What Is Public Diplomacy?

f the meeting between President Reagan and General Secretary Gorbachcv in Geneva

was the most important diplomatic event ofthe past year,

it was also the tCKUS of one of

the most comprehensive public diplomacy efforts ever undertaken by the U.S. Information

Agency.

USIA's role before, during, and

after the Geneva Summit demonstrates what public diplomacy has

come to mean in the 1980s. Everv

major clement of USIA was involved.

• President Reagan's radio address to the Soviet people from a

Voice of America studio and all

major speeches by senior U.S. fixcign policy officials were broadcast

in 42 languages to VOA's worldwide wccklv audience of 119 million listeners.

• Public Atfairs Officers at 214

embassies and consulates around

the world briefed thousands of

journalists and other opinion leaders on U.S. policies and Summit

objectives.

• Official texts, transcripts,

speeches, feature articles, and policy backgroundcrs were transmitted clcctronic.illv bv L'SIA's Wireless hie to all USIA posts.

• The U.S.-So\'iet exchanges

agreement negotiated by USIA and

signed at Geneva will expand .1Cadcmic, cultural and scientific exchanges, including Fulbright

scholars and teachers; permit trawl

of performing arts groups and

sports exchanges; and allow USl A

to mount thematic exhibits and

continue distribution of America

Illustrated m,lgazinc.

• USIA\ Office of Research prepared public opinion analyses, flash

opinion surveys, assessments of

Soviet propaganda, background

studies, media reaction reports,

briefings, and participated in an

NSC pre-Summit simulation exercise.

• The foreign Press Center in

Washington arranged pre-Summit

interviews with President Reagan,

numerous press briefings with senior U.S. officials, and a press tour

on 5DI for foreign journalists and

television correspondents.

• President Reagan's interview

with European TV journalists and

post-Summit report to Congress,

transmitted via USIA's WORLDNET satellite television network,

were part of the more than 18 hours

of satellite television broadcasts

devoted to the Summit.

• USIA's American Participant

speakers program brought lllany

u.s. officials and private experts

to foreign audiences through travel

and international telephone confcrcncc calls.

• In Geneva, a team of27 L'SIA

officers provided pre~s support and

distributed 62 separate White

House transcripts, [let sheets, and

otlicial texts totalling 102,000 pages

to the 3,O()() journalists covering

the Summir.

L'.S. public diplomacy efforts

were an important element in the

success at Geneva. Through t:SIA's

media and the personal contact of

its communications professionals,

millions received, direct and unfiltered, the U.S. agenda for the

Summit and its rationale for dealing with issues of regional and bilateral concern, human rights, and

arms control. The Commission

commends the President, till' Secretary of State, and the Director

of USIA for using wisely and well

the valuable instruments of public

diplomacy available to them.

Public diplomacy supplements

and reinforces traditional diplomacy by explaining U.S. policies

to foreign publics, by providing

them with information about

American socicrv and culture, by

enabling many to experience the

divcrsitv of our culture personally,

.1I1d by assessing foreign public

opinion for American Ambassadors and f }reign policy decisionmakers in the United States.

Advanced co rn rnu n icat ious

technology, growing audiences,

and recognition by most world

leaders of the value of obtaining

public support tor their statements

and actions has given public diplomacv new importance. USIA in

this decade has made an extraordinary capital in. csrmcnr in the future and has become a ti.1I1 partnCl'

in the conduct of our countrv's Iiircign relations.
To the Congress and to the President of the United States

In accordance with the requirements of Section 8, Reorganization Plan

No.2 of 1977 and Public Law 96-60, the United States Advisory

Commission on Public Diplomacy submits herewith its annual report

on the Q.S. Information Agency, and the activities of the U.s. Government concerning public diplomacy.

Respectfully submitted,

Edwin J. Feulner, Ir., Chairman

President, The Heritage Foundation

Virginia (R)

e. robert (bob) wallach

Vice Chairman

Lawyer-Counselor

Dean, Hastings Law School

Center for Trial and

Appellate Advocacy

California (D)

Priscilla L. Buckley

Senior Editor

National Review

New York (R)

Hershey Gold

Chairman of the Board

Super Yam Mart

California (D)

Tom C. Korologos

President

Timmons and Company, Inc.

