diplomacy cornpleand strengthens traditional diplomacy between governments. It com ­

municates U.S.policies abroad and provid es informati on about the United States that puts those 

policies in perspective. It builds last ing relationships and mutual understand ing by enabling others to come to this country to observe the American democratic experience for themselves. 

International broadcasting, overseas press and 

publi c affairs activities, an d educa tional and cultural exchanges are essent ial parts of publi c diplomacy. 

The United State s Information Agency (USIA) 

has primary responsibility for a "vide range of pub ­

lic dipl om acy activities abroad, and for advisin g 

the govern ment on the policy implications of foreign opinions and perceptions. 

Because USIA's programs are not dissem inated 

in the United States, publi c diplomacy is not well 

understood by the American people . 

The United States engages in public diplom acy 

when: 

•	 A USIA officer in Budap est arr anges semina rs 

with American experts, distributes books and 

videotapes, and coordinates long-term visits by 

u.s.scholars, all to help build democratic institutions and a free market economy; 

•	 The Voice of Ame rica grea tly increases broad ­

casting to the Middl e East during the Persian 

Gulf crisis and crea tes a dial-in phone center 

that receives more than 77,000 calls from overseas for information; 

•	 An American Fulbright scholar teaches American literature at the University of Hon g Kong, 

while a Brazilian graduate student uses her Fulbright grant to study economics at the University of California; 

•	 U.S. officials discuss trade issu es with Korean 

•	 

and 

lite tele

USIA's 

Japan

vision servic

rese

ese 

arch a

journalists 

na lysts ass

e: 

on th

ess 

e Wor

opinion poll

ldnetsatel­s 

conducted in the Soviet Union to help U.S. officials shape p oli cies on political an d social 

change in that country; 

• Justices on Mozambique's Supreme Court come 

to the U.S. as In ternational Visitors, to meet 

with legal professionals and observe the American judicialsystem; 

•	 USIA in China dr aws a huge crowd of cultural 

figures to welcom e publication in Chinese of a 

biography of Eugene O· Neill; 

• Some 20,000 students att end	 English classes, use 

the library, and enjoy exhibits an d concerts at 

the Binational Center in Bangkok; 

• USIAin Sofia arranges for private U.S. donations 

that make possible the first American university 

in Bulgaria; 

•	 Academic counselors consult with Pakistani student s about scholarships and admissions policies to American colleges. 

Sharing national experiences, 

communicating ideas, explaining 

U.S. policies, and bringing people together 

is what public diplomacy is all about. 
S~

uP" 

1991 REPORT 
PUBLIC OIPLOMACV IN THE 19905 J 

CONTENTS 

AMessage from the Chairman 5
 

TransmittalLetter............................................................................... 6
 

Executive Summary 8
 

The Roleof the Commission 10
 

PUBLIC DIPLOMACY IN THE 19905 12
 

Lessons from the Persian GulfCrisis 14
 

Mission................................................................................................. 16
 

Resources............................................................................................. 18
 

Strategy................................................................................................. 20
 

Research............................................................................................... 22
 

FIELD PROGRAMS 23
 

EmergingDemocracies 24
 

EasternEurope 26
 

SovietUnion 27
 

China 28
 

Coordination and Focus 29
 

FieldManagement 29
 

NationalEndowment forDemocracy ........................................... 32
 

MEDIA 33
 

34
 International Broadcasting . 

35 • Voice ofAmerica .. 

40 • Television .. 

42
 • Broadcasting to Cuba . 42 • CommercialSatelIiteTelevision . 

44
 • BroadcastingStrategy . 

Wrrele 45 ss File .. 

Magazines 46
 . 

Exhibit 47 s . 

EDUCATION AND CUL.TURE 48
 

ExchangeofPersons 49
 

BookPrograms 52
 

English Teaching 53
 

Libraries and BinationalCenters 54
 

East-West Center 55
 

OrganizationChart 56
 

3 
'9905 

tunning changes have occurred 

in the world of public diplomacy since our last annual report. 

The fall of the Berlin Wall symbolized the end of 

East-West confrontation in central Europe and the 

unification of Germany. Democratic ideals revolutionized Eastern Europe, and they are transforming 

countries in Asia, Africa, and the Western hemisphere. A deeply troubled Soviet Union grapples with 

the implications of glasnost and perestroika. Tragic 

events in Tiananmen Square damaged relations 

between the United States and China. And the 

Persian Gulf crisis was from the start a battle for international public opinion. 

Reflecting on these epic events, we are led 

inevitably to rethink fundamental questions about 

the nation's public diplomacy. 

What role did America 's international broadcasts, 

educational exchanges, and overseas press and cultural programs play in bringing these changes about? 

What should be our strategic vision for public 

diplomacy, and what is the mission of the United 

States Information Agency in this new world? 

Does USIA need new programs and new priorities, and do we as a country give public diplomacy 

the support it deserves? 

This report seeks to address these questions. 

Each of my colleagues brings a different and 

important perspective to our examination of public 

diplomacy. Each has contributed a great deal to this 

report and to the work ofthe Commission. 

We extend a special word of appreciation to former Commissioner Richard M. Scaife, who served 

from 1984 to 1990, and to former Commissioner 

Hershey Gold, who served from 1983 to 1991. We 

thank both for their distinguished service and their 

commitment to the mission of public diplomacy. 

We also welcome our newest member, Lewis W. 

"Pete " Douglas of Califomia. Commissioner Douglas 

brings a wealth of business and philanthropic experience in North and South America to the work of the 

Commission. 

President Bush recently appointed Henry Catto to 

be the 12th Director of the U.S. Information Agency. 

He takes on his new responsibilities during a challenging period in the life of the Agency. We wish him 

well. 

There is a compelling case for public diplomacy. 

It advances important American interests and ideals. 

It should be treated and funded accordingly. 

:;iJ ) UC/ 

Edwin J. Feulner, Jr.
 

Chairman
 

May, 1991 

5 
I PUBLIC DIPLOMACY IN THE III90S 

TO THE CONGRESS AND
 

TO THE PRESIDENT OF THE
 

UNITED STATES
 

In accord ance with the requirements of Public Law 

101-246, the United States Advisory Commission on 

Public Diplomacy submits herewith a report on the 

U.S. Information Agency and the public diplomacy 

activities of the United States Government. 

Respectfully submitted, 

iL Edwin I. Feulner, Ir., Chairm an
 

President
 

The Heritage Foundation
 

Virginia (R)
 

T~

Tom C. Korologos, ViceChairm an
 

President
 

Timmons and Company, Inc.
 

Virginia (R)
 

?f',~ll J. SucLclA/ 

Priscilla L. Buckley
 

Senior Eclitor
 

NationalReview 

Connecticut (R) 

Managing Director 

Salomon Brothers Inc. 

illinois (D) 

$//i:" ,:// J -r/f 

WIlliam J. Hybl 
 Chairman
 

ElPomar Foundation
 

Colorado (R)
 

~~ 
 Richard B.Stone 

Vice Chairman 

Capital Bank NA 

Washington, D.C. (D) 

6 
PUBLIC DIPLOMACY IN THE 19905 

EDWIN J . FEULNER , JR. 

OF VIRGINIA , 

CHAIRMAN 

Dr. Feulner is President of the 

Heritage Foundation, a Washington 

based , tax-exem pt public poli cy 

research institu tion. He is also Chairman of the 

Institute for European Defense and Strategic Studies 

in London and serves on the boards of numerous 

other public policy groups. Dr. Feu lner has been 

Chairman of the Advisory Commission since 1982. 

TOM C. KOROLOGOS 

OF VIRGINIA , 

VICE CHAIRMAN 

Mr. Korologo s is President of 

Timmons and Company, In c., a 

Washington D.C. consulting firm 

representing corporate and association clients in the 

area of government relations. He is also Chairman of 

the Board of Trustees of the American College of 

Greece. 

PRISCILLA L . BUCKLEY 

OF CONNECTICUT 

Ms. Buckley is Senior Editor and a 

memb er of the Board of Directors of 

National Review. She has served as 

Managing Editor and in-house 

reporter of the magazine since 1959. Previously, she 

was a correspondent for UPI in Paris. 

LOUIS B . SUSMAN 

OF ILLINOIS 

Mr. Susman is Managing Direct or 

of Salomon Bro thers Inc., and is 

head of Sa lomo n Bro thers Co rporate Finance and In vestme n t 

Ban kin g office in Chicago, respo ns ible for the 

Midwest. He was a Director of the Center of National 

Policy in Washington, D.C. and is a member of 

numerous corporate and philanthropic boards. 

WILLIAM J . HYBL 

OF COLORADO 

Mr. Hybl is Chairman and Chief 

Execu tive Officer of El Pomar 

Foundation, Colorado Springs. The 

Foundation supports act ivities in 

education, health care, environmental affairs, human 

services, and the arts. He is also ViceChairman of the 

Boa rd of Directors of the Broadm oor Hotel in 

Colorado Springs. 

RICHARD B . STONE
 

OF WASHINGTON , D.C .
 

Mr. Stone is Vice Chairman of the 

Board of Directors of the Capital 

Bank NAof Washington and Capital 

Bank of California. He was United 

States Senator from Florida, 1975-80, and wa s a 

Pre sidential Special Envoy for Central American 

Affairs and Ambassador-at-Large. 

7 
---

FINDINGS 

•	 International broadcasting, educational 

exchanges, and U.S. embassy public affairs activities are core components of a global public diplomacy mission that remains essential to U.S. interests abroad. 

The Commission commends President Bush, the 

United States Information Agency, and the Inter­

agency Working Group for their effective use of 

public diplomacy in the Persian Gulfcrisis. 

•	 The Commission finds a historic pattern of insuffi­

cient commitment to public diplomacy at the 

highest levels of the Executive Branch. Attention to 

public diplomacy has been episodic, crisis-related, 

and tied largely to communication of high profile 

policies. Persian Gulf public diplomacy was an 

exception. 

The United States underinvests in international 

information and educational exchange programs. 

A six-year decline in USIA's budget, in real terms, 

has weakened basic programs and limited the 

Agency's ability to pursue unprecedented opportunities. 

Budget earmarks and insufficient long-term planning have adversely affected the quality of USIA's 

program and resource management, causing disproportionate cuts in valuable "unprotected" programs. 

The United States has a fundamental stake in the 

democratic revolutions taking place worldwide. 

Ideas and values are as important to their success 

as economic assistance. 

•	 Public diplomacy has a crucial role in accelerating 

political and economic reforms by communicating democratic ideas and information about market economies. 

•	 Public diplomacy is necessary in "informat

rich" societies, where the sources and purpose

information are not always clear and the sh

quantity of news can distort and confuse. 

•	 USIA's opinion and media studies in East

Europe and the Soviet Union are unique, and p

vide remarkable insights into the changing sh

of the Communist world. The Commission reg

cuts in funds for worldwide public opini

research . 

•	 A global U.S. Government radio and televis

broadcasting capability will remain a necess

instrument of American foreign policy. 

• VOAfaces declining shortwave listenership a

stiff competition from domestic media in East

Europe and other parts of the world. Diversif

signal delivery systems, including programs tra

mitted by satellite to foreign stations, have help

offset this decline and multiplyVOA's audience

•	 Direct shortwave and medium wave broadcast

willbe needed for some time to come in the Sov

Union, China, Africa, and the Middle East. 

•	 Budget reductions and the cost of progra

required for competitive broadcasting in op

media environments make it impossible to ke

44 high-quality VOA language services on the 

Continuous evaluation of language prioritie

needed. 

USIA's satellite system and network of dish ante

nas at 216 locations worldwide is a significant b

still underutilized communications achievemen

• The Commission finds that TVMarti at presen

not cost-effective when compared with other pu

lic diplomacy programs of proven value. 

USIA's partnership with private sector organiz

tions to carry out international educational, c

tural, and professional exchanges has produc

fruitful results in public diplomacy. Few expe

ences have more profound impact than person

encounters between Americans and the people 

other countries. 

U.S. interests are best served by keeping Americ

international broadcasting, public affairs, a

educational exchange programs within the Unit

States Information Agency. 

8 
RECOMMENDATIONS 

•	 The President, the Secretary of State, and the 

National Security Advisor should make clear that 

public diplomacy is a strategic component of 

United States foreign policy and ensure it is treated and funded accordingly. 

• The United States must invest, at a minimum, an 

additional $50 to $100 million annually in public 

diplomacy operations. 

• A Presidential directive is needed reaffirming that 

the Director of USIA serves as statutory advisor to 

the President and the National Security Council on 

public diplomacy and foreign public opinion. 

The National Security Council should establish a 

permanent public diplomacy coordinating mechanism and assign a senior officer with full-time 

public diplomacy responsibilities. 

Major policy decisions should take into account 

USIA's assessments of foreign public opinion.The 

Department of State should assign a senior public 

diplomacy advisor to the Deputy Secretary. and 

designate a Depu ty Assistant Secretary for public 

diplomacy in the regional and functional bureaus. 

USIAshould implement a long-term plan to guide 

op erations for the next three to five years. The 

Agency should institutionalize a strategic planning 

process grounded in continuing examination of 

goals and priorities, and capable of responding 

quickly to changing circumstances. 

PUBI.IC DIPI.OMACY IN THI 19905 

•	 USIA, the Agency for International Development

and the National Endowment for Democracy 

should delineate democracy-building responsibil

ities in inter-agency Memoranda of Understand ­

ing. U.S. democracy-building programs require 

enhanced coordination, identification of what 

each agency does best, and additional resources 

concentrated in agencies with experience and 

extensive in-country contacts. 

•	 USIAshould move quickly to expand program 

operations in the Soviet republics. Planning 

should be based on program objectives and priorities, and asse ssment of the appropriate mix of 

informational and educational exchange programs. 

• The impact of "real-time" communicaPUBLIC DIPLOMACY DOES 

tion and round-the-clock news coverNOT NEED age requires USIA to rethink some of its A "'EW MISSION 

field operations. 

OR A MAJOR International broadcasting should continue to support foreign poli cy goals 

REORGANIZATION 

and remain an integral part of the public diplomacy mission of the Un ited OOES MEED ADDITIONAL 

States. 

RESOURCES. STRATEGIC To promote efficiencyand avoid redundancy, U.S. radio and television broad­ PLANNING. INTER-AGENCY 

casting capabilities should be consoli ­

dated. Plans should be made to phase COORDINATION, 

out some Radio Free Europe language 

CONTINUOUS services consistent with the achievement of their goals. 

ASSESSMENT OF 

•	 The Fulbright scholarship program 

remains the flagship of American edu ­ PRIORITIES. 

cational exchanges and deserves generCONSOLIDATION OF SOME	 ous funding. The program requires 

more support from those "feede r ser ­

ASSETS. AND SUSTAINED vices" - student advising, English language training, embassy staff assistance 

COMMITMENT BY - that have been adversely affected by 

budget cuts. AMERICA'S LEADERS. 

USIA sho uld ad d ress the strategic 

importance of libraries and cultural 

centers, identify their primary audi ­

en ces, and define the Agency's future 

commitment to them. 

9 
he U.S. Advisory Commission 

on Public Diplomacy, now in its 43rd year, was created by Congress to provide broad , bipartisan oversight 

of the international broadcasting, public affairs, and 

educational exchange activities of the United States. 

The Commission is required by law to assess and 

make recommendations on the policies and programs of the United States Information Agenc y. 

Through reports to the Congress, the President, the 

Secretary of State, the Director of USIA, and the public at home and abroad, the Commission seeks to 

improve public diplomacy programs and develop 

understanding and support for them. 

The Commission's seven members are appointed 

by the President with the advice and consent of the 

Senate. All are private citizens who volunteer their 

services in the conviction that public diplomacy is 

indispensable to the national interest. 

Throughout its history, some 65 Americans from 

both political parties have served on the 

Commission. Selected from backgrounds in journalism, education, law, business, labor, the arts, public 

relations, and other professions, Commission members have sought to provide responsible oversight 

and develop confidence in the value of public diplomacy. 

STATUTORY AUTHORITY 

wo predecessor advisory commissions were established to represent the public 

interest by the United States Information and 

Educational Exchange Actof 1948.They were merged 

and given additional responsibilities in 1977. 

In subsequent legislation, the Commission 

became known as the United States Advisory 

Commission on Public Diplomacy. 

In 1990,Congress consolidated the Commission's 

statutory authority, and reaffirmed its bipartisan 

character and the fixed terms of its members (P.L. 

101-246). For more than four decades the 

Commission's effectiveness as a Presidential advisory 

body has depended on its independence, continuity, 

genuine bipartisanship, and broad professional composition. The Commission deeply appreciates the 

efforts of those members in the House and Senate 

who were instrumental in bringing about this 

renewed expression of Congressional intent. 

