations not transitioning to digital, some have expressed 

concerns that the messages intended to explain this issue are instead 

confusing the public. Further complicating matters, many consumers do 

not know the difference between full-power and low-power stations or 

whether the signals they receive are full or low power. We heard from 

advocacy groups for disadvantaged populations that the messages 

intending to explain the low-power issue could be overly confusing. For 

example, one group questioned how those watching low-power stations 

would understand that (1) they are viewing low-power broadcasts, (2) 

these stations are not transitioning to digital, and (3) what actions they 

need to take to maintain the ability to watch low-power broadcasts. This 

group said many Spanish speakers are reliant on low-power stations to 

view Spanish language broadcasts but many in that community are not 

aware of the issue with low-power stations or that they are reliant on lowpower stations. 

Most households will be unaffected by the DTV transition and a vast 

majority have heard of the transition. According to our consumer survey 

results, about 84 percent of the population has heard of the transition, but 

smaller numbers of people have more specific knowledge of the transition 

date and why the transition is taking place. Those at higher risk of being 

affected by the transition—households viewing over-the-air television 

signals—have higher levels of awareness than those who will be 

unaffected. Over half of the population has heard of the converter box 

subsidy program and those in households at risk of losing television 

service who plan to take action are likely to utilize the program. However, 

only a third of those indicating plans to purchase boxes and utilize the 

coupons know how to obtain coupons. While general awareness of the 

Most People are 

Aware of the DTV 

Transition, but Many 

are Unprepared or 

Have Inadequate 

Plans 

 10NAB’s initiative can be found at http://www.lptvanswers.com/. 

Page 10 GAO-08-881T 
DTV transition is high, there are indications that some consumers are 

confused or unknowledgeable about the transition, as 45 percent of those 

households who are at risk plan no action or inadequate action to prepare 

for the transition. 

Our survey categorized households into varying risk levels of being 

affected by the DTV transition, with most households (65 percent) unlikely 

to lose television service. According to our survey of consumers, 

approximately 15 percent of households are at risk of losing television 

service once the transition is complete because they rely solely on overthe-air television signals. We refer to this group as “high risk.” An 

additional 21 percent of households have at least one television used to 

watch over-the-air signals. While this group of consumers has one or more 

televisions connected to a subscription service such as cable or satellite, 

they still have at least one television used to watch over-the-air television. 

We refer to this group as “medium risk” because unless they take action,

they could lose television service on the set or sets not connected to cable, 

satellite, or other subscription service. Also, our survey found that 65 

percent of households have all of their televisions used for watching 

programming connected to a subscription service. We refer to this group 

as “low risk” since they are unlikely to be adversely affected by the DTV 

transition. 

Our survey suggests that while most Americans do not believe the 

transition will be disruptive, some do not fully understand the 

ramifications the transition could have on their ability to watch television. 

We asked respondents how disruptive they expected the change from 

analog to digital to be and found that 55 percent expect the transition will 

not be at all disruptive. Only 10 percent of the population expects the 

transition to be very disruptive and even among high risk households—

those who most likely must take action or lose television service—only 20 

percent expect the transition to be very disruptive. Nevertheless, while 

most households (69 percent) believe the transition will be either not at all 

disruptive or not too disruptive, of this segment of the population, 54 

percent had inadequate or no plans for the transition despite being at 

medium or high risk of losing television service. 

NTIA and FCC have identified a number of at-risk populations who might 

be more likely to be adversely affected by the transition. These groups 

include seniors, low-income, minority and non-English speaking, rural 

households, and persons with disabilities. Those most likely to be affected 

by the transition are spread across all types of households throughout the 

About 65 Percent of 

Households Have All 

Televisions Connected to a 

Subscription Service, but 

the Remaining 35 Percent 

are at Risk of Losing Some 

or All of Their Television 

Service After the 

Transition 

Page 11 GAO-08-881T 
country, but in some cases, there are particular characteristics of note 

regarding which types of households represent the high and medium risk 

groups. Our survey collected demographic information on households and 

found that certain subgroups of the population were more likely to be

affected by the transition. For example, households at risk of losing all 

television service—those in the high risk group—were more likely to be in

urban locations than households in the medium risk group. Households in 

the various income categories are spread across the different risk groups; 

however, the lower income group has a larger portion of high risk 

households. Specifically, those with income lower than $50,000 are 

composed of 19 percent high risk, whereas 14 percent of households with 

income from $50,000 to $99,999 are high-risk and only 7 percent of 

households with income of $100,000 and above are high risk. 