Virginia (R)

Richard M. Scaife

Publisher, The Tribune Review

Publishing Co.

Pennsylvania (R)

Herbert Schmertz

Vice President, Public Affairs

Mobil Oil Corporation

New York (1))
Transmittal Letter 1

Message from the Chairman 3

The Role of the Commission 4

Summary of Findings and Recommendations 6

Public Diplomacy and Foreign Policy

The Vallie !!f'Public Diploma~l' ]()

Buildil1jf from Geneva 11

Public Diplomacy and Terrorism 12

Poli~:v Formulation 13

Resources 14

Research 15

Semantic Distortion 17

Media and Programs

Television 18

Voice !!f'AlIIel'ica 22

W ircless File 27

American Participants 28

Exhibits 29

National Endowment fhr DC1110Cm~1' 31

Educational and Cultural Programs

h."(C/JmlJJe.1"aud International Visitors 32

Cultural Diplomacv 37

Boo" Proqrams 38

F,lIJJlish Tcac!Jil~1J 39

F,ast-West Center 40

Management

Security and Public Diplomacy 41

USIA (~lJicel' As.I"~1J1l11Zcnts 43

Tmininu 44

Representation 45

Utilization of Personnel 46

Crniqrcssioual Grant Controls 47

Tclccomninnications Plannitui 48

2
A Message from the Chairman

s mv colleagues and I

prepared this report on

the conduct of public

diplomacy during the

past vcur , we found

many reasons to be encouraged, The United

States is making a signiticanr, longoverdue investment in its international information and educational exchange programs,

The u.s. Informarion AgenC\'

has embarked on a course marked

by innovation, new vigor, and program expansion, USIA is setting

the pace in international satellite

television. State-of-the-art communicarions technologies arc generating new efficiencies and expanding the reach of public

diplomacy programs from radio

broadcasting to English teaching,

Educational and cultural exchanges are returning to mid-1960s

levels Iollowinj; a long downward

slide.

This growth is fullv justified and

represents a healthy corrective to

two decades of erosion in USIA's

budget and staff resources. The

Reagan Administration, with the

strong support of this Commission and with a bipartisan COI1SCIlsus in the Congress, is at last giving

USIA the necessary means to per-·

form its public diplomacy mission

effectively. The Agency has come

1:1r;much remains to be done,

USIA will face new challenges

in the days ahead. As world public

opinion becomes increasingly important in international athirsand as appreciation tor USIA's capabilities gro\\'s here at home-the

Agency will be asked to do more.

And it will be asked to do so without the assurance of stcadilv increasing resources. "Gramm- Rudman-Hollings" is altering the

American political landscape ,1I1d

will affect the resources available

till' public diplomacy.

Huge sums for U.S, embassy securirv will decrease further the 1"(-

sources available for program operations in all of the foreign affairs

agencies-an unanticipated consequence of international terrorism. Hard choices lie ahead.

This Commission does not want

to see the achievements of the recent P,lst undone by hasty or illadvised cutbacks. Technological

modernization must continue;

programs of prO\'en value must be

maintained; and USIA must be able

to take advantage of new opporrunirics.

III the current budget climate,

however, it is imperative that USIA

eng,lge in considered assessment

of its programs, priorities, and longterm institutional goals, To this end,

our report encourages USIA to do

a better and more consistent loh

of program evaluation. The AgenC\'

needs to increase its media and

program effectiveness studies. It

must look at all of its grant recipients, traditional "core groups" and

others alike, to ensure that taxpayers' dollars are being spent wisely.

Within USIA, both new and established programs should be examined carefully to determine their

continued relevance to the public

diplomacy needs of the 19805.

This report contains the principal findings and recommendations of the seven members of this

Commission, all of whom bring to

the task a wealth of experience and

deep dedication to the mission of

public diplomacy. We have been

selective. We have looked at programs, resource needs, technological modernization, and USIA's

public opinion advisory role in the

t(lreign policy process. At the heart

of public diplomacy, however, are

the communications professionals

who C1IT\' out the work of USIA

in the U nircd States and abroad,

rnanv at high personal risk. We hold

them in high esteem. Thcv arc

serving their country well.