COMMISSION ACTIVITI ES 

he Commission meets monthly 

with USIA's Director and senior Agency officials. It 

consults regularly with members of Congress and 

their staffs, senior foreign affairs officials in the 

ExecutiveBranch, and public diplomacy's partners in 

the private sector. The Commission testifies before 

USIA's Congressional oversight committees, holds 

occasional public hearings, and publishes annual 

and special reports. 

Commission visits to U.S. missions abroad, many 

of which are financed privately, provide an indispensable firsthand look at how public diplomacy is 

carried out in the field. Through meetings with U.S. 

Ambassadors, USIA's American and foreign national 

staffs, and ho st country opinion leaders, the 

Commission derives useful comparative insights and 

informed understanding of USIA's overseas programs. 

10 

• 
PUBL.IC DIPL.OMACY IN THE: 19905 

The Commission's role is advisory only. It is not 

an investigative body, nor is it directly involved in 

managing USIA's programs or directing its internal 

affairs. 

Recent Commission activities include: 

• Aspecial report on United States Public Diplomacy 

in China, December, 1989. 

•	 A public hearing on opportunities in Eastern 

Europe with senior officials from the Department 

of State, the Department of Defense, the U.S. 

Information Agency, the National Endowment for 

Democracy, and the private sector, January, 1990. 

A special report on Public Diplomacy in a New 

Europe, May, 1990. 

Testimony before the House Subcommittee on 

International Operations in oversight hearings on 

"International Exchange Programs in the 1990s 

and Their Role in Public Diplomacy," August, 

1990. 

Testimony before the House Subcommittee on 

International Operations on USIA's authorization 

request for FY1992,March, 1991. 

USIA's professionals at home and abroad have 

assisted the Commission greatly in carrying out its 

responsibilities. Their views and the information they 

provide contributed immeasurably to the findings in 

this report. Public diplomacy depends on the efforts 

of hundreds of men and women who serve their 

country, often under conditions of great hardship 

and personal risk. They are performing vital and difficult work, and we hold them in high esteem. 

The findings and recommendations in this report 

are off ered in the hope that Congress and those 

charged with the conduct of public diplomacy will 

benefit from them. As private citizens, we believe 

oversight and evaluation can contribute to sound 

public diplomacy, and to better understanding by the 

American people of its necessity and importance. 

During the period covered by this report, the 

Commission met with elected officials, senior officials 

at the u.s. Information Agency in Washington, and 

overseas with American Ambassadors and USIAPublic 

Affairs Officersand their staffs. 

The Commission met with VicePresident Dan Quayle; 

Congressman Dante Fascell (D-FL); Senator Jesse Helms 

(R-NC); Senator Paul Simon (D-ILl; Congresswoman 

Olympia Snowe (R-ME); Congressman Larry Smith (DFL); Edward J. Derwinski, Secretary of Veterans Affairs; 

General Brent Scowcroft, Assistant to the President for 

National Security Affairs; Henry Catto, Director, U.S. 

Information Agency; Bruce S. Gelb, former Director, U.S. 

Information Agency; Robert Gates, Assistant to the 

President and Deputy for National Security Affairs; 

Robert B1ackwill, Special Assistant to the President for 

European and SovietAffairs; Carnes Lord.Assistant to the 

Vice President for National SecurityAffairs; David Miller, 

Special Assistant to the President for National Security 

Affairs; and Nancy Bearg Dyke, Director, International 

Programs & Public Diplomacy, National SecurityCouncil. 

The Commission also met with Lawrence 

Eagleburger, Deputy Secretary of State; Raymond G.H. 

Seitz, Assistant Secretary of State for European Affairs; 

Richard Solomon, Assistant Secretary of State for East 

Asian and Pacific Affairs; Ivan Selin, Under Secretary of 

State for Management; Mark Edelman, Deputy 

Administrator, U.S. Agency for International 

Development; Dr. Charles Dunn, Chairman, J. William 

Fulbright Foreign Scholarship Board; Richard Deasy, 

Chairman, Liaison Group for International Educational 

Exchange; William Woessner, Chairman, International 

Exchange Association; Dr. Richard T. Arndt, President, 

Fulbright Alumni Association;Ambassador Robert Barry, 

Special Adviser for Eastern Europe and Assistant to the 

Deputy Secretary ofState;Ambassador Max Kampelman; 

Jock Covey, Principal Deputy Assistant Secretary for Near 

Eastern and South Asian Affairs, Department of State; 

Paul Wolfowitz, Under Secretary of Defense for Policy; 

Ambassador Frank Shakespeare; E. Eugene PeU, 

President. RFE/RL; Senator William Brock, Chairman, 

National Endowment for Democracy; Carl Gershman, 

President, National Endowment for Democracy; and 

Stuart Loory, Vice President and Editor-in-Chief, CNN 

World Report. 

11 
LESSONS FROM THE
 

PERSIAN GULF CRISIS
 

The Commission commends President Bush, 

the U.S.Information Agency, and the Inter-agency 

Working Group for their effective use of public 

diplomacy in the Persian Gulf crisis. 

The Gulf crisis demonstrated anew the need for 

vital and flexible worldwide public diplomacy 

capabilities. 

USIA'sofficers in Washington and the field 

acted with skill and dedication under extraordinary circumstances. 

Clear policy statements by the President and 

other U.S. officials at the highest levels had greater 

impact abroad than any other public diplomacy 

initiative. The Commission recommends that 

senior policymakers take more time for Worldnet 

dialogues, VOA interviews, and press briefings at 

USIA'sforeign press centers. 

The impact of "real-time" communication and 

round-the-clock news coverage require USIAto 

rethink some of its field operations. 

• 12 

MISSION 

• International broadcasting, educational 

exchanges, and U.S. embassy public affairs activities are core components ofa global public diplomacy mission that remains essential to U.S. interests abroad. 

• American interests are best served by keeping 

international broadcasting, public affairs, and educational exchange programs within the United 

States Information Agency. 

RESOURCES 

The United States underinvests in international 

information and educational exchange programs. 

Asix-year decline in USIA's budget, in real terms, 

has weakened basic programs and limited the 

Agency's ability to pursue unprecedented opportunities. 

• The United States must invest, at a minimum, 

an additional $50 to $100 million annually in public diplomacy operations. 

• Budget earmarks and insufficient long-term 

planning have adversely affected the quality of 

USIA'sprogram and resource management, causing disproportionate cuts in valuable "unprotected" programs. 

Public diplomacy is necessary in "information 

rich" societies, where the sources and purposes of 

information are not always clear and the sheer 

quantity of news can distort and confuse. 

• USIAshould implement a long-term plan to 

guide operations for the next three to five years. 

The Agency should institutionalize a strategic planning process grounded in continuing examination 

of goals and priorities, and capable of responding 

quickly to changing circums tances. 
I 90S 

STRATEGY 

The Commission finds a historic pattern of insufficient commitment to public diplomacy at the highest levelsin the Executive Branch. Attention to public diplomacy has been episodic, crisis-related, and 

tied largely to the explanation of high profile policies. Effectivepublic diplomacy in the Persian Gulf 

crisis was an exception. 

The President, the Secretary of State, the 

National SecurityAdvisor, and the Director of USIA 

should make clear that public diplomacy is a 

strategic component offoreign policy. 

APresidential directive is needed reaffirming 

that the Director of USIAserves as statutory advisor to the President and the National Security 

Council on public diplomacy and foreign public 

opinion. 

• The National Security Council should establish a 

permanent public diplomacy coordinating mechanism and designate a senior officer with fuII- time 

public diplomacy responsibilities. 

Major policy decisions should take into account 

USIA'sassessments offoreign public opinion. The 

Department of State should assign a senior public 

diplomacy advisor to the DeputySecretary and 

designate a DeputyAssistant Secretary for public 

diplomacy in regional and functional bureaus. 

RESEARCH 

• The Commission regrets funding for public 

opinion research, media studies, and program 

evaluation has been cut at a time when needs and 

opportunities have never been greater. 

• USIA'sopinion and media studies in Eastern 

Europe and the Soviet Union are unique, and provide remarkable insights into the changing shape 

ofthe Communist world. They deserve greater 

attention from senior officials throughout the foreign affairs community. 

• USIAhas not adopted past Commission recommendations to prepare an Agency-wide program 

evaluation strategy, to increase the percentage of 

funds for media and program studies, and to foster 

a climate that encourages widespread use of 

research findings by USIAmanagers. 

Kuwait's Ambassador to the United States Saud Nasir Al-Sabab and Defense Department 

Under Secretaryfor Policy Pard WolJowitz discuss Operation Desert Storm withjournalists 

in Jakarta, Bangkok, and Singapore on USIA's satellite television network. 

13 
I .. UBLIC DIPLOMACY IN THE '9905 

u.s. Ambassador Edward Gnehm and 

USIA Public Affairs Officer James 

Callahan preparefor a press briefing in 

liberated Kuwait. 

LESSONS FROM THE
 

PERSIAN GULF CRISIS
 

USIA played a major role in the 

Persian Gulf crisis. The Agency's activities were an 

important adjunct to u .S. diplomatic and military 

operations, and they will be essential to future u.S. 

relations in the region and elsewhere. The 

Commission commends President Bush, USIA, and 

the members of the Inter-agency Working Group on 

Iraq Public Diplomacy for their effective use of public 

diplomacy throughout the crisis. 

Iraq followed its invasion of Kuwait with a propaganda campaign intended to split the U.S.-led coalition through appeals to Arab nationalism, Muslim solidarity, Palestinian 

grievances, and other latent but powerful regional feelings. The United States 

established an Inter-agency Working 

Group to plan a public diplomacy 

strategy, to develop themes supportive 

of U.S. policies, to counter misperceptions and Iraqi disinforrnation, and to 

coordinate media and other public 

diplomacy activities. 

In both planning and implementation, USIA had the most to contribute. 

Daily reports from field officers, opinion studies prepared by USIA's 

Research Office in Washington, and 

analysis by officers at home and abroad 

provided most of the expertise. The 

Commission is pleased the Agencywas 

a full·partner "at the table" in developing the Gulf public diplomacy strategy 

and in carrying it out. 

Worldwide attention to events in the 

Gulf generated unprecedented interest 

by foreign governments, media. and general audiences in USIA's print and broadcast operations. 

Voice of America English, Arabic, and Farsi broadcasts were greatly expanded, and rebroadcast of 

.4 
PUIILIC DIPLOMACY I N THE 19 .05 

VOA's coverage by foreign radio stations increased 

dramatically. USIA'sWorldnet satellite television network increased its program placement on foreign stations. Policy-related items were carried electronically 

in Arabic and other languages on the Agency's 

Wireless File news service. In stepped-up appearances on USIA's media and in briefings at its Foreign 

Press Centers in Washington and New York, U.S. officials explained coalition policies and refuted Iraqi 

disinformation. 

At USIA'sposts worldwide, Gulf public diplomacy 

was a high priority. Language-qualified officers, with 

broad contacts and knowledge of their host countries, articulated U.S. policies, countered rnisperceptions, arranged press briefings and other public 

affairs programs, reported on opinion trends, and 

assessed public diplomacy themes and activities. In 

the Middle East, USIA officers communicated effectively with Ministries of Information and provided 

public affairs assistance to the U.S. Central 

Command. 

USIA officers in Washington and abroad acted 

with skilland dedication in the Persian Gulfcrisis. We 

salute them. The Commission especially commends 

William Rugh, USIA's Director of Near East and 

South Asian Affairs, for his informed professionalism 

and wise counsel on Gulf public diplomacy at the 

highest levels in Congress and the Executive Branch. 

Considered assessment of the role of public diplomacy in the Persian Gulf crisis will take time. 

However, we can draw several early lessons . 

First, public diplomacy isa necessarycomplement 

to traditionalstatecraft and militaryforce. The crisis 

brought home to millions of television viewers worldwide the reality that governments, democracies and 

dictatorships alike, must compete for the attention 

and support of citizens in other countries iftheir policies and actions are to succeed. 

Second, the crisis demonstrated anew that the 

U.S. must maintain vital and flexible public diplomacy capabilities. Many policyrnakers "discovered" 

in the Gulf crisis the need for a public diplomacy 

strategy, an inter-agency coordinating mechanism to 

implement it, and the value of focused, adequatelyMANY POLICY MAKERS 

"DISCOVERED" IN THE 

GULF CRISIS THE NEED 

FOR A PUBLIC DIPLOMACY 

STRATEGY, AN INTERAGENCY COORDINATING 

MECHANISM TO 

IMPLEMENT IT, AND THE 

VALUE OF FOCUSED. 

ADEQUATELY-FUNDED 

INTERNATIONAL 

BROADCASTING AND 

PUBLIC AFFAIRS 

PROGRAMS. 

funded international broadcasting and 

public affairs programs. This lesson 

applies to regional conflicts, democracybuilding, trade relations, global environmental concerns, international counternarcotics efforts, and a host of other U.S

interests. 

Third, communication intended to 

persuade often owes a great deal to educational exchanges, International 

Visitors, English teaching, books, 

libraries, and other long-term programs. 

These activities, widely appreciated for 

reasons that go beyond international politics, contribute to understanding and to 

shaping fundamental attitudes that put 

U.S. policies, institutions, and leadership 

in perspective. 

Fourth, policy statements by the 

President and U.S. officialsat the highest 

levels had greater impact abroad than 

any other public diplomacy initiative. 

Senior policymakers need to take more 

time early in a crisis for VOA interviews, 

Worldnet dialogues, and briefings at 

USIA'sForeign Press Centers. 

Public diplomacy in the Gulf crisis was effective 

largely because it was reasoned, imaginative, 

restrained, and low key. Policies were stated clearly 

and supported by the American people. The temptation to preach and overreact was avoided. And on 

many issues, coalition partners took the lead where 

an "American" approach would have been less 

credible. 

15 
I PUBL.IC; DIPL.OMACY IN T 05 

Finally, policymakers and public diplomacy professionals developed greater appreciation of the 

impact of "real-time" communications and roundthe-clock news coverage. When the President and the 

world learn simultaneously about an Iraqi missile 

attack on Israel, public opinion becomes not just one 

eleme nt in policyrnaking, but is instantly central to it. 

This does not mean public opinion should determin e policy; it does mean it must be taken fully and 

immediately into account as policies and actions are 

decided. For USIA it means rethinking the role of 

some of its field operations. Asone thoughtful assessment from USISLagos put it: "In this new age, we will 

n eed a very different kind of support from 

Washington . . . We see our role as placing fast breaking news in a proper context, interpreting it and providing authoritative, credible background instead of 

being a purveyor of that news or At a USIA·sponsored conference in Santiago, 

even officialtexts." u.s. Solicitor General Kenneth Starr and other 

The war in the Gulf was also a American speakers discuss constitutional law 

with Chilean scholars andjurists. 

war of ideas. If ideas are an 

essential component of policy 

and strategy in wartime, they are 

even more essential to the definition and articulation of the world 

order that follows. 

MISSION 

l i diplomacy - th e op en 

t-:e an of ideas and information ­

is an inherent characteristic of democratic societies. 

Its global mission is central to American foreign policy. And it remains indispensable to America's interests, ideals, and leadership role in the world. 

Identification of USIA with the Cold War persists 

in some circles, and there are those who would now 

dismiss the Agency as irrelevant or seek to redefine its 

basic mission . We think either would be a mistake. 

USIA'smission does not depend on transitory events, 

on U.S. interests in a few countries, or on a single 

goal, however valid, such as democracy-building or 

anti -communism. 

International broadcasting, educational exchanges, and most USIA activities abroad evolved as 

the United States became a world power and as communications technology advanced. They have 

become interrelated parts of a unified, coher ent 

effort to communicate with the people and governments of other countries. 

16 
PUBLIC DIPLOMACY IN THE 19905 

Organization charts have changed, and statements of mission have varied in emphasis. But the 

core elements of public diplomacy's mission have 

remained constant: 

To explain and advocate U.S.policies in terms that 

are credible and meaningful in foreign cultures; 

To provide information about the United States, its 

values, institutions, and culture; 

To build mutual understanding and lasting relationships through the exchange of people and 

ideas; and 

To advise U.S. policymakers on foreign public 

opinion and its implications for proposed policies. 

Public diplomacy did not begin with the Berlin 

wall, and the need for it did not end when the wall 

came down. USIAhas a permanent mission, relevant 

all international contingencies. What we said last 

:earapplies with even greater force now: 

"To compete successfully as a nation, we must
 

communicate persuasively. We mustbe subtle
 

and creative. We must understand othercul­


tures, and they must understand ours.
 

"Trade, narcotics, commercial opportunities, 

nuclear nonproliferation, the environment, new 

regional groupings, changing technologies, and 

board

a 

mass

The

host 

ability 

audiences

of

of

other

political 

to communicate 

issues 

is a

and 

strategic

comprise 

economic

with 

asset

a complex 

challenges. 

elite 

in [such}a 

and 

chessworld ...."* 

PUBLIC DIPLOMACY The mission of public diplomacy can 

best be achieved by keeping the manageDID NOT BEGIN WITH ment of international information programs, educational exchanges, and radio THE BERLIN WALL. AND 

and television broadcasting within the 

THE NEED FOR IT DID NOT U.S. Information Agency. The purposes 

and well-documented interdependence 

END WHEN THE WALL of these activities overseas leads 

inevitably to their collocation here at C ME DOWN. USIA HAS home. 