Overall, about 84 percent of Americans have heard of the DTV transition 

according to our survey results. To test the survey respondents’ level of

awareness, we asked if they had heard of the DTV transition and if they 

knew when and why the transition was taking place. We found the 

percentage of people with detailed knowledge about the transition 

declines with the specificity of information. For example, 62 percent knew 

the year (2009) that the transition would take place, but only 31 percent 

knew the month and year (February 2009). Additionally, only 35 percent of 

people who indicated they were aware of the transition—29 percent of the 

population as a whole—could explain why the transition is taking place. 

The most common responses on why the transition is taking place were 

related to technology improvements. Twenty percent indicated the 

transition would bring about general technological advancements and 30 

percent cited better television picture quality as the reason for the 

transition. Much smaller percentages of the population indicated the 

transition was to free up airwaves for a variety of reasons, including 

improved emergency communications. 

Those who may be more seriously affected by the transition have higher 

levels of knowledge about the transition and when it will take place than 

those who will be less seriously affected. To determine the awareness of 

the households that will be most affected by the transition, we segmented 

survey questions by risk group. Our survey indicates that consumer 

awareness was higher, in most cases, across a variety of questions, for the 

medium and high risk groups than for the population as a whole. In 

particular, for the medium risk group—the largest block of affected 

households—90 percent indicated they were aware of the transition. In the 

more detailed indicator of awareness, knowledge of the transition date, 40 

General Awareness of the 

DTV Transition is High, but 

Detailed Knowledge is 

Much Lower 

Page 12 GAO-08-881T 
percent of high risk households, 37 percent of medium risk households, 

and 27 percent of low risk households were aware of the month and year 

the transition will take place. 

Our survey results indicate that some demographic groups show different 

levels of awareness from the overall population. We examined awareness 

of the transition across demographic factors, such as age, ethnicity, 

income, and disability and examined, additionally, the awareness of those 

households likely to be affected by the transition—the high and medium 

risk groups. 

Age: Across various age categories, there were few differences in overall 

consumer awareness, but people in the middle-age group (45 to 64) have 

the highest rates of awareness of the DTV transition, its timing, and why it

is occurring. Respondents who were 65 and older showed slightly lower 

levels of awareness. When looking specifically at awareness of the 

transition date for age groups, 29 percent of 18- to 44-year-olds, 36 percent 

of 45- to 64-year-olds, and 26 percent of those 65 and older knew the 

month and date of the transition. As for the reason for the transition, 18- to

44-year-olds had the lowest percentage of those aware of why the 

transition was taking place. 

Ethnicity: By ethnicity, those self-described as white or Caucasian had

higher general awareness (86 percent) than those nonwhite ethnic groups 

(78 percent). This trend in awareness followed for the additional specific

questions about the transition and is more pronounced for the at-risk 

groups. When high and medium risk households were asked about why the 

transition was taking place, only 16 percent of nonwhite respondents were 

knowledgeable compared with 45 percent in the white/Caucasian group. 

Income: Higher income was associated with greater awareness. For those 

individuals with incomes from $15,000 to $34,000, 84 percent were aware; 

for those with incomes ranging from $35,000 to $49,000, 90 percent were 

aware; $50,000 to $99,000, 90 percent were aware; and for those making 

over $100,000, 94 percent were aware. On the other hand, 69 percent of 

those making less than $15,000 per year were aware of the transition. 

Disabilities: We found that 77 percent of those with disabilities were 

aware of the transition. 

Community type: We found that awareness did not differ significantly in 

different community types. In urban, suburban, and rural/small-town 

groups, awareness was around 84 percent, similar to that of the 

Page 13 GAO-08-881T 
population. There was also little variance by region of the country: the 

Northeast, Midwest, West, and South regions all showed similar 

awareness. 

Our results indicate that, across all risk groups, television is the most 

pervasive source of information about the transition. In particular, 82 

percent of the population indicated they heard of the transition by 

television. In addition, 45 percent said they had heard about the transition 

by word-of-mouth and 30 percent from newspapers or magazines. Many 

fewer (17 percent) had heard about the transition from the Internet and 11 

percent heard about the transition from retail stores. 

Greater than half of the population is aware of the NTIA converter box 

subsidy program, but more detailed knowledge of the program is much 

weaker. Overall, awareness of the converter box subsidy program is at 55 

percent. The high and medium risk groups have higher awareness, at 63 

percent and 56 percent respectively, than the low risk group at 53 percent.

While general awareness of the subsidy program itself is relatively high, of 

those households who intend to purchase a converter box and to request a 

coupon from the NTIA program, only 33 percent were aware of how to 

obtain a coupon. 

Those households who indicated that they were likely to purchase a 

converter box reported very high rates of likelihood to request the 

coupons. In the high risk group, of those who intend to purchase a 

converter box, 100 percent of respondents said they were likely to request 

a coupon. In the medium risk group, 89 percent of these households said 

they were likely to request coupons. According to NTIA officials, the rate 

of those requesting two coupons is approximately 89 percent.