The American people can continue to be pleased with the work

that USIA and its people are doing.

Edwin J. Feulner, J 1'.

Chairman

April 16, 1986

3
The Role of the Commission

Advisory Commission members meet month~'Vin Washillgton. (From left to rtlfht) Commissioners Tom

C. Korologos, Priscilla L. Buckley, Richard M. Scaift, Chairman Edwin f. Feulner, [r., Vice

Chairman e. robert (bob) wallach, Commissioners Herbert Scbmcrtz and Hershey Gold.

incc 1948, the U.S. Advisory Commission on

Public Diplomacy and

its predecessors have

represented the public

interest by overseeing the

international information, cultural and educational exchange programs of the United

States.

The Commission is a perInancnt, bipartisan, and independent

body created by Congress to ITCornmcnd policies and programs in

support of USIA \ mission and

principal activities. It is required

bv law to assess the work of the

Agency and to report its findings

and recommendations to the President, the Congress, the Secretary

of State, the Director of USIA, and

the American people.

The Commission's seven members are appointed by the Prcsi4

dent with the advice and consent

of the Senate. All are private citizens who represent a cross-section

of professional backgrounds and

who volunteer their time in the

conviction that public diplomacy

is indispensable to our national security and to the achievement of

U.S. foreign policy objectives.

The Commission was established in 1978 as the successor to

the U.S. Advisorv Commission on

Information for USIA and the U.S.

Advisorv Commission on International Educational and Cultural

Affairs tor the former Bureau of

Educational and Cultural Affairs

in the Department of State.

In fulfilling the responsibilities

given to it by Congress, the Comnussion:

• formulates and recommends

policies and programs to the President, the Secretary of Stare and

the Director of USIA to carry out

the functions vested in the Director and USIA;

• Appraises the effectiveness of

USIA's policies and programs;

• Reports annually to the President, the Congress, the Secretary

of State, and the Director of USIA

on the programs and activities of

USIA and their effectiveness;

• Submits other reports to the

Congress as it deems appropriate

and seeks to develop public understanding and support for USIA's

programs; and

• Assesses the degree to which

the scholarly integrity and nonpolitical character of USIA's educational and cultural exchange

programs have been maintained and

the attitudes of foreign scholars and

governments regarding such activities. *

The Commission is an advisory

body only. It is not directly involved in USIA's operations or in

the management of its internal affairs.

The Commission's oversight activities are carried out in a variety

of ways. It meets monthly with Di-

. .

rector Charles Z. Wick and other

senior officials in USIA. It meers

periodically with members of the

Agency's Congressional oversight

committees and their staffs, senior

foreign affairs officials in the executive branch, and public diplomacy professionals from the private sector.

Last year, the Commission met

with Secretary of State George

Shultz, Attorney General Edwin

Meese III, CIA Director William
Casey, Admiral John M. Poindexter, Senator Richard Lugar (R-IN),

Senator Daniel J. Evans (R-WA),

Senator Orrin G. Hatch (R-UT),

Rep. Dan Mica (D-FL), Rep.

Olympia Snowc (R-ME), Director of White House Communications Patrick Buchanan, White

House Principal Deputy Press Secretary Larry Speakes, Assistant

Secretary of State for Public Affairs Bernard Kalb, Assistant Secretary of State for East Asian and

Pacific Affairs Paul Wolfowirz, Assistant Sccrctarv of State for American Republics Affairs Elliott

Abrams, Ambassador Max Karnpclrnan, Ambassador Edward

Rowny, Ambassador Mike Mansfield, Ambassador Arthur W.