To cite only a few examples: educaA PERMANENT MISSION 

tional exchanges, cultural presentations, 

and International Visitor programs cre­ RELEVANT TO ALL 

ate an atmosphere in which even diffiINTERNATIONAL	 cult policy issues can be addressed more 

constructively. As VOA and Worldnet 

CONTINGENCIES. place more programs via satellite on foreign stations and networks, the role of 

USIA's posts in international broadcasting increases. And USIA's broadcasters 

in Washington supplement field operations with their "how-to" features on 

democracy-building and English teaching programs. 

Many Chiefs of Mission and public 

diplomacy professionals have observed to 

this Commission that USIA's programs 

defy easy categorization along media or informational or cultural lines. They are and should be part of a 

coherent, integrated communications process with 

the people and governments of other countries. 

Public diplomacy does not need a new mission or 

a major reorganization. It does need additional 

resources, strategic planning, inter-agency coordination, continuous assessment of priorities. consolidation of some assets, and sustained commitment by 

America's leaders. 

· U.S. Advisory Commission on Publi c Diplomacy, "Public 

Diplomacy in a New Europe." May, 1990, pp. 6-7. 

17 
i PUBL.IC; DIPLOMAC;Y IN TH£ 19905 

THE PRESIDENT'S FY 1992 REQUEST
 

FOR PUBLIC DIPLOMACY
 

$1.3 Billion 

Board for International 

Broadcasting?" 17% National 

Endowme nt for 

Democracy 2% East -West 

Ce r2

Broadcasting" 2 I % Exchanges 16% 

Other USIA' 

12% 

1 

VOA 

Commission 1 % Modernization 

8 % 

AsiaFoundation 

&Japan-US 

Friendship 

'Includes adm inistrative support for USIA's overseas missions, 

Agency direction , Research, and P Bureau programs 

"Includes Voice of America. USIA/TV, Radio Marti, and TV Marti 

" 'Radio Free Europe and Radio Liber ry 

RESOURCES 

t e United States underinvests 

international information and educational exchan

programs. USIA's budget request of$1,059 million f

FY1992,of which $908 million goes to Agency oper

tions, is not adequate. It is a compromise forced 

Federal budget realities. In real dollar terms, it co

tinue s a regrettable six-year decline in USIA's budg

that severely limits the Agency's ability to mainta

basic programs and take advantage of unpreceden

ed opportunities. 

The Commission believes America's public dipl

macy requires another $50 to $100 million annuall

World realities have undergone a sea change sin

the President submitted his budget last January, l

alone since it was put together at USIA and at th

Officeof Management and Budget 

Funding offsets for needed public diplomac

increases will not be found elsewhere in the intern

tional affairs budget. They must come from a reeva

USIA'S OPERATING EXPENSES* 

$439.4 Million $815.9 Million 

($591.4 million in cons tant 1981dollarsl 

Administrative Support 7 .2 % 

Admi nistrativeS upport 7;2% AgencyDirection 7 .5 % 

Research 0.9% 

Overseas Programs 6.7% Programs 3 .8% Missions 32.9% 

VOA 21.9% 

Overseas 

Missions 29.9% 

Agency Direcrion 6 .2% 

Research 0 .5 % ----£' 

1V Marti 1.9% 

TV/FUm 2.0% 1V/FUm 3.6% Radio Marti 1.8%

'Excludes VOA's construction budget and grants for the National Endowm ent for Democracy and the East-West Center. 

18 
•• •• ••

••••••••••••••••••• 

•••••••••••••••••••••••••••• 

•••••••••••••• 

•• •• •• ••••

PUBLIC DIPLOMI\C;Y IN THE 1990S I 

uation of national budget priorities, which the 

Administration should lead. 

USIA's 1992 request does permit some program 

increases in Eastern Europe and the Middle East, but 

at the expense of mandated cuts, primarily in 

Western Europe. The Commiss ion regrets this. Public 

diplomacy programs are greatly needed in so-called 

"information rich" societies, where the sources and 

purposes of information are not always clear and 

where the sheer quantity of "news" can distort and 

confuse. 

Commercial media operate to make profits and 

cater to general audiences. USIA's programs are taiI red to reach policymakers, opinion leaders, and 

ucated elites. A Worldnet teleconference on GATT 

with members of Congress. Administration officials. 

and journalists in Tokyo an d London, for example, 

willreceive focus and placement in ways much more 

helpful to the United States than by leaving coverage 

ofthe public debate entirely to Japan's NHK network 

and Britain's SkyTV. 

USIA'sFY 1991 budget is $1,006.2 million, reflecti g a modest increase over the President's request 

last year and strong bip artisan Congressional support. Nevertheless, inflation and exchange rate losses 

"ill necessitate reductions of approxima tely $32.5 

million in the Agency's $851 million operating bud get 

lh year, which rem ains smaller in real terms than 

(WO decades ago. In the current budget environment: 

USIA's field staffing remains at the lowest level in 

the Agency's history. 

USIAmu st close posts and other installations, 12 

nextyear in Western Europe alone. 

USIA's Program Bureau will sustain a 29 percent 

budget cut with substan tial reductions in speakers, the Wifeless File, publications, and exhibits. 

In the past five yea rs, annual Fulbri ght scholarships have dropped more than 30 perc ent, from 

5,795 to 3,971. 

Funding shortfalls are forcing delays in VON s 

"streamlined" modernization plan. 

•	 VOA has cut weekly airtime for Creole, Dari , 

Pashto , French to Africa, Korean, and Russian, to 

expand elsewhere, primarily in Arabic, Farsi, and 

English to the Middle East. 

The Commission is concerned also that earm arks, 

COMPARISION OF USIA'S OPERATING
 

EXPENSES ON A CONSTANT DOLLAR BASIS*
 

Dollars in Millions 

AC;TUAL DOLLARS 

800 

•

•

•

••••••••••.­

600 

•••

• 

400 

C;ONSTANT DOLLARS 200 ........•••
 

o	 It t I I t t I I t i t t
 

FY1967 1969 1971 1973 1975 1977 1979 1981 1983 1985 1987 1989 1991
 

"Excludes VONs construction bud get, Broadcasting to Cuba, and gran ts for the National 

Endowm ent for Democracy and the East -West Cen ter. 

HISTORY OF USIA POSITIONS 

BY MAJOR ACTIVITY 

Number of Positions 

12,000 

TOTAL 9,000 

=-. 

•• OVERSEAS MISSIONS 

6,000 •••.,.... 

"" 

3,000 

_.,... -..•- . I '	 

'- / ­

VOIC;E OF AMERIC;A*	 USiA HEADQUARTERS 

o	 I I t i t I t I I I I I t 

FY1967 1969 1971 1973 1975 1977 1979 1981 1983 1985 1987 1989 1991 

"Includes staffing for Radio Marti (beginning 1984) an d TVMarti (beginni ng 1989). 

19 
I PUBLIC OIPLO ACY IN THE l!.lltO 

separate appropriations, and insufficient long-term 

planning - in a period of eroding annual budgets ­

have affected the quality of USIA's program and 

resource management. As a result, valuable "unprotected" activities funded in USIA's Salaries & 

Expenses account - books, libraries, speakers, youth 

exchanges, training, student counseling, foreign 

press centers, American studies, opinion research, 

and program evaluation - have taken deep cuts. 

We understand the reasoning behind earmarks, 

but often they address narrow headline issues. They 

inhibit the nation's ability to respond quickly to crises 

and new challenges. 

For its part, USIA needs to do more to ensure that, 

whatever the level of appropriations, resource decisions are based on priorities linked to well-defined 

public diplomacy objectives, rigorous program evaluation, and comparative assessments of program 

value. USIA should adopt a long-term plan to guide 

operations for the next three to five years. It should 

institutionalize a strategic planning process grounded in continuing examination of public diplomacy 

goals and priorities, and capable of responding 

quickly to changing circumstances. 

President Bush and 

Egyptian President 

Mubarak in a briefing 

on Operation Desert 

Shield. Statements by 

the President are 

essential elements of 

public diplomacy. 

They are carried 

worldwide by USIA's 

Voice ofAmerica 

broadcasts, Worldnet 

television, and 

Wireless File news service. (Photo by David 

Valdez) 

STRATEGY 

t he strategic planning and interagency coordination that characterized the effective 

use of public diplomacy in the Persian Gulf crisis 

regrettably was an exception to the norm. 

Historically, USIA has been too far removed from 

the policy planning process to play an early, consistent, and influential advisory role. In the years immediately prior to the Gulf crisis, the National Security 

Council and the Department of State did little to 

show they fully appreciated the value of public 

diplomacy in implementing policies and in assess ­

ing the public affairs consequences of proposed 

policies. 

The case for making public diplomacy central to 

planning and implementing American foreign policy is incontrovertible. Foreign public opinion can 

significantly affect the success or failure of policies. 

News and information that can influence opinions 

are transmitted instantly to elite and mass audiences 

worldwide. It therefore is essential to include assessments of public opinion - and significant social, 

cultural, and religious trends - in the development 

of proposed policies. 

The Commission urges the Administration to 

consider the following: 

Commitment from the top. The President, the 

Secretary of State, the National Security Advisor, and 

the Director of USIA should make clear that public 

diplomacy is a strategic component of foreign policy 

and ensure it is treated and funded accordingly. The 

Commission recommends a Presidential directive 

reaffirming that the USIA Director is a statutory advisor to the President and the National Security 

Council on matters relating to foreign public opinion 

and the conduct of public diplomacy. USIA's 

Director should participate in National Security 

Council deliberations on a regular basis. 

Inter-agency coordination. Using the Interagency Working Group on Iraq Public Diplomacy as 

a model, the National Security Council should estab20 
PUBLIC DIPLOMACY IN THE 1990S I 

lish a permanent public diplomacy coordinating 

mechanism and designate a senior officer with fulltime public diplomacy responsibilities. Senior officers with public diplomacy experience should be 

assigned also to the Deputy Secretary of State, the 

Under Secretary of Defense for Policy, and at appropriate levels in the Agency for International 

Development, and the Arms Control and Disarmament Agency. 

USIA's assessments of foreign opinion, media 

trends, and public diplomacy impact should be 

required whenever policy options are considered. To 

accomplish this, USIA must have access to significant 

NSCpolicy papers. 

Similarly, public diplomacy action plans and 

USIA's views on how policies ought to be communicated should be required in the implementation of 

policies. NSCdecision directivesshould address relevant public diplomacy implications . Major speeches 

and public announcements of foreign policy decisions should be coordinated with USIA 

The Department ofState. Two years ago, the 

Commission was heartened by efforts at a senior 

levelin the Department to integrate public diplomacy more fully into the policy process. These efforts 

were not fruitful, however, and the Commission 

urges they be renewed in the context of the successfuluse of public diplomacy in the Persian Gulfcrisis. 

In addition to a senior public diplomacy advisor to 

the Deputy Secretary, the Commission recommends 

a Deputy Assistant Secretary for public diplomacy be 

designated in each regional and functional bureau. 

Action memoranda from regional bureaus should 

include a separate section on public information policy. Career enhancing inter-agency assignments for 

USIA and State Department officers will encourage 

cooperation and greater awareness of public diplomacy. 

The Commission is aware of concerns that USIA's 

programs may occasionally have been used to influence public opinion in the United States. It is important to remember that public diplomacy takes place 

abroad. To avoid misunderstanding, the term public 

diplomacy should not be used to characterize 

domestic public affairs activities intended to inform 

Americans about their foreign policy. 

Increased.field reporting. In our last report, the 

Commission observed that analytical reporting by 

USIA's field officers can be useful to policymakers. 

The experience in the Persian Gulf bears this out. 

Comprehensive reports from USIA's officers 

informed the deliberations of the Iraq Public 

Diplomacy Task Force and were used in a variety of 

other ways. 

USIA's officers have wide contacts and broad 

knowledge of foreign attitudes and cultures. Their 

reports are essential supplements to the Agency's 

opinion research studies. USIA still does not 

emphasize such reporting, and many officers view it 

as an unnecessary burden. The Commission urges 

the Agency to make clear the importance it attaches 

to reports on key issues. Feedback to posts on their 

value and use will heighten their frequenTHE PRESIDENT. THE cy and quality. 

SECRETARY OF STATE. 

THE NATIONAL 

SECURITY ADVISOR. AND 

THE DIRECTOR OF USIA 

SHOULD MAKE CLEAR 

THAT PUBLIC DIPLOMACY 

IS. STRATEGIC 

COMPONENT OF FOREIGN 

POLIC AND ENSURE IT 15 

TREA ED AND FUNDED 

ACCOROI G 

21 
I PUBLIC DIPLOMACY IN THE 11'905 

RESEARCH 

U SIA'SOffice of Research provides 

support for the Agency's role as principal advisor to 

the President on foreign public opinion. The Office 

reports directly to the USIA Director and conducts 

three kinds of research: (1) surveys and attitudinal 

studies of mass and elite opinion on selected issues, 

(2) evaluations of USIA's programs, including studies 

of VOA and World net program effectiveness and 

audience estimates, and (3) studies of foreign media 

environments. 

Last year, USIA spent approximately $1.5 million 

on research studies. Some 75 opinion surveys were 

commissioned in 38 countries on such issues as the 

Gulfwar, democratization in Eastern Europe, the war 

on drugs, regional and ethnic conflicts, and bilateral 

relations with Japan, Israel, the Philippines, Mexico, 

India, and other countries. 

Commitment to opinion research by policymakers, often pro forma, appears to be changing. The 

Commission welcomes USIA's recent efforts to be 

more assertive in interpreting foreign attitudes and in 

drawing attention to the implications of research 

studies. USIA uses rapid-response polling and flash 

telephone surveys on priority events, such as 

Presidential summits and the Gulf war, tailoring 

research to the needs of policymakers. 

The Commission found particularly impressive a 

comprehensive series of opinion and media studies 

on Eastern Europe and the SovietUnion. These studies are remarkable for their methodological soundness and their insights into the changing shape of the 

Communist world. They proved highly useful in 

inter-agency deliberations on the future of international broadcasting, and they deserve greater attention from senior officials throughout the foreign 

affairscommunity. 

The Commission continues to be concerne

about the lack of adequate funding for public diplo

macy research and insufficient attention to program 

evaluation as a management tool. In times of bud

get shortfalls, research is an easy target. USIA sti

has not adopted Commission recommendations t

prepare an Agency-wide program evaluation strate

gy, to increase the percentage of funds for medi

and program studies, and to foster a climate tha

encourages widespread use of research findings b

USIA managers. 

The USIS London Reference Center handles 10,000 mail inquiries and 20,000 phone reques

each yearfor information about the United States. Operators haue occess to U.S. data bases

22 
EMERGING DEMOCRACIES 

• The United States has a fundamental stake in 

the democratic revolutions taking place worldwide. Ideas and values are as important to their 

success as economic assistance. 

• Public diplomacy has a crucial role in accelerating political and economic reforms by communicating democratic ideas and Information about market 

economies. 

EASTERN EUROPE 

USIA's budgets and staffs in Eastern Europe 

remain at or near Cold War levels. The Agency has 

broad contacts and a long-term commitment to 

democracy-building in the region. Additional 

resources should be allocated without reducing 

needed and underfunded public diplomacy programs elsewhere. 

SOVIET UNION 

USIAshould move quickly to expand program 

perations in the Soviet republics. Planning should 

e based on carefully delineated program objectives and priorities, and assessment of the appropriate mix of informational and educational 

exchan ge programs. 

USIAForeign Service National (FSN)positions 

should be reestablished in the Soviet Union. 

"IELD PROGRAMS J 

CHINA 

Exchanges, international broadcasting, and 

other public diplomacy programs in China are an 

investment in one of the nation's most important 

bilateral relationships. USIAhas wisely maintained 

fundamental institutional arrangements in ways 

that are consistent with American values and 

strategic interests. 

COORDINATION AND FOCUS 

Many federal agencies and private organizations are usefully engaged in democracy-building 

abroad, but inadequate coordination, program 

duplication, and insufficient funds are hampering 

their efforts. 

• USIA,theAgency for International Development, and the National Endowment for 

Democracy should delineate democracy-building 

responsibilities in inter-agency Memoranda of 

Understanding. 

FIELD MANAGEMENT 

• Under current budget constraints, USIAis 

unable to provide sufficient media, language, and 

academic training for its American and foreign 

national employees. 

• The Commission continues to support direct 

appropriations or separately identified funds in the 

Department of State's appropriation for USIA's 

diplomatic security needs. 