The intention of households to utilize the converter box subsidy program 

if they plan on purchasing converter boxes is clear. However, the percent

of those who indicated they are likely to purchase a converter box in the 

first place is much lower. In the high risk group, 49 percent, and in the 

medium risk group, 32 percent of households are likely to purchase a 

converter box. Additionally, 15 percent of households in the low risk 

group said they would purchase a converter box when the transition takes 

place. This indicates not only that some households may be confused or 

unknowledgeable—low risk households should not need converter 

boxes—but that households with no need for converter boxes may utilize 

the subsidy program. Of the low risk households who plan to purchase a 

converter box, 86 percent said they would utilize the NTIA subsidy 

Households Planning to 

Take Action for the DTV 

Transition are Likely to 

Utilize the Converter Box 

Subsidy Program, but 

Many Household Plan to 

Take No Action to Prepare 

for the Transition 

Page 14 GAO-08-881T 
program. Based on an analysis of our survey, we estimate that households

will request roughly 30.6 million coupons. This estimate assumes that 

households will follow through with their plans to request coupons. 11

Despite high overall awareness of the DTV transition, many households 

were unprepared for the transition. We describe as unprepared for the 

DTV transition those in the medium or high risk groups who indicated that 

for the transition, they will do nothing, they do not know what they will 

do, or they specified some other action that will not prepare them for the 

transition. Our analysis determined that 35 percent in the high risk group 

were unprepared and 52 percent in the medium risk group were 

unprepared. Overall, these unprepared groups make up 16 percent of the 

total population. Amongst low risk households, 30 percent indicated they 

have plans to ready themselves for the transition—despite the fact that no 

action is required to maintain television service. 

Thank you, Mr. Chairman, that concludes my statement. I will be pleased 

to answer any questions that you or other Members of the Subcommittee 

might have.

For further information about this testimony, please contact Mark L. 

Goldstein at (202) 512-2834. Other key contributors to this testimony 

include Andy Clinton, Colin Fallon, Ronald Fecso, Simon Galed, Eric 

Hudson, Bert Japikse, Aaron Kaminsky, Sally Moino, Karen O’Conor, and 

Andrew Stavisky. 

GAO Contact and 

Staff 

Acknowledgements 

 11We estimate that households with a landline telephone will request approximately 30.6 

million coupons, ranging from 25.6 million to 35.5 million coupons. This estimate does not 

include non-landline households or household where telephone status could not be 

determined. While we could not substantiate an assumption that these households would 

respond similarly to landline households, if they do, this could add another 11 million 

coupon requests to the estimate. 

Page 15 GAO-08-881T 
Page 16 GAO-08-881T 

Appendix I: Scope and Methodology 

To obtain information on the technical and coordination issues facing 

broadcast stations, we conducted a Web-based survey of the full-power 

commercial and noncommercial television broadcast stations. We asked 

the broadcasters questions related to their digital facilities, construction 

plans, and issues affecting the digital transition. From a total of 1,747 

broadcasters, we surveyed 1,682 stations located in the 50 states and the 

District of Columbia for which we could obtain contact information. We 

conducted our survey from December 2007 through February 2008 and 

obtained completed questionnaires from 1,122 stations, for a response rate 

of 66.7 percent. Of those completed questionnaires, 72 percent were from 

commercial stations and 28 percent were from noncommercial stations. 

To obtain information on issues pertaining to low-power television 

stations and how they affect consumers, we reviewed data from the 

Federal Communications Commission and interviewed a wide variety of

industry and other private stakeholders, such as national retailers, 

industry associations, and consumer advocacy groups. 

To determine the extent of consumer awareness about the transition, we 

commissioned a telephone survey of the U.S. adult population. Our 

objectives were to produce nationally representative estimates of (1) 

knowledge and awareness of the DTV transition and sources of that 

knowledge and awareness, (2) knowledge about the converter box coupon

program and likelihood to request one or two coupons, and (3) attitudes 

about the impact of the conversion to digital television (e.g. level of 

disruption) Although the survey was designed to measure these issues at 

the population level, our intent was also to focus on several subpopulations, including (1) those most at risk of losing their television 

signal, (2) those with lower household incomes, (3) older Americans, (4) 

African Americans and Hispanics, and (5) those with disabilities. We 

analyzed the comparisons between these sub-populations and report on 

differences statistically significant at the 95 percent level. Percentage

estimates have margins of error of less than 6 percent. 

This survey of the American public was conducted from March 24, 2008 to

April 7, 2008 by a private research firm. A total of 1,010 completed 

interviews were collected and calls were made to all 50 states. 