Hummel, Ambassador Helene von

Damm-Gucrtlcr, Ambassador

Bruce K. Chapman, Ambassador

Robert Blackwill, Consul General

Burton Levin, Advisory Board for

Radio Broadcasting to Cuba

Chairman Jorge Mas, National

Endowment for Dcmocr acv

(NED) Board Chairman John

Richardson, NED President Carl

Gershman, Admiral Bobby R. Inman, Japanese Foreign Minister

Shintoro Abc, Director of Exhibits for the Tsukuba (Japan) International Exposition Ittci Takeda, Chinese Vice Premier [i

Pcngfci, Chinese Vice Minister of

Culture Lu Zhixian, Beijing University President Ding Shisun, Fudan University President Xie Xidc,

East-West Center Director Victor

Li, and East-West Center Board

of Governors Chairman George

Chaplin.

The Commission testified in

budget hearings on USIA held by

the House Foreign Affairs Subcommittee on International Operations and the Senate Foreign

Relations Committee. In December, the Commission issued a special report, "Terrorism and Security: The Challenge for Public

Diplomacy," to the President,

Members of Congress, and kcv officials in the foreign policy community.

During the year, members of

the Commission visited 26 posts.

The purpose of these visits is to

provide the Commission's deliberations and judgment with a firsthand understanding of the work

of public diplomacy. Commission

members meet with American

Ambassadors, USIA's American

and foreign national staffs, and

opinion leaders from the host

country. The Commission derives

useful comparative insights from

its meetings with foreign officials

and other post contacts engaged

in information and cultural activities. Last year's meetings in China

and Japan with foreign ministry

officials and Asian journalists, tor

example, provided a valuable context in which to view U.S. public

diplomacy activities.

Finally, because of the inadequacy of U.S. Government reprcscnrational funds, the Cornmis-

. sion seeks to extend the reach of

the posts it visits through privately

hosted luncheons and dinners.

These events, which include journalists, government officials, business leaders, scholars, and cultural

figures, provide a program opportunity for the post and a better

understanding of the work of USIA

fix the Commission.

This report sets forth the Commission's principal findings and

recommendations developed during the past year. They arc offered

in the hope that both the Congress

and those charged with the conduct of public diplomacy will benefit from them. As private citizens,

we believe that oversight and evaluation can contribute to the improvement of our nation's public

diplomacy and to a better understanding of its importance by the

American people.

•Section R. Rcoruanizntion Plan Nr». 2 of

1977. '

Advtsorv Commission members discuss U.S. public diplonutcv pro..Q1'f/I1IS with

[apttucsc Forciqn Minister Sbintoro Abc ill Tokv«. (Fl'IIlII Itft to 1'{fTlJt) Vict'

Chairman c. robert (hob) wallach, Connnissioucr TOIll C Koroloaos, ClJfli17I1f/11

Edwin f. Feulner, /1'., interpreter, atui F01't'£fTlIMinister Abc, '

5
Summary of Findings and Recommendations

USIA an-m~crcsfacilities fill' A I1ItTiCfI1l and fiJrcfcrtl

jounialisrs durinq Ol'C7:mH travel lrv the President and

other US. ojjicials.

Building from Geneva

• The Commission finds that in

addition to President Reagan's

skillful public diplomacy at the

Geneva Summit, USIA's efforts

were an important element in its

success.

• The Commission recommends

that a coordinated and comprehensive public diplomacy strategy

be developed at the highest levels

in the National Security Council,

the Department of State, the White

House Press Office and the U.S.

Information Agcncv for the 1986

visit of General Sccrcrurv Gorhachcv to the United States and

the 1987 visit of President Reagan

to the Soviet Union.

• The Commission recommends

the President appoint an experienced senior adviser to coordinate

domestic public affairs and tixeign

public diplomacy decisions relating to the forthcoming meetings

between President Reagan and

General Sccrcrarv Gorbachcv,

6

Public Diplomacy and Terrorism

• The Commission recommends

that USIA move quicklv to develop and carry out an intensive

public diplomacy program in support of United States anti-terrorism policies.

Policy Formulation

• The Commission welcomes increased USIA involvement in

inrcragcncv policy deliberations,

but finds that USIA is still not asked

to advise routinely on the public

diplomacy impact of proposed policy options and 111'11' policies as rhcv

;lIT being developed.

• The Commission recommends

that the National Sccurirx Council

.md the State Department mandate public diplomacy impact assessments tor all major foreign policv decisions.