• USIAhas made progress in developing telecommunications systems anddatabases for policy, 

program, and administrative purposes. Funding 

and staffshortages, and insufficient officer training 

continue to delay this process. 

NATIONAL ENDOWMENT FOR
 

DEMOCRACY
 

• The National Endowment for Democracy is contributing effectively to democratic change around 

the world. The Commission encourages the 

Endowment to maintain closer contact with its 

major funding sources, USIAand AlD, and with 

Il.S, missions abroad. 

23 
l.. IELD PROGRAMS 

FIELD PROGRAMS 

JI l i diplomacy is carried out by 

Americans and 3,646 foreign 

nationals at U.S. missions around the world. Known 

overseas as the U.S. Information Service (USIS), the 

Agencymaintains 205 posts in 128countries. 

USIA's programs in each country are under the 

direction of a Public Affairs Officer, or PAO, assisted 

by Cultural Affairs and Information Officers.The PAO 

is the principal advisor to the American Ambassador 

on matters relating to the press, education, cultural 

affairs, and local public opinion. PAOs speak for their 

embassies or consulates in media briefings, and they 

seek to develop credibility and substantive personal 

links with opinion leaders in the countries to which 

they are assigned. PAOs administer academic and 

professional exchanges, frequently in cooperation 

with binational commissions. 

USIA's posts use a variety of program tools and 

communication techniques, such as the Wireless 

File, magazines, books, speakers, exhibits, videotapes, VOA broadcasts, Worldnet dialogues, libraries, 

English teaching, and student counseling. Goals and 

program priorities are set forth in each post's annual 

country plan, which is revised as circumstances warrant. 

For example, PAOs in media-saturated societies 

may refine programs to communicate with opinion 

leaders and educated elites on important bilateral 

issues not covered adequately in the mass media. In 

emerging democracies, they may emphasize the 

ideas and structures of democracy and economic 

reform. And in closed, authoritarian countries, PAOs 

may seek to sustain long-term personal and institutional relationships as an investment in the future. 

The Commission has been necessarily selective in 

its discussion of field activities. Each USIA post is 

important, each is unique. Allshare a common challenge: public diplomacy opportunities far outstrip 

available resources. The key to these opportunities is 

here at home. We need to be aware of what is at stake 

and where additional resources can make the most 

difference. 

EMERGING DEMOCRACIES 

t.'evolution of ideas that tran

formed the world during the 1980shas demonstrat

beyond doubt the universal appeal of democra

principles and free market economies. 

Historic breakthroughs in Europe, Asia, Afri

and Latin America bear eloquent testimony not on

to the internal contradictions of flawed political sy

tems, but to the importance of communications a

the value of public diplomacy as a force-for freedo

and democracy. For decades, Western radio broa

casts, educational exchanges, and U.S. embassy pre

and cultural programs brought to million news an

A. Under Secretary ofDefense for Policy Paul 

WolJowitz 

B. Former USIA Director Bruce S. Gelb (center) with 

Deputy Director Eugene P. Kopp (left) andformer 

Agency Counselor Michael Pistor 

C. Ambassador Max Kampelman, former head ofthe 

U.S. delegatio II to the Conference 011 Security and 

Cooperation ill Europe (CSCE) 

D. Deputy Secretary ofState Lawrence Eagleburger 

E.Ambassador Frank Shakespeare.former Director 

ofthe U.S. Information Agency 

F. Senator William Brock (right), former Chairman, 

National Endowmentfor Democracy, alld NED 

President Carl Gershman 

G. The Commission discusses the revolution ofideas 

ill Europe and its impact 011 public diplomacy with 

policymakers and private sector leaders at a hearing 

ill lanuary, /990. 

24 
1" L 

information denied by state-controlled media. and 

built relationships that kept truth and freedom alive. 

Now, these countries need what decades of totalitarian rule did not provide - institution-building 

skills, entrepreneurial know-how, and a finn intellectual foundation in democratic values and human 

rights. 

During the past year, Commission members visited Hungary, Poland, East Germany, Mozambique, 

South Africa, and the Soviet Union. The pace and 

scope of democratic change vary widely, but three 

critical elements are common to all: 

D 

Vital U.S. interests will be enhanced to the extent 

political and economic reforms are successful. 

Ideas and values are as important to their success 

as economic assistance. 

•	 USIA has a crucial role in accelerating these 

reforms by communicating democratic idea'> and 

information about market economies. 

Many federal agencies and private organizations 

are usefully engaged in democracy-building 

abroad, but inadequate coordination, program 

duplication, and insufficient funds are hampering 

their efforts. 

E 

25 
! "-IELO PRO <sRA M S 

EASTERN EUROPE 

t. Commission examined opportunities in Eastern Europe in a public hearing in 

January, 1990, and in a report the following Mayan 

"Public Diplomacy in a New Europe." We believe our 

conclusions remain valid, and we are pleased that 

many of the recommendations are being pursued. 

The events of the past year confirm that transition 

to democracy and free market systems in Eastern 

Europe willbe neither fast nor painless. 

Thus far American initiatives have outdistanced 

coordination and strategic planning. An 

International Media Fund (lMF) was created to support emerging independent electronic and print 

media. The National Endowm ent for Democracy 

(NED)is funding civic and institutional development 

projects. TIle Peace Corps is sending large numbers 

of English teachers. The Agency for International 

Development (AID) is launching a "democracy initiativc," university linkages, and other institution-building activities. The Department of State has sought to 

facilitate inter-agency coordination at the fe

level,and a Citizens DemocracyCorps WdS creat

stimulate private sector involvement and coo

tion. Private organizations are sponsoring youth 

educational exchange programs in increasing n

bers. 

USIA's "Marsh all Plan of Ideas" promise

imaginative public diplomacy strategy for Ea

Europe. But it was not aggressively promoted b

Agency at the outset, and funding enhancemen

the amount national interests require have not 

forthcoming from the Administration. 

USIA has a proven infrastructure and a long-

commitment to nurturing the seeds of democra

the region. Its field staffs have broad contacts 

experience in managing the kinds of programs 

strengthen the intellectual foundations of demo

and free markets. 

In contrast, many new public and private i

tives emphasize training and immediate prac

results, programs that will not flourish unless Ea

European s develop st

Czechoslouak President Vadav Have/visits the
 

VoiceofAmedca. ''You have informed us entrepreneurial and demo

truthfully ofevents around the toorld," he said.
 ic civiccultures. 

Now "you will have to inform lIS about how to USIA'sresources are in

create democracy.... n 

cient to meet democr

building needs. Inflation 

exchange rate losses h

forced the Agency to cut 

on programs worldwide, 

only marginal increase

Eastern Europe. Small U

staffs report many m

requests for American ex

tise than they can han

Swamped with prog

opportunities of their o

they often are called upo

help other agencies carry 

similar programs. 

With staffs still at or 

Cold War levels, USIA L<; s

ing eleven new position

Eastem Europe and the S

Union. This is being acc

26 
I
 

plished by transferring positions from Western USIA, however, is still constrained, but this time 

Europe. The Commission believes this is unwise. The with constraints of our own making - budget cuts, 

United States must invest in democracy-building staff shortages, inadequate facilities, and strict securi­

..vithout reducing needed and underfunded informa­ ty measures. To cite just one example: USIA's 

don and educational exchange programs in other American staff in the Soviet Union (there are no forparts of the world. eign national employe es), is about half the size of its 

In 1990, USIAreceived only $3 million from the American staffs in India, Brazil, or Japan. The U.S. 

Support for Eastern European Democracy (SEED) public diplomacy investment is vastly disproportionlegislation. This year, SEED II provided $369 million ate to the Soviet Union's size and importance. 

government-wide. Halfway through the fiscal year, Programs on a free market economy and demoUSIAhad yet to receive its disproportionately low cratic political systems ar e USIA's top priorities. 

allocation of $16.7 million. The Agency's share of Soviet policyrnakers, scholars, and media elites 

SEED II is intended to encourage educational eagerly welcome dialogue on the U.S. economic 

eforrn, citizen networks, books, management and model, the U.S. legal system, federalism, the role of a 

parliamentary training, English teaching, indepen­ free press, the environment, and ethnic issues. 

dent media development, and rule of law activities. Unprecedented opportunities exist for visiting 

But the funds cannot be used to build staff, and experts and U.S. officials to address these and other 

without field personnel, program management is matters on Soviet radio and television. Speakers, 

jeopardized. InternationalVisitors, "how-to" features on the Voice 

ofAmerica, Worldnet dialogues, Fulbright exchanges, 

book translations, and streamlined, low-cost multiSOVIET UNION media exhibits also are essential in achieving these 

objectives. 

As Congress and the Administration 

erhaps no political and economic R OECAD . Co MUNI look to the future , the Commission sugstruggle is more momentous than the gests the following. 

one now occurring in the Soviet Union. There is REGI ES SEVERE Y Increased and concentrated 

extraordinary ferment among emerging political par­ resources. Additional public diplomacy 

RESTRICTED USIA'S des, trade unions, civic groups , independent media, resources are justified in the Soviet 

and ethnic and nationality groups in the republics. Union.But USIA must take care they are AC:TIVITIES. ODAY . 

The stakes are high and outcomes are far from clear. concentrated and coordinated to achieve 

What is clear is the intense interest throughout R~TRICT ONS ARE GO maximum impact through the appropriSoviet society in market-based economic models, ate mix of information and educational 

and the expanding prospects for a full range of public AND THERE RE HI5TOR C exchange programs. 

diplomacy programs. The U.S. must seize this oppor­ Expanded programming in the 

OPPORTUNITIES FO U A tunity, mindful of the potential for chaos, renewed republics. The Commission welcomes 

repression, and a return to hard-line policies. The the new USIA branch post in Kiev. The 

S'HA CHA G

Commission is concerned, for example, by recent 

o Agency should move quickly to seize proreports of stepped-up covert efforts by the Soviets to gram opportunities in the Baltics and the 

spread disinformation about the United States. republics. 

For decades, Communist regimes severely Cultural Center. A first-class American cultural 

restricted USIA's activities. Accordingly, the Agency center in Moscow should be a high priority. It will 

wisely put most of its program dollars into shortwave foster mutual understanding at many levels, increase 

broadcasting and large traveling exhibits. Today, access to the Soviet people, and greatly facilitate promany restrictions are gone, and there are historic gram operations. The cultural center and USISoperopportunities for USIA to help shape change. 

27 
I FtELD PRCGR 

American texrbooks were displayed at 

the first major U.S. book exhibit in 

East Gennany in the last months of 

the Communist regime . 

ations in the republics should invest heavily in computer links to U.S. data banks. 

Exhibits. Large traveling exhibits, so valuable during the Cold War, are no long er cost-effective. But 

there is an important role for smaller multi-media 

exhibits, especially in cities outside Moscow and 

Leningrad. 

FSN positions. The Com mission recommends 

that USIA's Foreign Service national employee (FSN) 

positions be reestablished in the Soviet Union. 

Program Coordination. The Director's Task Force 

on Soviet Affairs and USIA's Eastern European 

Initiative officehave interim roles in setting priorities 

and bringing about ne eded coordination of public 

diplomacy activities in the Soviet Union and Eastern 

Europe during a period of extr ao rdinary change. 

They should not permanently replace USIA's established policy guidance and post management organizational structures . 

CHINA 

"ighteen months 

sh ortly after th e tragi c ev ent

Tiananmen Square, the Commis

issued a sp ecial report on "Un

States Public Diplomacy in.China." 

concluded that educational exchan

the Voice of America, and other U

programs played a vital role in Chin

modernization. Both China and 

United States had benefited sign

cantly from the se activities, and th

continuation would be in the lo

term interests of each. 

In the wake of the demo cra 

movement, Ch ina sus pen de d 

Fulbright and International Visitor p

grams, jammed the Voice of Americ

influ ential Chinese-language broa

casts, and put a variety of other inf

mation and cultural initiatives on hold. 

The repressive political climate in China has n

prevented resumption of exchanges and other US

programs, although most have not reached lev

that existed p rior to June, 1989. Fulb right a

International Visitor grants are steadily increasi

USIA's remarkably successful China book translati

program flourish ed de spite the crackdown. T

Agency conducted two English teaching worksho

this year, participated in an international film festiv

and contributed to other performing arts programs

Desp ite continued jamming, Voice of Ameri

bro adcasts remain th e mo st powerful, dir ect, a

effective m eans th e United States has to provi

accurate n ews and info rmation to mill ions 

Chinese. VOA broadcasts 19 hours a day to China 

11 hours in Mandarin, 1 hour in Cantonese, and 

hours in English. 

. These broadcasts should be one of public dipl

28 
FIE L. 

rnacy's highest priorities. It is important, however, 

(hat program quality be maintained. Reduction of 

Mandarin to 8-10 hours, for example, would still permit VOA to reach its audiences in prime time. But it 

would free funds needed for bro adcasts on market 

economics , business management, democratic 

thought and institutions, and "targetted" programs 

on events in and relevant to China 

The future of public diplomacy in China remains 

uncertain. USIAwas wise to maintain fundamental 

institutional arrangements in ways consistent with 

American values and strategic interests. 

COORDINATION AND FOCUS 

merican involvement in democcy-building worldwide is generating debate on 

roles and relationships. Should AID undertake aca ­

demic exchanges in Eastern Europe where it has no 

historical roots? Who coo rdinates the initi atives of 

USIAJ AID, and NED in South Africa? Sho uld the 

Peace Corps invest substantial resources to support 

English teaching, an activity USIA has carried out for 

·W years? How do the important exchange and assisance programs of private foundations relate to the 

work of government agencies? Where do outreach 

iro grarns of the Department of Education, the 

lustice Department, and the Small Business 

.vdminlstration fit in? Do the National Endowment 

lor Democracy and International Media Fund keep 

U.S. embassies adequately informed of their in-coun­

:ry activities? 

These are questions of coordination and in some 

cases program duplication that must be addressed. 

The Commission believes a constructive approach 

hould include: 

Recognition that ultimately ideas and skills are as 

important to the success of democracy-building as 

bricks and mortar, or even printing presses and 

dish antennas. 

Identification of each agency's comparative advantage, or what each one does best; the re is plenty to 

be done by each within the scope of its statutory 

authority. 

Concentration of resources in agencies that have 

experience in democracy-b uilding, with infrastructures in place, extensive in-country contacts, 

and a history of close ties to relevant private organizations in the United States. 

Clear statements of responsibility in carefully 

worked out in ter-agen cy Memoranda of 

Understanding. 

Expansion to other regions of the inter-agency 

coordination approach developed by Deputy 

Secretary of State Lawrence Eagleburger's office 

for democracy-building in Eastern Europe. 

Investment of additional resources, without excessive earmarking, through direct authorization and 

appropriation to each agency. Inter- agency transfers should be maintained until adequate direct 

appropriations are enacted. 

FIELD MANAGEMENT 

roviding the training, administration, and policy guidance to ensure that 

public diplomacy professionals are safe and productive in 205 posts worldwide is one of the most difficult 

tasks in government. The Commission has addressed 

a few of the issues USIAcurrently faces in its managementoffield operations. 

Training and professional development. The 

communications revolution with its increased 

emphasis on electronic media has he ightened the 

need for training in technology and media skills. At 

the same time, crises during the past decade in Iran, 

the Persian Gulf, China, and the Soviet republics have 

underscored the need for language instruction and 

2 9 
study of political, cultural, and religious forces in 

societies fundamentally different from our own. 

Under current budget restraints USIA is unable to 

provide the amounts and kinds of training that are 

needed for both Foreign Service and Civil Service 

employees. USIA's training budget has fallen below 

the level considered desirable by the Agency and 

standard in the private sector. Management and professional skills courses have been cut, and long-term 

study - of great benefit to those who have become 

the Agency's best senior officers - has been all but 

eliminated. 

USIA's people are the heart of American public 

diplomacy. Cutting the training required to prepare 

them for their work may be easy in the short-run. In 

the long-run, it isshort-sighted. 

Media and advocacy skills training. Contact with 

foreign media and American journalists assigned 

abroad is an increasing part of daily embassy routine. The Commission reaffirms its belief that media 

training is essential for USIA's field officers, U.S. 

ambassadors, and other embassy officers with public affairs responsibilities. Media training still is not 

universal in USIA. And in the Department of State it 

is not frequent, intensive, well-funded, or fully 

appreciated. 

Language training. Although foreign language 

instruction comprises 85 percent of USIA's small 

training budget, language courses, personnel policies, and funding levels do not provide an adequate 

supply of officers with the fluency required for 

today's public diplomacy needs.Training USIA'sofficers to speak in foreign languages, with the nuances 

and sophistication that professional communication 

requires, is as criticallyimportant as any question facing public diplomacy. 

Foreign ServiceInstitute.The Commission recommends adding a mandatory course on public diplomacy to the curriculum of the Foreign Service 

Institute for State Department and AIDofficers. 