Telephone surveys require assumptions regarding the disposition of noncontacted sample households that meet certain standards. For this survey 

the response rates were calculated using American Association of Public 

Opinion Research (AAPOR) Response Rate 3. Based on these 

assumptions, the response rate for the survey is 38 percent. A random digit 
dial (RDD) sampling frame was used that includes both listed and unlisted 

numbers from working blocks of numbers in the United States. 

Technically, it provides a near 100 percent coverage of all households with 

landlines however; the RDD sampling frame approach cannot provide any 

coverage of the increasing number of cell phone only households. The 30.6

million estimate for coupon requests (which ranges from 25.6 million to 

35.5 million coupons) does not include 13.1 percent of the households that 

are cell phone only households or 13.3 percent of the households for 

which there was no telephone service or no reported telephone status. 

While we could not substantiate an assumption that these households 

would respond similarly to landline households, if they do, this could add 

another 11 million coupon requests to the estimate. Additionally, the 

number of households that decide to replace their television rather than 

add the converter box could increase, which may decrease the demand for 

converter boxes. 

Because many households contain more than one potential respondent, 

obtaining an unbiased sample from an RDD frame requires the random 

selection of the individual respondent from among all potential 

respondents within the sampled household (as opposed to always 

interviewing the individual who initially answers the phone). This was 

accomplished using the most recent birthday method, in which the 

interviewer requests to speak to the household member aged 18 or older 

who had the most recent birthday. If the selected respondent was not 

reachable after three call attempts, a substitute respondent was selected 

from among household members 18 years of age or older who were 

available at the time of the call, or an appointment was set for a household 

member who was willing to participate at a later time. 

The results of this survey reflect an estimated awareness of the DTV 

transition for the time frame of the survey only. Some questions in the 

survey ask about the respondent’s knowledge or awareness of the 

transition and the coupon program. As consumer education about the 

transition and the coupon program increases, the number of people aware 

of the transition and the coupon program will probably increase. 

Additionally, the respondent may not be the person in the household 

responsible for obtaining a coupon or deciding how to handle the 

transition. As a result, the individual response may indicate that the person

is unaware, but someone else in the household could be planning to take

care of the issue. As a result, we may overestimate the percentage of 

unaware households. 

Page 17 GAO-08-881T 
Finally, in the survey we asked respondents about likely behavior once the 

transition occurred. Only those who said they were likely to purchase a 

converter box were asked if they would request a coupon and then were 

asked whether they would request one or two government coupons. In our 

calculation of coupon demand we assume that those who do not say they 

are likely to purchase a coupon box will not request a coupon. 

Page 18 GAO-08-881T 
Page 19 GAO-08-881T

Appendix II: Related GAO Products 

Digital Television Transition: Majority of Broadcasters Are Prepared for 

the DTV Transition, but Some Technical and Coordination Issues

Remain. GAO-08-510. Washington, D.C.: April 30, 2008 

Digital Television Transition: Increased Federal Planning and Risk 

Management Could Further Facilitate the DTV Transition. GAO-08-43. 

Washington, D.C.: November 19, 2007. 

Digital Television Transition: Preliminary Information on Progress of 

the DTV Transition. GAO-08-191T. Washington, D.C.: October 17, 2007. 

Digital Television Transition: Preliminary Information on Initial 

Consumer Education Efforts. GAO-07-1248T. Washington, D.C.: 

September 19, 2007. 

Digital Television Transition: Issues Related to an Information 

Campaign Regarding the Transition. GAO-05-940R. Washington, D.C.: 

September 6, 2005. 

Digital Television Transition: Questions on Administrative Costs of an

Equipment Subsidy Program. GAO-05-837R. Washington, D.C.: June 20, 

2005. 

Digital Broadcast Television Transition: Several Challenges Could Arise 

in Administering a Subsidy Program for DTV Equipment. GAO-05-623T. 

Washington, D.C.: May 26, 2005. 

Digital Broadcast Television Transition: Estimated Cost of Supporting 

Set-Top Boxes to Help Advance the DTV Transition. GAO-05-258T. 

Washington, D.C.: February 17, 2005.

Telecommunications: German DTV Transition Differs from U.S. 

Transition in Many Respects, but Certain Key Challenges Are Similar.

GAO-04-926T. Washington, D.C.: July 21, 2004. 

Telecommunications: Additional Federal Efforts Could Help Advance 

Digital Television Transition. GAO-03-7. Washington, D.C.: November 8, 

2002. 

Telecommunications: Many Broadcasters Will Not Meet May 2002 

Digital Television Deadline. GAO-02-466. Washington, D.C.: April 23, 2002 

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