Private sector support. USIA's field officers 

increasingly work with private sector interests to fund 

conferences, university chairs, fine and performing 

arts presentations, and a variety of other initiatives 

supportive of public diplomacy. The Agency's train

ing program should familiarize officers with fund 

raising techniques and the nature of corporate support for educational and cultural activities. 

Foreign national employees (FSNs). Foreign 

national employees are indispensable. They provide 

continuity, institutional memory, language skills, and 

understanding of their countries that American offi

cers, however experienced, cannot replace. The 

Commission is concerned that U.S. training opportu

nities for FSNs declined more than 36 percent during 

the past five years. In many countries inflation has 

outpaced their salaries. And Washington-based 

administrative support services are not adequate. 

Diplomatic Pouch. The Commission welcome

the Department of State's reversal of a dubious

short-lived policy requiring USIA and other foreign 

affairs agencies to establish separate mail handling 

systems for their field officers. Delayed and erratic 

mail delivery created documented hardTHE COMMUNICATIONS ships for officers and their families, compromised public diplomacy programs, and 

REVOLUTIO WITH was not cost-effective. 

Security. The physical security of U.S

INCREASED "'PHASIS employees and facilities abroad mus

remain a high priority. But security policies ON E 

must also reflect USIA's mission, which 

"E TENED THf: requires public access to the Agency's 5 

buildings and programs, and that officer

N OR TRAINING I move about in the community. 

In administering security policies, the 

TECHNOLOGY AND Department of State still is not fully 

responsive to USIA's funding and special EDIA SKILLS . 

public access needs. The Department has 

not disbursed sufficient funds nor made 

prompt transfers to USIA. Some headway 

has been made in providing adequate 

30 
FIEL..O PROGHAt4 ­

funding for building security upgrades, but State 

must increase amounts for a variety of other USIA 

security needs. The Commission continues to support direct appropnanons or clearly fderrarred ftm:d~

in the Department's appropriation. Moreover, the 

Department's policy that USIA's operations must be 

collocated in new embassies needs to be changed to 

reflect the Agency's public access requirements. 

Information Data Systems - US-INFONET. 

High-speed retrieval and transmission ofinfonnation 

is essential to public diplomacy in the age of instant 

communication. USIA is developing US-INFONET to 

integrate a variety of electronic mail and data systems 

for policy, program, and administrative purposes. 

Some early data bases have been discontinued; others 

are on line and well used, while many are still being 

developed. 

"Keynotes," begun ill 1987, included press guidance, speech excerpts, and other material to give 

posts a timely heads-up on complex and evolving 

policy issues. Without staff to keep it current, it fell 

into disuse. 

"Public Diplomacy Query," PDQ, has proven useful. This indexed compendium of USIAproducts carries information for some 30 services, including the 

Wlreless File. USIA's posts also have access to commercial data bases such as Nexis,Dialogue, LegiSlate, 

InfoSouth, Reuters, and New York Times services. 

Their use, however, is limited by their high cost. 

The Commission's 1989 report commended a 

plan for an "Expertise" data base to serve all Agency 

elements that recruit authorities for overseas programs - Arnparts, Academic/CUltural Specialists, 

Satellite Speakers, Worldnet, and the Voice of 

America. Unfortunately, "Expertise" has not come on 

line. 

OREIG N TIONAL 

PLOYEES . R 

IHDI5PENSAilL • T E 

PROVIDE: CONTINUI 

INSTITUTIONAL MEMORY, 

LANGU co SKIL . AN~

UNCER5 Ii< DING OF 

THEIR COU TR ES T AT 

MER'CAI'f OFFICERS, 

o VER EXP ED. 

C OT EPLACE. 

Moroccan journalists discuss 

economic issues at a 

USIA-sponsored roundtable. 

Data programs take time to develop, 

and the speed of technological change 

itself works against the stability of information transfer systems. Funding and 

staff shortages have hindered their implementation. Training has been given a low 

priority. Officer training is essential, especially for senior officers with little experience in automated data systems. 

High-speed data transmission, used 

pIimalllyfOT the WH"eless File, is available 

via telephone line modems at most posts. 

But much outdated equipment overseas 

must be replaced. 

This technology should be given higherpriority. There should be frequent communication with posts on technology 

developments, instruction on what is 

available, and inquiries about what is 

needed - all in language field staffs can 

understand. 

:31 
NATIONAL ENDOWMENT FOR
 

DEMOCRACY
 

reared by Congress in 1983, the 

National Endowment for Democracy (NED) ~s

been in the forefront of democratic change around 

the world. Established to encourage free and demo ­

cratic institutions in other countries through private 

initiatives, it serves the nation' s interests well. 

The Endowment is a private, non-profit corporation led by a bipartisan board of distinguished 

Americans. USIA provides most of the Endowment's 

funding through an annual grant in an amount 

determined by Con gress. In FY 1991 Congress 

increased NED's appropriation to $25million. 

NED is a funding organization. It does not conduct programs directly. Some 75 percent of NED's 

funds go to four cor e grantees that represent the 

broad spectrum ofAmerican life: the AFL-CIO's Free 

Trade Union Institute, the Center for International 

Private Enterp rise affiliated with the Chamber of 

Commerce, the National Democratic Institute for 

International Affairs, and the National Republican 

Institute for International Affairs. NED's remaining 

discretionary funds support overseas projects 

through other U.S. organizations. Examples of 

Endowment-funded projects include: 

AU.S.-South Africa leader exchange program; 

ASouth Asian regional conference on micro-enterprise and the informal sector; 

Support for The ChineseIntellectual; a leading journal ofChinese thought and opinion; 

Newsprint for the independent press in Romania 

and Bulgaria; 

Assistance to a Russian-language literary journal; 

Training programs, equipment, and publications 

assistance for trade unions in the Soviet Union; 

Support for labor-management seminars in Chile. 

The Endowment considers democratic developments in the Soviet Union to be of critical importance, and it will concentrate on projects in support 

:32 

of emerging political parties, local governm ents, fre

trade unions, independent media, civic and huma

rights organizati ons. Other NED prior ities are th

Baltics and South Africa. Initiatives in the Arab worl

are planned, and NED's Journal of Democracy w

soon publish an Arabic edition, as well as English an

Spanish. 

The spread of democracy around the world ha

both legitimized and complicated the Endowment

work. With democracy-building becoming a centr

objective of U.S. foreign policy, it is increasingl

important to distinguish between programs mo

effectivelycarried out by private indep endent organ

zations like NED, and those best conducted by U.

Government agencies. 

Congress intended the Endowment to have inde

pendence and flexibility, advantages that enable it t

respond quickly to opportw1.ities around the world

and to make funding decisions that might complicat

U.S. bilateral relations if they were made by a govern

ment agency. But keeping pace with events and it

own success es have placed heavy managemen

demands on the Endowment. With a modest budge

and small staff, it oversees hundreds of awards to for

eign organizations, many of which have little exper

ence in administering grants . 

A recent General Accounting Office study of th

Endowment called for improvem en ts in certai

management and grants accounting practices. Th

Endowment recognizes these problems and is takin

steps to correct them, seeking to maintain flexibility 

while assuring accountability. 

As the major funding sources for NED, USIAand 

the Agency for Int ernational Development should 

coordinate closely with the Endowment, both in 

Washington and in countries where it funds activi

ties. The Commission has observed the Endowmen

does not always keep U.S. missions abroad informed 

of its in-country projects. Doing so helps to minimize 

misunderstandings. Public Affairs Officers and othe

mission employees are knowledgeable about events 

in their countries, and can be informed sources o

support. 
. _ C I 

INTERNATIONAL 

BROADCASTING 

Aglobal U.S.Govenunent radio and television 

broadcasting capability is a necessary instrument 

ofAmerican foreign policy. 

VOICE OF AMERICA 

VOAfaces declining shortwave listenership and 

stiff competition from domestic media in Eastern 

Europe and other parts of the world. Diversified 

signal delivery systems, including programs transmitted by satellite to foreign stations, have helped 

offset this decline and multiplyVOA's audience. 

Direct shortwave and medium wave broadcasting will be needed for some time to come in the 

Soviet Union, China, Africa, and the MiddJe East. 

• Budget reductions and the cost of programs 

required for competitive broadcasting in open 

media environments make it impossible to keep 

44 high-qualityVOA language services on the air. 

Continuous evaluation oflanguage priorities 

is needed. 

TELEVISION 

USIA'ssatellite system and network ofdish 

antennas at 216 locations worldwide is a significant 

but still under-utilized communications achievement. 

Worldnet accounts for only seven percent of the 

total U.S. international radio and television operating budget. Inadequate funding and insufficient 

planning continue to hamper USIA'suse of this 

powerful medium. 

BROADCASTING TO CUBA 

The Commission finds that TVMarti at present 

is not cost-effective when compared with other 

public diplomacy programs of proven value. 

Radio Marti broadcasts high quality programs 

that are effective and consistent with VOA's standards of objectivity, accuracy, and balance. 

COMMERCIAL SATELLITE
 

TELEVISION
 

Private international television broadcasters, 

such as Cable News Network (CNN), have become 

primarysources of news and information for political elites, opinion-makers and mass audiences 

worldwide. The impact of "real-time" communication and round-the-clocknews coverage require 

USIAto rethink some of its field operations. 

BROADCASTING STRATEGY 

U.S. international broadcasting should continue 

to support foreign policy goals and be an integral 

part ofthe public diplomacy mission of the 

United States. 

To promote efficiency and avoid redundancy, 

U.S. radio and television broadcasting capabilities 

should be consolidated. Plans should be made 

to phase out some Radio Free Europe language 

services consistent with the achievement of 

their goals. 

WIRELESS FILE 

• Modernization of theWrreless File has been a 

wise investment. Computerized, high-speed transmission of the File is making this basic media tool 

even more useful to posts and realizing dramatic 

cost savings. 

33 
MAGAZINES 

USIA'smagazines and scholarlyjournals are 

important program tools, praised by posts and valued by foreign audiences. The Commission supports efforts to establish publishing priorities, consolidate publications, eliminate duplication, and 

make USIA'spublications more versatile and less 

costly. 

EXHIBITS 

USIA's high quality graphic representations of 

American life carry important messages to mass 

and elite audiences abroad. New opportunities for 

other forms of public diplomacy in the Soviet 

Union and Eastern Europe led to reassessment of 

the role of exhibits and development of a smaller, 

more cost-effective program. 

USIAshould not become responsible for 

participation in international expositions unless 

Congress and the Executive Branch are prepared to 

commit the resources needed for a high quality 

American presence. Funds should not be taken 

from other public diplomacy programs. 

INTERNATIONAL BROADCASTING 

nited State s Government inte

national broadcasting has served American interes

well for half a century. Now, in a period of histor

change and tight budgets, we are compelled as nev

before to assess its fundamental goals and priorities

With origins in the nation's response to Axis pr

paganda in the 1930s. the Voice of America beg

worldwide shortwave broadcasting as the U.

entered World War II. 

Throughout the Cold War, VOA broadcast new

and information to audiences worldwide, includi

millions denied both in the Soviet Union, China, an

Eastern Europe. Radio Free Europe and Radio Libe

(RFE /RL) were established separately from VOA 

focus on developments in Eastern Europe and th

USSR, and to serve as surrogate free media. 

In the 1980s, government broadcasting adapted 

new technologies and a more competitive med

environment. USIA created Worldnet, a global sate

lite television network. Congre

USIS Santiago produces" weekly C/lTTent 

affairs program for placementon radio established Radio Marti with

stations throughout Chile. The program VOA to bring news and inform

features visitingAmericans and their tion to the people of Cuba an

Chilean counterparts. 

authorized television broadcastin

to Cuba. VOA and RFE/RL unde

took multi-million dollar pro 

grams to modernize aging shor

wave transmitters. VOA increa

ingly supplemented shortwav

with satellite deliveryand progra

placemen t on local station

Meanwhile, dramatic grow

occurred in private sect

tele communications. And Cab

News Network (CNN) became a

influential source of televisio

news and information around th

world. 

These developments an

steadily declining funds led th

Commission two years ago to re

ommend "a comprehensiv

review of U.S. international rad

34 
MEL 

and television broadcasting in terms of national 

resource priorities, f~reign policy objectives, and 

changing technology and media habits. "* 

The political revolutions in Europe sh a rp ly 

focused the need for a fresh look at government 

broadcasting, and Members of Congress early in 

1990 called for a full-scale Presidential review, which 

the Administration has undertaken. 

The questions facing policyrnakers are difficult. 

What is the mission of government broadcasting in a 

world wh ere th e fre e flow of in formation has 

increased dramatically?What technologies and signal delivery systems best serve U.S. interests? What 

programs are most effective? What langu age priorities are appropriat e? What is the optimum mix of 

broadcasting and other public diplomacy activities 

such as educational exchanges and U.S. em bassy 

public affairs programs? What strategy and criteria 

ought to govern decisions about the future of sun ogate broadca sting? Finally, how much should 

Americans spend on government broadcasting? 

While many policy and organizational decisions 

are to be made, the Commission believes a consensus is emerging on several broad principles. 

A glob al U.S. Government radio and television 

broadcasting capability is a nece ssary instrument 

ofAmerican foreign policy. 

International broadcasting should continue to 

support foreign policy goals and remain an integral part of the public diplomacy mission of the 

United States. 

To promote efficiency and avoid redundancy, government radio an d television broadcastin g capabilities should be consolidated. 

• Un ited Stat es Advisorv mrnission on Public Diplo macy. 1989 

Annual Rep ort, p. 24. • 

VOICE OF AMERICA 

he Voice of America remains a vital 

national asset, and its value clearly did not end with 

the Cold War. 

An estimated 127 million people worldwide listen 

regularly to VONs direct broadcasts. Many mor e listen to live and taped programs rebroadcast by a 

growing network of affiliated stations in other countries. 

VOA transmit s approximately 150 hours of daily 

programming in 44 languages, including English. Its 

statutory charter calls for broadcasts to include accurate, objective, and comprehensive news; balanced 

programs on American thought and institutions; and 

effective presentations of U.S. policies,with responsible discussion and opin ion on such policies. 

Hostilities in the Persian Gulf demonstrated anew 

the need for a powerful and versatile U.S. Government broadcasting capability.War coverage includ ed 

statemen ts by President Bush and senior U.S. officials, reports from VOA correspondents around the 

world, commentaries, features, and policy editorials. 

Recent even ts in th e Baltics and widesp read 

unrest in the Soviet republics underscore VOA's continuing role in providing accurate news to listeners in 

the Soviet Union. 

In China and other Asian countries with state ­

controlled media, such as Burma, Laos, Cambodia, 

Vietnam, and North Korea, VOA's broadcasts are one 

of the few sources of objective news and information. 

listeners have a strong desire to hear about events ill 

th eir countries and "cross -reporting" on rele vant 

developmentsin other countries. 

When th e U.S. se nt troops to Panama in 1989, 

VOA increased its bro adcasts to Central America, 

demonstrating in this h emisphere the need for 

broadcasting assets capable ofresponding to a crisis. 

VONs importance in short-term crisis situations is 

clear. Important too are bro ad casts th at provide 

practical information on demo cratic institutions and 

market economics, English language instruction, and 

documentaries on education, agriculture, health 

care, narcotics issues, the environment ,science, and 

the arts. 

35 
E.DI 

But the VOA of the future will look 

quite different from the VOA of the past 

fifty years. 

For decades, Soviet and Eastern 

European jamming conditioned many 

of the technology and program decisions of Western radio broadcasters. 

Today in these countries, VOA and 

RFEIRL place programs on local stations, co-program via "radio bridges," 

and maintain their own news bureaus. 

Their broadcasts contain more programs on democracy in action. 

Media openness in Eastern Europe 

is generating confidence in domestic 

radio and television with significant 

declines in listening to direct shortwave broadcasts.* 

U.S. radios face stiff competition. Worldwtde. 

indigenous radio and television stations, satellitedelivered television programming, videocassettes, 

and other electronic media are competing for audiences. With the spread of democracy, audiences have 

become more discriminating and more reliant on 

their own media. 

In assessing next steps, the Commission offers the 

following considerations. 

Language priorities. Budget reductions and rising 

production costs are making it impossible for VOA to 

keep 44 high quality language services on the air. The 

Commission questions the recent establishment of a 

Tibetan service, maintaining 11 hours of daily 

Mandarin broadcasts rather than a more cost-effective schedule, continuation of some language services that have small audiences, and current levels of 

duplication between English and language broadcasts. 

.In today's budget climate , the number oflanguage 

services is artificially high. VOA'slanguage priorities 

'USIA-sponsored polls support (his conclusion. The Commiss ion 

has relied heavily in this report on assessments in "The Broadcast 

Media Environ ments of Europe and the USSR," a December, 1990 

working paper prepared by USIA's Office of Research. 

VOA'sLondon 

bureau serves correspondents ill 

Europe, the Soviet 

Union, and the 

Middle East. 

should be examined continuously to ensure they are 

commensurate with available resources and U.S. 

interests. 

Competitiveprograms. Thriving domestic media, 

powerful regional broadcasters, and aggressive local 

placement by other international broadcasters are 

challengingVOA to improve program quality. Repeat 

broadcasts and programs designed to overcome jamming are no longer needed in the Soviet Union and 

Eastern Europe. Competitive broadcasting in open 

media environments requires new reporting techniques and a variety of tailored and innovative program formats. If VOAis to maintain a high level of 

program excellence, additional resources will be 

needed. 

VOAmust continue to answer the prescient question raised several years ago by its own 2001 

Committee: "Why would a people with unfettered 

access to...increasingly credible national media turn 

to VOA, BBCor any other international broadcaster?" 

Broadcastingto Asia.The Commission welcomes 

recent Congressional initiatives on broadcasting to 

Indochina and other parts of Asia that lack indigenous free media U.S.strategic interests and the longterm value of promoting democracy in the region 

36 
01 

suggest a need for examination ofthese proposals. 

Creating a "Radio Free Asia" as a surrogate station 

within RFE/RL, however, may not be necessary, costeffective, or realistic in the current budget climate. 

Moreover, RFE/RL's transmitters do not reach East 

and Southeast Asian audiences. VOA currently 

broadcasts in Khmer, Lao, Vietnamese, Burmese, 

Korean, Mandarin, and Cantonese. Enhancement of 

the program content and broadcast hours of these 

services is a viable alternative. 

As a global broadcaster, VOA is well suited to 

engage in the "cross-reporting" that can make targetted programming effective. "Targetted" programming, used effectively by VOAin broadcasting to 

China, describes what is going on in the listener's 

country and provides context in terms of the experiences of others. For example, ferment in Albania and 

the activities of workers in Hungary are stories of 

interest to audiences in Vietnam. 

"Targetted" broadcasting, like surrogate broadcasting, depends on research and is costly. The 

Commission believes now is an appropriate time for 

a review of u.s. broadcasting to Asiain terms of policy objectives, resource priorities, the content of current broadcasts, and changing technologies and 

media habits. 

VOA Europe. The Commission has supported 

VOA's efforts since 1985 to reach successor generation audiences in Europe via English language 

broadcasts delivered by satellite to a network of 72 

medium wave, FM, and cable radio affiliates. 

However, listenership to VOA Europe remains low, 

despite heavy emphasis on entertainment programming .Commercial advertising by affiliates so far has 

been unsuccessful. Funds are unavailable for the 

vernacular language broadcasts needed to reach 

large audiences. There are legitimate questions 

about VOA Europe's cost-effectiveness as presently 

constituted in view of competing public diplomacy 

opportunities. 

Nevertheless, VOA Europe's satellite delivery system and network of affiliatesis a valuable investment. 

USIA officersin Eastern Europe and the SovietUnion 

report promising opportunities for placement of its 

I T RNA laNAL 

BROADC G SHO LD 

co TI UE SU PORT 

FOREIGN ICY GO L5 

R MAl A 

EGRA P RT e F T E 

PU C IPLOMA Y 

T H U HTE 

STATES. 

A VOA correspondent interviews 

members ofthe VoiceofAmerica 

Listeners Club in New Delhi. 

broadcasts on local stations. A strong 

desire to learn English in these countries 

and intense interest in political reform 

and economic restructuring underscore 

the wisdom of cutting back on VOA 

Europe's entertainment programming 

with corresponding increases in targetted public affairsprogramming. 

Middle East Broadcasts. During the 

Persian Gulf crisis,VOA greatly expanded 

its daily broadcasts to the region: from 

7.5 to 15.5 hours in Arabic, from 3.5 to 4 

hours in Farsi, and from 10 to 18.5hours 

in English. A special 24-hour-a-day network was established to carry the 

expanded programming. VONs Worldwide English service was carried on USIA 

television satellite audio sub carriers for 

transmission to dish antennas at USIS 

posts around the world. 

VOA also installed a 50-kilowatt transmitter in Bahrain capable of reaching 

Kuwait and southern Iraq. English broadcasts began in late January. However, 

Bahrain did not agree to vernacular 

broadcasts until March 1991, when fol37 
I ~~o
 

lowing months of negotiations it permitted one hour 

of evening programming in Arabic on a trial basis. 

Some questions about the accuracy and objectivity ofVOA'sArabk broadcasts were raised in Congress 

and the media.* Concerns were generated by isolated 

reports of inaccurate news stones, too much air time 

for critics of the coalition war effort, and biased selections in roundups of U.S. and Middle East press opinion. There were reports also that coalition partners 

had voiced complaints to U.S. officials about VOA 

broadcasts. 

In response to questions from House 

Subcommittee Chairman Howard Berman (D-CA} in 

a hearing on USIA's 1992 budget. VOA officials 

denied any "pattern of abuse." There are examples 

"where editorial judgments were faulty," VOA's 

Deputy Director stated, but overall the quality and 

editorial integrity of VOA's broadcasts were maintained. To address these concerns, however, VOA 

stepped up internal reviews of its Middle East programming and contracted for outside studies by the 

Hudson Institute and the Center for Strategic and 

International Studies (CSIS). 

Because these are sensitive and consequential 

matters, the Commission believes it is important to 

understand the context and manner in which VOA 

handled the issue. 

VOA is often said to be "at the crossroads of journalism and diplomacy." Under its statutory charter, 

VOA broadcasts comprehensive, objective news. It 

also presents the policies of the United States in 

clearly identified editorials. These difficult and often 

contrasting statutory missions were not well understood by coalition partners. Nor indeed are they 

always appreciated by U.S.Ambassadors and policymakers in Washington. 

In the Gulf states and elsewhere in the Middle East 

the crisis generated significant increases in VOA's 

audiences. A USIA research survey in December 

• "Allies Aim to Triumph in War of Words." London TImM. February 

13, 1991; "Berman Questions Slant of War Coverage by Voice of 

America," Los Angeles Times, March 21, 1991; "Absolute Truths 

Collide in Arabs ' War of Words, " New York Times. February 16. 

1991. 

Shorttuaue transmitters at VOA's lIew 

relay station ill Morocco will provide 

cOllerage in Eastern Europe, Westen! 

Soviet Union; the Middle East, 

SouthwestAsia, and Wesl and Central 

Africa. 

1990, for example, showed VOA's regular listening rates in Saudi Arabia 

increased from 12 to 19 percent. In the 

United Arab Emirates, regular listening 

increased from 1 to 10 percent.** VOA 

was not just a news source; it became a 

more pervasive political and cultural presence. This 

led to closer scrutiny by Arab governments. 

The pressures on VOAwere intense. VOAArabic 

more than doubled its daily air time with no commensurate increase in personnel. Broadcasting staffs 

stretched thin are more prone to make mistakes. but 

the Commission has seen no evidence there was a 

systemic problem in VOA'sMiddle East broadcasts. 

Nevertheless, we do have several general concerns . 

Proportional air time for responsible critics is 

essential to VOA's credibility and effectiveness. VOA 

should take care that balance and proportional representation of contrasting opinions are maintained 

" "Foreign Radio Listening Rates High in Four Arab Gulf Nations; 

VOA Increases Audience During Crisis," USIAResearch 

Memorandum. February 14,1991. 

3B 
- I
 

not just in a 24-hour day or a seven-day week, but 

within the listening time span of a typical listener. In 

time of war, VOA has a special obligation to make 

sure its broadcasts are accurate and relevant to its listeners. 

Although VOA's lan guage services an d overseas 

correspondents have excellent contacts, they could 

enrich their programming through closer consultations with USIA's field posts and area offices in 

Washington. This does not mean VOA should clear 

its broadcasts or discuss newsjudgments in advance. 

Consultations can and should be achieved without 

_infringing on VOA's integrity or news autonomy. 

Aswe said in a 1989 report on China, "VOAwould 

benefit from greater dialogue between broadcasters 

in Wash ington and officers at U.S. [missions 

abroadl...Increased consultations and two-way visits 

would provide VOAwith feature program sugge stions and informed evaluations of its broadcasts." 

Finally, VOA's initial research design for external 

reviews of its Arabi c broadcasts was methodo logically deficient, notably in confining the evaluations 

to a single 24-hour period, which VOA itself selected. 

This initial approach precluded assessment over time 

.and would have diminished the credibility of the project. At the request of the House Sub committee on 

International Operations, VOA amended its evaluation contracts to broaden the scope of its external 

program reviews. 

VOA has a fine record on internal program evaluation. Annual reviews, with follow-ups, are conducted 

for each broadcast service, using journalists, language experts, area specialists, and USIA's research 

professionals- although usually not representatives 

from the Agency's overseas posts and geographic 

area offices. Detailed standards are set forth in VONs 

program handbook. The Commission has commended VOA's annual research plan as a model for 

the rest of the Agency. 

We trust that in the future VOA will consult fully 

with the Office of Research in the design of its external program reviews. 

Altematiues to shortwave. Diversified signal delivery is essential if VOA is to remain competitive in 

Central Europe, Asia, and Latin America . Programs 

delivered by satellite for live and delayed broadcast 

by foreign netwo rks and local AM and FM stations 

have greatly multiplied VOA's audience . The cost is 

much less than shortwave, and the sound quality far 

superior. There are tradeoffs, however. Placement 

does not guarantee use, and VOA must share editorialcontrol. 

Examples of placement include VOA's programs 

in Polish on Wa rsaw Radio I. in Portuguese on 

Brazil's powerful Globo and Bandeirantes networks , 

in Czec ho slovak on Radio Prague, in Spanish on 

Colombia's national Caracol network, and in Greek 

on affiliates in Greece and Cyprus . During the Gulf 

war, VOA estimated some 1,800 affiliates worldwide 

received its news reports, many through USIA's 205 

posts. As VOA moves into networking and cooperative ventures with foreign media organizations , the 

im portance of USIA's field posts to international 

radio broadcasting will increase. 

Moderniza tion. VONs engineers and other experts 

maintain that direct shortwave transmission will be 

neede d to reach radio a udiences in the E I 

Soviet Union, China, and many coun tries 

in Africa and the Middle East for years to 

come . Inexpensive shortwave receivers are 

widely available in these areas, an d in con ­

trast to placement, shortwave reaches listeners directly without censorship or incountry controls. L 

VOA's shortwave coverage remains 

5	 woefully inadequate, however, in much of 

interior China, Soviet Asia, South Asia, and 

Africa . Decades-old transmitters in Sri 

Lanka, Botswana, Liberia, and the 

Philippines, the latter VONs only sh ortwave outlet for East Asia, are in dire need of repair. 

The loss of the liberia relay station in that country's 

civil war has practically eliminated VOA's already 

weak shortwave coverage in Africa. . 

Facing an adverse budget climate, VOA in 1989cut 

back sharply on the ambitious billion-dollar-plus 

modernization program begun in the early 1980s. Its 

revised strategy focused on constructing high priority 

3 9 
1 M£O 

shortwave stations in Morocco, Thailand, and Israel, 

and a medium wave station in Belize. Completion of 

a satellite interconnect system and extensive maintenance and repair of existing stations were also 

emphasized. 

Several Commission reports have assessed the 

political, technical, and resource considerations ­

many but not all beyond USIA's control - that 

delayed facilities modernization. VOA's revised modernization strategy is realistic. Its completion should 

be one ofpublic diplomacy's highest priorities. 

Radio by Direct Broadcast Satellite (DBS). 

Technologies that would enable listeners to receive 

digitalized radio broadcasts of CD audio quality 

directly via satellite move closer on the horizon, 

although experts differ on the near-term viability of 

DBSRadio. At least one U.S.company is preparing to 

launch a satellite capable of providing digital audio 

broadcasting to Africa. VOA is following this closely. 

VOA should continue to investigate the regulatory, 

technical, political, and resource developments associated with DBS Radio . Institutional bias toward 

shortwave technology should be resisted, and VOA 

should encourage the development of satellite and 

DBStechnology, 

Media training. In cooperation with other USIA 

program elements, VOA's International Media 

Training Center has developed an outstanding 

record in high quality media training for hundreds of 

foreign journalists. The Center is especially well-suited to provide training for radio, television, and print 

enterprises in the emerging democracies of Eastern 

Europe. The Commission believes foreign media 

training is a good investment and urges incre ased 

funding and stafffor the Center. 

Research. Changes in the global political and 

media environment necessitate increased aud ience 

research and application of research findings by 

broadcasting managers to ensure an optimum mix of 

programs and signal delivery systems. USIA's Office 

of Research does not have adequate resources to 

assess audience levels for VOA's direct broadcasts, 

and it has no funds to survey rapidly expanding audiences for VOA programs placed on local stations . 

Bureau ofBroadcasting.With wise leadership, the 

recent merger of USIA's radio and television operations into a Bureau of Broadcasting holds promise of 

greater efficiencies, enhanced media flexibility and 

more effective use of emerging satellite technologies. 

The Bureau includes the Voice of America , the 

Worldnet television service, and the Office of Cuba 

Broadcasting (Radio Marti and 1V Marti). There is 

considerable potential for the new Bureau to provide 

the integrated approach to electronic audio and 

video services that USIA will need in the 1990s. 

Leadership. The timing and motivation of a separate move to consolidate VONs personnel and other 

administrative services into the Agency's Bureau of 

Management, however, gave rise to public misunderstandings and brought to a head tensions between 

former USIA Director Bruce S. Gelb and VOA 

Director Richard Carlson . Both are dedicated men 

who contributed to the nation's public diplomacy, 

and who were part of a leadership team that led USIA 

through a difficultperiod. 

The Commission regrets the public disputes that 

occurred during their tenure. The wide publicity 

given to this internal matter should not reflect unfairlyon the excellent and important work being carried 

aut by the Agency. 

TELEVISION 

elevision has changed the course of 

history and the conduct of diplomacy. Whether the 

images are of pro-democracy demonstrators in 

Tiananmen Square, of President Bush in a videotaped message to the Iraqi people, of ecstatic East 

Germans driving across the border to West Germany, 

or "real time " reports of missile attacks on Israel, governments are shaping decisions with television in 

mind, and their leaders are using the medium to 

communicate directly with citizens in other countries. 

Recognizing television's impact as a primary 

source of news and information for millions world40 
flIIECIA 

wide, USIA during the past decade developed a satellite system and global network of dish antennas at 

216 locations. The Commission commends the 

Agencyfor this significant technical achievement. 

The system, known as Worldnet, permits real time 

"Dialogues" (one-way video , two-way audio) 

between journalists overseas and policymakers in the 

United States. "Dialogues" occur regularly between 

U.S. participants and professional peers abroad on 

political, economic, cultural and scientific issues. 

USIA also uses World net to transmit Presidential 

speeches, press briefings, and other news and information instantaneously throughout the network. 

Worldnet is not a direct broadcast medium. Its 

programs reach mass audiences through placement 

on local television stations and collateral dissemination on radio and print media. Elite audiences 

observe and participate in the "Dialogues" at U.S. 

embassies and other locations. Meaningful cost savings have resulted from use of the satellite network 

for delivery of Voice of America audio feeds, multiple 

language versions of Worldnet television "Dialogues," Wireless Filetexts, and facsimile services. 

USIA'smore realistic view of the role and potential 

of satellite television in public diplomacy is a healthy 

corrective to early exaggerations of its value. 

Rather than continue "America Today," a news 

program with a "Today Show" format intended for 

direct viewing, USIA wisely chose to emphasize program placement by its overseas posts and direct 

reception by foreign stations. "Newsfile," short videotape clips that focus on current events in the United 

States and bilateral issues with foreign countries. 

offers considerable promise. Transmitted in English, 

Arabic, Spanish, and French versions, "Newsfile" is 

used by foreign media in some 70 countries. Its value 

is far greater in the Third World than in the mediarich environments of Europe and Asia 

In Eastern Europe, USIA's polling data show a 

marked shift away from listening to western radios in 

favor of domestic media, particularly television. With 

these findings in mind, Worldnet initiated a two-hour 

daily feed to the region for public and independent 

broadcasters. Donation of dish antennas to some 

IN EASTER URCPE.	 broadcasters has increased placement 

potential. 

USIA's PO ING ATA It is important to remember, however, 

that placing video material on foreign sta- : 

5 OW MAFiKED 5 1FT 

tions in optimum viewing periods is the ultiIST"'NING mate objective. The Washington-based 

Worldnet satellite system is one effective way 

TO W STER RADIOS to do this. Facilitative assistance for foreign 

broadcasters who wish to visit the United 

v 

N FAIIO OF DOMESTIC States is another. USIA's officers in Eastern 

Europe point out that small co-production MEDI • PART C:U RL 

grants for television producers to shoot 

material in the U.S. are cost-effective and vir­ LEVISION. 

tually guarantee extensive placement on East 

European television in prime time. 

The Commission welcomes these developments. Worldnet's satellite system is an extraordinary achievement in international communication. 

Its "Dialogues" are a proven program tool worldwide. 

And "Newsfile" and other programs are a promising 

and more realistic use of the Agency's television 

capabilities. But we have two major concerns. 

First, at a time when the influence of television is 

increasing, USIA's Worldnet budget dropped by 17 

percent in the last three years. In FY1991, funding for 

all U.S. international radio and television broadcasting was $452.9 million. With a budget of only $30.8 

million, Worldnet accounted for seven percent of the 

overall broadcasting total . This budget is not sufficient. Nor is the priority given to television in comparison with radio broadcasting and other public 

diplomacy programs. 

For lack of sufficient funding, the U.S. is moving 

slowly into the satellite age, while the British, French, 

Chinese and others are investing heavily. BBCWorld 

Service television, for example, began offering nightly 

news in English to Europe in March, 1991, and 

announced plans for expansion to the Far East and 

North America. 

Second, the Commission remains concerned that 

USIA has yet to engage in long-range planning, adequate research, and rigorous assessment of what is 

achievable in its use of the television medium. 

41 
BROADCASTING TO CUBA 

he Conunission endorses the goal of 

providing the Cuban people with televised news and 

information not available from their state controlled 

media. Radio Marti, initiated in 1985, has broadcast 

high quality programs that are effective and consistent with VOA's stan dards of objectivity, accuracy, 

and balance. 

Pursuant to Congressional a uthorization, the 

Voice of America constructed and tested a television 

antenna and transmission system using an aerostat 

tethered above the Florida Keys. Broadcasting a high 

quality television signal from Florida to Havana is a 

remarkable technical achievement, and VOA is to be 

commended for it. 

The Conunission finds, however, that TV Marti is 

not cost-effective at the present time when compared 

with other public diplomacy programs of proven 

value. The President's report to Congress in August, 

1990 found that TV Marti's signal has been "consistently and effectively jammed." Moreover, programs 

are transmitted from 3:30 a.m. to 6:00 a.m. so as not 

to cause illegalinterference with Cuban telecasts.The 

President's report concluded that "Because of the difficulty in obtaining reliable information about the 

reception of 1V Marti, the actual size of the audience 

is unknown. "* 

'See "Preside nt's Report to Congress on TVMarti Test Broadca sts 

to Cuba," 1990. Audience estima tes for TVMarti broadcasts have 

been coutroversial. On August 9, 1990, the GeneralAccounting 

Office issued a repor t entitled "Broadcasts to Cuba: TVMarti 

Surveys are Flawed." The GAOquestioned USIA's survey results 

because "th ey make projections . . . based on incorrect appbcation 

of generally recognized methodological techniques."The GAOalso 

noted the survey results differ widely from inforrnatiou reported by 

the U.S. Interest Section in Havana. On October 9, 1990, in a letter 

to Comptroller Geueral Charles A. Bowsher, USIADirector Bruce 

Gelb stated USIA's Office of Research "concludes that while the 

GAOreport raises a few appropriate issues, it is on the whole inaccurate and misleading, applies a double STandard, an d ignores key 

findin gs and information that would refut e the claim s made by 

GAO, or which would have caused GAO to h ave arrived at different 

conclusions." 

USIA spe nds a modest $31 million annually fo

worldwide television ope ratious and $16 million fo

tel evision broadcasting to Cuba. The Age ncy i

unable to capitalize on public cliplomacy opportuni

ties due to this disproportionate allocation of televi

sion resources. 

Finally, the Commission is conc erned that Cuban 

jamming of Radio Marti's influential AM broadcast

in retaliation for TV Marti has reduced th e flow o

in for m atio n to Cu ba. With democ ratic ch an ge 

sweeping the world, it is mor e important than ever to 

provide news and alternative views to the Cuban 

people. 

COMMERCIAL SATELLITE
 

TELEVISION
 

42 
U.S. GOVERNMENT
 

BROADCASTING SERVICES
 

OPERATING BUDGETS
 

FISCAL. YEARS 1988 AND 1991 "
 

(funds in millions] 

FY1988 FY1991 

RFEfRL $172.5 $205.8 + $33.3 (19%) 

VOA $169.6 $183.7 + $14.1 (08%) 

USIATV $37.0 $30.8 - $6 .8 (17%) 

TVMarti $16.0
 

Radio Marti $12.8 $ 15.1 +$2.3 (12%)
 

RlAS $3.2 $1.5 - $1.7 (53%) 

TOTAL $395.1 $452.9 +$57.8 (15%) 

• Excludes funds forradio construction. 

soon as, sometimes before, U.S. diplomats and mass 

audiences around the world. This can create an illusion of understanding that may distort perceptions of 

U.S. policies and actions. Live access to unfiltered 

television news also is changing the role of commercial wire services, western radio broadcasters, and 

USIA's media and programs. 

The Commission recommends that USIAundertake a study of satellite television and that Agency 

managers use its findings in media and program 

development. We also urge U.S. policymakers to take 

more time for appearances on commercial satellite 

networks given the access they afford to worldwide 

audiences. 

stations anywhere from 4 to 24 hours a day. From 

Nigeria, USIS Lagos reported, "television has 

changed the perceptions of Nigerians toward the 

world around them .. .The major Nigerian media are 

all equipped with satellite dishes. Most tune them in 

to CNN, and are now using the Atlanta-based network as a primary source of international news. " 

Nigerian radio stations broadcast the audio feed of 

CNN's Gulf war reports live to listeners in Africa's 

most populous country. 

Allof this raises questions for traditional and public diplomacy. International satellite television is 

immediate and pervasive. Government elites and foreign media learn of breaking news in "real time " as 

Vice President Qluryle prepares to speak unth journalists in Guadalajara, Caracas, and 

Mexi.coCity via USIA'ssatellite television network. 

43 
BROADCASTING STRATEGY 

t the direction of President Bush, the 

National Security Council recently completed a comprehensive review of international broadcasting. Its 

sound conclusions reaffirm the continuing value of 

U.S. Government radio and television broadcasting 

services. 

It remains to implement a strategy for efficient, 

imaginative use of America's international broadcasting assets. An inter-agency Policy Coordinating 

Committee (PCC), chaired by the Department of 

State, has been established to develop a long-term 

strategy and manage transition in U.S. Government 

broadcasting. A bipartisan Presidential Task Force is 

examining broad organizational and related questions. 

The Commission welcomes these initiatives. 

There are good reasons for all concerned to move 

quickly. 

VOA and RFE/RL language services in many 

instances compete for the same listeners. 

There is duplication with VOA as RFE/RL expands 

democracy-building programs and engages in media 

training for foreign journalists. 

Funding for surrogate broadcasting is increasing 

at a faster rate than for international broadcasting. 

Exchange rates account for some of this, and OMB 

has begun to reduce funding for RFE's Polish, 

Hungarian, and Czechoslovak services. 

At a time when other nations are moving rapidly 

to create international satellite television services, the 

U.S. spends disproportionately less for television 

than for radio. 

There is a need for enhanced "targetted" broadcasting byVOA to countries in Asiaand other regions 

where governments prohibit free media. 

New technologies, the dynamics of world politics, 

and the need for more flexible broadcasting capabilities call for coordination and sophisticated planning. 

The Commission's views on radio broadcasting 

are predicated on an understanding of the fundamentally different missions of U.S.Government radio 

stations. VOA has a global mission to broadcast world 

news and information about the United States. 

RFE/RL was established to serve as a "home service" 

or surrogate station for those denied free media in 

Eastern Europe, the Soviet Union , and Afghanistan. 

This distinction is crucial to any assessment of where 

we go from here. 

The U.S. must plan for the day when it can say 

"mission accomplished, well done" to some surrogate services. In saying this, the Commission again 

wishes to make clear that country-by-country distinctions are essential. We do not recommend phasing out RFE's Baltic Services or Radio Liberty, which 

broadcasts to the Soviet Union in Russian and eleven 

other nationalities ' languages. 

AsAmerica's global broadcaster, VOA will continue 

to broadcast to Eastern Europe. It is now possible, 

however, to phase out RFE's broadcasts to Hungary, 

Poland, and Czechoslovakia and to plan for eventual 

reductions in surrogate broadcasting to Bulgaria and 

Romania. Decisions should be based on well-defined 

criteria: the existence of established democratic institutions, free media, and basic human rights. The 

Commission believes such decisions will be understood in these countries. Democracies, unlike 

Commllllist states, do not prompt surrogate broadcasting by other governments. 

The Commission supports consolidation of U.S. 

radio and television operations, wherever possible, 

within a government structure. Consolidation can 

promote efficiency and lessen redundancy in radio 

broadcasting. It can lead to more creative and synergistic audio and visual programming in vernacular 

languages. And while we foresee no "broadcasting 

dividend," consolidation offers considerable potential for more cost -effective use of scarce broadcasting assets at a time when public diplomacy is 

underfunded. 

44 
"'
 

WIRELESS FILE 

SINs oldest and best known 

media tool, the Wireless File, furnishes official texts 

and other authoritative print material about U.S. 

policies and economic and social developments to 

posts in English,Arabic, French, and Spanish. 

The File has undergone historic changes in the 

past three years. Its original radioteletype signal has 

been replaced worldwide by high-speed computerto-computer transmission via telephone, and in 

some areas by satellite transfer. 

High-speed delivery has cut costs dramatically 

and saved staff time. USIS Nicosia. for example, 

reduced its monthly phone bill for File reception by 

95 percent and cut the 45-minute transmission to five 

minutes. Greater economies and accuracy will be 

achieved with increased use of dedicated phone lines 

and Worldnet satellite subcarrier channels, freeing 

the File from ofren unreliable international phone 

connections. USIA is pursuing these developments. 

Other innovations make the File even more useful. 

The Public Diplomacy Query (PDQ) database indexes recent Wireless File material and other information sources for quick reference and retrieval. 

Technology and policy go hand-in-hand. Posts 

and editors in Washington must continue to evaluate 

the content of the Wireless File to assure its relevance .Measured against commercial news and other 

information sources, the Wireless File effectively 

transmits authoritative material to provide context 

and clarify issues. 

USIA'ssatellite dish antenna in Burkina Faso enables this west African nation to receive 

Worldnet teleuislon, the Wireless File, and VOAaudio feeds. 

4S 
l IIlEg lA 

MAGAZINES 

'he printed word remains fundamental to the nation's public diplomacy. In the 1990s, 

USIA's publications are making important contributions to democracy-building in Eastern Europe, the 

Soviet Union, and other parts of the world. 

America Illustrated, published in Russian for the 

Soviet Union, now addresses issues of democracy, 

free market economics, and institution-building. 

Russians and East Europeans are openly asking how 

our society operates, how Americans do things. 

Popular, illustrated magazines have broad public 

impact. Circulation of America Illustrated grew from 

80,000to 120,000in 1990and should continue to rise. 

Dialogueis USIA's attractive, sophisticated maga- I 

zine of ideas, published in English and 11 other languages. It is a credible showcase for democracy and 

culture in America. In local language versions, it is 

highly popular in Eastern Europe, and it is among the 

best publications available in many developing countries. 

Problems ofCommunism, USIA's distinguished 

intellectual journal, will celebrate its 40th anniversary 

in 1991.Its relevance continues as it moves from Cold 

War issues to chart the course of political change in 

the Communist world. 

Public Affairs Officers consistently rate USIA's 

magazines as valuable program tools . But they are 

expensive to produce and vulnerable to budget cuts. 

Since 1965,the number ofWashington and post-produced magazines has dropped from 126 to fewer 

than twenty. With staff reductions and a 15 percent 

budget cut in 1990, USIA must establish publishing 

priorities, consolidate some publications, eliminate 

duplication, and make Agency publications more 

versatile and less costly. 

Seeking to develop the commercial potential of its 

publications, USIA has secured Congressional 

approval to sell advertising and distribute magazines 

by paid subscription. 

Technology also offers opportunities to economize . Economic Impact, a quarterly analysis of the 

U.S. economy in the global context, became a 

biweekly newsletter, transmitted electronically to 

posts overseas. Using computerized desktop publishing, posts can produce their own attractive, lowcost, issue-specific publications, with copy and material supplied byWashington or gathered locally. 

The U.S. pavilion at the Calcutta book fair promotes USIA's post-produced magazine 

for India: 

46 
EXHIBITS 

uality exh ib its can r epresent 

Am e rica n life in dramatic and 

memorable ways. Accompanied by language-qualified American guides, multi-m edia exh ibits have 

been one of public diplomacy's mo st effective tools 

in communicating with millions in the Soviet Union 

and Eastern Europe about life in the United States. 

But large, traveling exhibits are expe n­

sive. Moreover, political changes an d communication s advances have created opportu nities for other for ms of publi c 

diplomacy. The Commiss ion comme nds 

USIA for intelligent re assessm ent of its 

exhibits program, and the development of 

a smaller. more versatile and cost effective 

approach. 

USIA is sca ling down th e size of its 

exhibits, reducing the number ofshowings. 

and cutting operatin g costs. It is see king 

increased private sec tor collebotation, and 

where possibl e to link exhibits with major 

trade fairs. 

The ne w, more mobile thematic exhibits 

will combine graphics, speakers. seminars, 

electronic media, and other tools. They will 

focus on issues. and serve in effect as traveling American cultural centers. 

USIA's exhibit, "Design USA," "The Role of the Sm all Entrepreneur." full assessment of resource requirements and com­ toured the Soviet Union for 18 

pl ann ed for th e Soviet Union, an d months and was viewed by almost peting national prio rities. two million Soviet citizens. "Environmental Action in America," which The Christopher Columbus Quincentenary gives 

recently opened in Prague, exem plify the the 1992 world's fairs in Seville and Geno a a spe cial 

new ap proach. Unfortu nate ly, th e first importance. U.S. participation was never in qu estion, 

exhibit has not been fund ed, and the budget for the and the Commission commends USIA Director Gelb 

second will not take it to oth er coun tries in Eastern for his efforts on behalf of the American pres ence . 

Europe. In the future, USIAshould not be required to take 

USIA also is re sp onsible for U.S. pavilions at responsibility for U.S. participation in international 

world 's fairs. The Commission remains convinced expositions unles s Congre ss and the Exe cutive 

th eir cost a n d frequency have outstripped the Branch are prepared to commit the resource s needed 

nation's willingness to fund and oth erwise adequate­ for high quality exhibits, Nor should funds for them 

ly support them. Presidential-level commitments to be taken from other public diplomacy programs. 

particip ate in international expositions often precede 

47 
EXCHANGE OF PERSONS 

• USIA'spartnership with private sector organizations to carry out international educational, cultural, and professional exchange programs has produced some of the most fruitful results in the 

history of public diplomacy. 

USIAshould be the lead agency in coordinating 

expanded exchange programs in the Soviet Union 

and Eastern Europe. 

The Fulbright scholarship program remains the 

flagship ofAmerican educational exchanges and 

deserves generous funding. The program requires 

more support from those "feeder services" - student advising, English language training, embassy 

staff assistance - that have been seriously affected 

by budget cuts. 

Educational exchanges should continue to 

emphasize the social sciences and the humanities, 

fields that can make important contributions to 

the profound political and economic transformations occurring worldwide. 

BOOK PROGRAMS 

U.S. Governmentsupport for book translations 

and overseas distribution assists developing countries by communicating the ideas and skills of 

democracy and market economics. USIAshould 

continue to work with other agencies, non-profit 

groups, and publishers to facilitate book 

donation and distribution. 

Tax codes should be changed to designate foreign educational, cultural, or research institutions 

as recipients of donated books, and to allow tax 

deductions to U.S.publishers for expenses ofshipping donated books abroad. 

ENGL.ISH TEACHING 

The predominance of English as the internationallanguage of choice is a consequence and 

benefit ofAmerican leadership. USIA'sEnglish 

teaching programs are a vital component of public 

diplomacy. Radio and television broadcasts can 

extend their reach. 

The Peace Corps should work closely with USIA 

to assure that new Corps language initiatives in 

Eastern Europe complement USIA'swell-established English programs. 

CENTERS AND L.IBRARIES 

USIAshould address the strategic importance o

libraries and centers, identify their primary audiences, and define the Agency's future commitmen

to them. 

EAST-WEST CENTER 

The East-West Center has made important contributions to U.S. ties with the nations ofAsia and 

the Pacific. As it moves forward under new leadership, the Center is challenged to develop relevant, 

dynamic programs that meet the changing needs 

of the region. 

48 
EXCHANGE OF PERSONS 

ew experiences influence attitudes 

more profoundly than personal encounters between Americans and the people of other 

countries. Aca demic, cultural, and professional 

exchange programs are central to USIA's mission. 

They build relationsh ips over time that enhance 

communication an d und erstanding between the 

United States and other societies. They are among 

the most effectivetools of public diplomacy. 

Pa rti cipants in U.S. Government-funde d 

exchanges comprise the world's most distinguished 

roster of American and foreign leaders in all fields. In 

1990, USIA sponsored short and long-term academic 

and professional exchange programs for more than 

13,000American and foreign participants. 

Exchanges have a multiplier effect. The y often 

lntern ational Visito rsfrom Suiaziland, Indonesia, Mo rocco and the Ph ilippin es 

visi t Grand Coulee Dam. {Photo by Pete r L. Perkins) 

lead to institutional linkages between governments, 

universities, libraries, museums, and other organiza ­

tions, and establish a lasting American presence and 

influence abroad . Many exchange programs include 

significant cost-sharing by participating private institutions. 

In cooperation with private sector program managers and community volunteers, USIA cond ucts a 

variety of exchanges activities. 

The International Visitor program, which brings 

foreign leaders in many fields to the U.S. for shortterm professional visits, celebrated its 50th anniversaryin 1990. 

The Fulbright program for American and foreign 

graduate students, teachers, and researchers marked 

45 years of academic exchange. 

Hube rt H. Humphrey Fellowships offer a year of 

graduate-level work in the Un ited States for Third 

4 9 
World mid-career professionals in public service 

fields. 

A University Affiliations Program provides seed 

money to promote research and teaching partnerships in the humanities, social sciences, education, 

and communications between U.S. and foreign institutions of higher education. 

Some 500 secondary school teachers participate 

annually in the Teacher Exchange Program. 

The Congress-Bundestag Youth exchange gives 

more than 700 American and German young people 

a full year abroad, while the Samantha Smith 

Memorial program funds youth and undergraduate 

exchanges with the Soviet Union and Eastern 

Europe. 

Counseling and other student services provide 

material on U.S. educational opportunities to 

Fulbright Commissions and other counseling centers 

abroad. 

USIA's library, book, and English teaching fellow 

programs send American specialists abroad to work 

with foreign counterparts. 

Funding Exchanges. The PellAmendment of 1983 

doubled U.S. Government investment in exchange 

programs, and returned Fulbright grants to the 

spending levelsof the early 1960s. Since 1986, however, there have been only small increases in exchange 

budgets, while rising costs, a weakened dollar, and 

adverse consequences of the Tax Reform Act of 1986 

have reduced the numbers of professional and academic grants. From 1986 to 1991, annual Fulbright 

scholarships dropped 30 percentfrom 5,795to 3,971. 

To protect certain exchange programs, Congress 

established earmarks and a separate appropriation. 

The Commission is concerned, however, that in a 

period of budget decline unprotected exchangerelated activities have taken disproportionate reductions. 

USIA's Salaries and Expenses account covering 

English teaching, book programs, libraries and binational centers increased only 2.2 percent in 1991.This 

does not cover inflation, exchange rate losses , and 

other built-incosts. Funding for overseas student 

counseling and cultural enhancement programs for 

A USIA ''Artistif::Ambassador" amducts a master class at Oxford Mission 

orphanage if I Calcutta. foreign students in the U.S. was cut by 

17 percent. The Youth Exchange pro ­

gram, short-term grants for visitors 

aged 15-30, was cut by more than 60 percent from 

1989 to 1991. Budget constraints also are greatly 

eroding the capacity of USISstaff overseas to manage 

exchanges. 

America's long-term exchange investment is 

declining just as new opportunities are opening in 

Eastern Europe, the Soviet Union, and other parts of 

the world.Additional sources of funding for exchange 

programs must be found. 

In working with private sector organizations to 

administer exchange programs, the U.S. Government 

enjoys a partnership that makes public diplomacy a 

national endeavor. The International Exchange 

Association reports more than two million volunteers 

in 15,000 American communities are active in private 

citizen exchanges alone. Academic exchanges 

involve many thousands more. 

This is a powerful constituency for public diplomacy, and in the face of declining numbers of 

exchanges, much can be done to mobilize public and 

Congressional support for these valuable programs. 

Their vitality and effectiveness depend on this publicprivate collaboration. The Commission commends 

50 
USIAand the exchange community for their recent 

efforts to engage in more frequent dialogue. 

International Visitors. Each year, this distinguished and highly effective USIA program serves 

some 2,600 visitors invited by U,S. missions abroad. 

USIA's Volunteer Visitor office gives program assistance to an additional 2,500 individuals who visit the 

United States at their own expense. 

International Visitors travel to many parts of the 

country, depending on their professional interests, 

and are hosted by a large network of volunteer community organizations who work with USIA and contract program agencies to develop substantive meetings and other activities. Half of the visitors 

participate in group projects on economics, politics, 

journalism, communications, the environment, and 

other issues. 

The Fulbright Program. The Fulbright program is 

a model of investment in long-term national interests, By building good will and trust among scholars 

around the world, it has created a constituency of 

leaders and opinion makers dedicated to international understanding. 

The Fulbright program is the N CONDUC I G EXC A GE 

PROGRAMS. THE U.S. 

GOVER MEN 5 

PARTNE 5HI W TH . HE 

P VAT TOR MAKES 

PUBLIC DIP OMACY 

TO 

Senate Minority Leader Robert Dole 

(R-KSJ talks rutlh Polish journalists 

participating in. a VoiceofAmerica 

International Training Center seminar. 

major academic component of 

USIA's exchange activities, and an 

integral part of the Agency's public 

diplomacy mission. In administering the program, USIA has used the 

experience and contacts of its officers to make the program responsive both to broad national interests 

and the academic pursuits of 

Fulbright grantees. 

The r. William Fulbright Foreign 

Scholarship Board has served since 

1946 to oversee the Fulbright program. Concerned about efforts to 

stretch the program's reach despite 

declining resources, distortions of 

the traditional Fulbright mission, 

and erosion of the program's prestige, the Board in February 1991 

released a White Paper on "The 

Future of the Fulbright Program." It 

urges Congress to increase Fulbright 

funding, and calls for a return to the 

program's roots: attractive, longterm awards in support of quality 

scholarship. 

The Commission welcomes the 

White Paper. Its conclusions merit 

dose attention in Congress, the 

Administration, and the exchange 

community. 

There are unprecedented opportunities to expand the Fulbright program in Eastern Europe, the Soviet 

Union, and other parts of the world. 

Additional appropriations are needed, but USIA must also pursue cost5' 
5 

sharing with other governments, in-kind donations, 

tax-deductible private contributions, and the possibility of debt swaps . 

The European Fulbright program depends heavily 

on cost-sharing. Gennany, for example, funds 75 percent of its Fulbright program. Expansion into eastern 

Germany is limited by the inability of the U.S. to 

match the German contribution. The governments of 

Mexico, Japan, Australia, and others also give significant support. Corporate and alumni contributions 

are substantial in some countries. 

The Tax Reform Act of 1986 continues to have a 

negative impact on the Fulbright program. USIAestimates that income taxes on student grants and the 

costs of withholding taxes on all academic grants will 

reduce the resources available for scholarships by 

about $2 million in 1990-91. Grantees from developing countries are most severely affected. Legislation is 

needed to exclude Fulbright scholars from income 

tax on grant benefits, and to authorize the J. William 

Fulbright Foreign Scholarship Board to accept tax 

deductible private contributions in support of the 

Fulbright program. 

Coordination ofExchange Activities. Many government and private organizations are initiating 

exchange and institution-building programs in 

Eastern Europe and the Soviet Union. The 

Commission welcomes the talent and resources they 

bring. At the same time, there continues to be insufficient coordination and duplication of effort. 

USIA should be the lead agency in coordinating 

expanded exchange programs in the Soviet Union 

and Eastern Europe. With a 40-year history of condueting exchanges and developing intemationallinkages, USIAhas the structure, experience, and professional contacts to manage them effectively. The 

Administration should establish clear policy regarding the nation's exchange programs, and assure 

effective inter-agency coordination. 

Soviet Minister ofCulture Nikolai Gubenko meets Rep. Steny 

Hoyer (D-MD), right, at a lunch hosted by Rep. Bob Carr (D-MIJ, 

left, Chairman ofthe Congressional Arts Caucus. The Soviet offi ­

cial was ill the U.S. as a USIA International Visitor. 

BOOK PROGRAMS 

ooks have a powerful appeal in the 

developing world, even in rigidly controlled societies. 

Soviet publishers are now interested in producing 

American titles on economics in Russian editions, 

and US1S Beijing's launching of a Eugene O'Neill 

biography in Chinese attracted a large crowd of cultural figures. . 

The highly literate leaders of emerging democracies in Eastern Europe, for decades denied access to 

modem thought in the social sciences, urgently need 

the institution- building ideas and skills contained in 

books . 

USIA book programs help meet this need. In consultations with posts, the Agency identifies works to 

be translated, buys overseas rights from U.S.publishers, then contracts with foreign publishers for local 

production oflanguage versions. Translations directly support posts' country objectives. 

USIAcan help coordinate the activities of govern52 
ment agencies, publishers, and non-profit donation 

organizations dedicated to the careful selection, collection, and targerted distribution of large quantities 

of books. Posts must be involved in selecting titles to 

assure books are useful to local audiences and relevant to program objectives. 

U.S. tax laws raise obstacles to book donations. 

The Commission believes a limited change would be 

in the national interest: to designa te foreign educational, cultural, or research institutions as recipients 

USIS stafftalk 

with visitors at the 

Indo nesian 

National Book 

Fair. 

ENGLISH TEACHING 

rigllsh has become the pre dominant international language of commerce, communications, transportation, science, popular culture, 

and diplomacy. The ascendancy of English has 

occ urred with little conscious attention or investment by the U.S. Government. Some European governments spend far more than the United States to 

promote their national langu ages abroad. 

USIA makes a critical contribut ion to English 

teaching worldwide. While the global market for 

English language instruction is served primarily by 

commercial interests, USIA invests in such multiplier 

programs as teacher training, professional enhancement, exchanges of foreign and American English 

specialists, and curriculum development among 

indigenous language institutions. 

Political developments ofthe past two years, especially in Eastern Europe and the Soviet Union, have 

greatly increased demand for English language skills 

of donated books, and to allow tax deductions to U.S. 

publishers for expenses of shipping donated books 

abroad for these purposes. 

U.S. Government fund ing for book program s is n ME 

extremely low. In addition to its translation program, 

USIA supplies some 200 overseas American libraries HEN IGI 

with boo ks and other materials in English and vernacular languages, on a budget no larger than the 

acquisitions accounts of some American municipal F 

libraries. The Agency's 1986 book budget of $3.5 million was reduced to $2.2 million by 1991. 

Agency-produced book exhibits and official 

American participation in book fairs have been useful 

in building contacts throughout the international 

book industry, and promoting collaboration among 

U.S. domestic and foreign publishers. Budget cuts 

will eliminate most exhibits in the 1990s, and greatly 

reduce USIA's participation in fairs. 

among foreign leaders looking to 

America for models of political 

and economic reform. VOA and 

Worldnet can help meet the need 

for English teaching expertise 

where political changes have sud ­

denly opened vast markets. 

USIA spent nearly $4 million to 

support commercial production 

of English Language Teac hing by 

Broadcast (ELTB). This inve stment is finally paying off. German 

and Japanese TVare broadcasting 

the series, and stations in Poland, 

Czechoslovakia, and the Soviet 

Union plan to use ELTB. 

Recycling funds from the sale 

of USIA-produced English teaching ma terials has been a successfulinnovation.While the commercial sale of USIA products requires 

53 
"NO l:UL.TU"A L f>ROGAI\MS 

ca r ful control, recycling is a model that might 

extend 10 library services, Agency publications, and 

[\I lent counseling. 

111~ Peace Corps sees a new role for its volunteers 

a English teachers, and is launching programs in 

Eastern Europe. A Corps focus on basic language 

skills and American cultural enhancement might 

effectively and economically complement USIA's 

professional teacher training and exchange programs. The agencies must coordinate their activities 

to avoid program overlap and duplication. 

A USIA "Cultural Specialist" demonstrates the final stages ofprint 

making at a workshop in India 

LIBRARIES AND CENTERS 

merican libraries and binational 

centers abroad have a long history. Active in some 

countries for a half century, many facilities continue 

as dynamic centers for information about the United 

States and the study of English. Others have suffered 

neglect and decline. Some receive substantial direct 

support from USISposts; many are largely independent. 

USIA's budget cuts have affected these institutions. USIS-supported libraries in Italy, New Zealand, 

Pakistan, Sudan and other countries have been 

closed. 

The gradual decline of program and financial support to libraries and binational centers has eroded 

their effectiveness, precisely at a time when many 

foreign audiences have new freedom to approach 

and understand America through these facilities. 

There is renewed appreciation for the program 

potential of libraries and cultural centers in Eastern 

Europe. USIA is considering new cultural centers in 

Moscow, Leningrad, Kiev, Warsaw, Prague, 

Bratislava, Sofia, and Leipzig. 

Elsewhere, libraries and centers have long represented a pennanentAmerican presence, showing the 

face of American life,thought, and culture. The longterm self-financing character of a successful binational center provides a prospect of stability that can 

be of criticalimportance to cultural programming. 

USIA should address the strategic importance of 

libraries and centers, identify their primary audiences, and define its future commitment to them. 

Budgets, library technologies, and security concerns 

require long-range commitments and coordination 

between posts and Washington. 

English language instruction, library services, outreach to key contacts, student counseling. and-cultural programs attract host COW1try citizens at all levels, and can be used by USIS officers to reach specific 

audiences. 

S4 
At the America" Library;'. Brussels, staffdemonstrates computerized access zo informattor•. 

Centers and libraries serve U.S. interests by providing information on issues of immediate concern, 

against the background of American values conveyed 

through cultural programs. They are meeting places 

for private sector organizations: Sister Cities,Partners 

of the Americas, American studies organizations, 

Chambers of Commerce, and student exchanges. 

EAST-WEST CENTER 

he East-West Center in Hawaii was 

created by Congress in 1960 as an educational institution dedicated to promoting understanding, cooperation, and development among the United States 

and the nations ofthe Pacific. 

Today, more than 2,000 individuals participate 

each year in Center programs, conducting research 

or attending short -term seminars on issues of regional concern. The Center serves scholars, public officials, journalists, scientists, and businessmen. lts 

principal program fields are political and economic 

development. natural resources and environmental 

affairs, population and demographics, culture and 

communications, and regional cooperation. 

In FY 1991, the Center through USIA received 

$23 million in appropriated funds, approximately 80 

percent of the Center's budget. The balance is contributed by the private sector. 

The Center has proven to be a far-sighted investment, strengthening ties with an area exercising 

major international economic influence. The Center 

estimates that by the year 2000, East and Southeast 

Asiawill contribute one-fifth of the gross world product, roughly equal to that of North America, 

The East-West Center is undergoing a change of 

leadership. Victor Hao Li, who guided the Center 

through the 1980s, resigned late in 1990. The 

Commission commends Dr. II for nine years of distinguished service , building creative partnerships 

among individuals and institutions of th e United 

States and Asia. 

In the years ahead. the Center will be challenged 

to develop relevant, dynamic programs to meet 

rapidly changing needs, maintain academic quality, 

and wisely manage limited resources. The 

Conunission hopes the Center's focus will include 

the emergence of democracy and free enterprise in 

Asia, press freedoms and international media concerns, and the international drug trade. 

The Commission encourages USIA and foreign 

service officers to make full use of the Center's 

resources and the 25,000 accomplished alumni in 

positions ofleadership around the region. The Center 

deserves to be better known in the United States as 

well. and should aggressively broaden its ties to the 

mainland private sector. 

ss 
Ul 

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Counse lor of the Director ......... ............... ..............
 Agency Depu ty Direc tor 

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Bureau of 

Broadcast ing 

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Te levision & Cuba Broadcasting Voice ofAme rica Film Service Service 

I I 

Research Inspe cto r Gene ra l 

President's Privat e Secto r U.S.·Soviet Exchan ge Com mittees Initiatives 

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Office of Office of Office of East Asian 

African Affairs European Affa irs & Pacific Affair s 

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Field Pos ts o 

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Bureau of 

Progra m s 

UNIT

U.S. Adviso ry 

................ Commission on INFO

Pub lic Diplom acy 

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I Cultural Property \. Advisory •• • 

Committee 

Bureau of 

Educati onal & 

CuItural Affairs 

I 

Ge ne ral Co unse l Con gre ssiona l 

Liaison 

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Exec u tive Preside n t's Eas tern 

Sec re ta ria t European Ini tia tive 

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Office of America n 

Repu blics Affairs 

Office of North African , 

Nea r Eas tern & So u th 

Asian Affairs 

C -

I 
UNITED STATESADVISORYCOMMISSION 

ONPUBLICDIPLOMACY 

Room 600 

3014th si. S.w. 

Washington , D.C. 20547 

202- 619-4457 

Bruce Gregory, StaffInrector 

Don Terp stra, Deputy StaffDirector