• The Commission recommends

that senior USIA officers be assigned to regular tours of durv ar

the White House to provide staff

support and a public diplomacv

perspective to the National Sccurirv Council and the Office of the

Press Sccrcrurv.

Research

• The Commission recommends

that USIA's Office of Research be

made an independent element ITporting dircctlv to the .\gency's

Director.

• The Commission welcomes the

implementation of its past recommendations that USIA enhance the capability of its Oft-ice

of Research to conduct attitudinal

surveys ;1I1dprovide assessments of

fixeign public opinion to the foreign affairs communirv. Funds for

opinion research an: no", commensurate with the level of profcssional staff available to use them,

and it is unlikclv that further increases could be utilized cffcctivclv .

• The Commission finds that

USIA has increased its media and

program evaluation studies, but

manv Agcno, managers continue

to ignore or misunderstand their

potential as managerial tools tor

program direction and achieving

cost s;lyings, The Commission recommends that USIA expand its use

of the Office of Research to assess

the effectiveness of Agency programs and do more to insure the

utilization of program evaluation

hv Agenc\' managers.

• The Commission repe,lts its

recommendation that a coordinated research effort, involving all

U .S, foreign affairs agencies, he

organized under the direction of

the National Sccurirv Council to

provide the US. Govcnuncnr with

timclv compararivc data on the

cultural, information, and propagal1lb policies and programs ofrhc

Soviet bloc and other countries.

Television

• The Commission reaffirms its

support for the development ofthe

WORLDNET television service

as a major program arm of U.S.

public diplomacy. The Comrnission commends USIA t(1I' its innovarivc use of "interactive" press

conferences with foreign journalists, its negotiation of favorable financial terms for satellite time in

Europe, and its efforts to install

"television receive onlv" (TYRO)

dish antennas at USIA's posts

worldwide,
• The Commission recommends

that USIA as a high priority continue to pursue technical arrangements for a worldwide television

broadcasting network. The expansion of regional daily broadcast

services will require audience surveys, careful long-range planning,

and considered assessment of appropriate programs and program

policies.

• The Commission recommends

the National Sccurirv Council examine WORLD NET with a view

toward clarifving its mission, longterm needs, and appropriate institutional role through the preparation of a National Securitv Decision Directive.

• The Commission recommends

that Congress fund a new rclcvision service (RIAS-TV) to be added

to Radio in the American Sector

in West Berlin for broadcasts to

the German Democratic Republic

and the federal Republic of Gcrmanv.

Voice of America

• The Commission finds that

VOA is not moving as rapidlv as

national needs require in meeting

the gO~lls of its multi-year modernization program.

• The Commission finds that

VOA continues to be surpassed bv

other major international radio

broadcasters in facilities, equipment, personnel, signal strength,

and broadcast hours. It welcomes

Congressional willingness to provide adequate funding for modernization.

• The Commission finds that

OMB's $1.3 billion cap on VOA's

multi-year modernization plan will

inhibit VOA's ability to meet the

goals developed in response to the

policy direction of the President

and the National Security Council.

The Commission recommends that

OMB, USIA, and the NSC review

VOA's modernization budget in

light of recent detailed planning,

current price estimates, increased

physical security costs, the terms

of negotiated site agrcements, and

overall broadcast requirements.

• The Commission is disturbed

by the large turnover of VOA Directors and finds that prolonged

senior level vacancies and lack of

continuirv have advcrsclv affected . .

the implementation of modernization initiatives and the management of ongoing VOA programs.

• The Commission finds that increased resources and signiticlIlt

U.S. private sector participation

arc needed to nourish VOA's increasingly effective training program for Third World radio

broadcasters.

• The Commission commends

USIA for resuming daily VOA

broadcasts to Western Europe, for

the quality of VOA Europe's audience research design, and for its

innovative use of AM. fM, sarcllite, and cable dclivcrv systems.

USIA should evaluate VOA Europe carcfullv to determine whether

it is reaching significant audiences

with effective programming. Addition of German, French, Italian,

and Spanish language broadcasts

should be based on a thorough assessment of research findings.

• The Commission commends

USIA for getting VOA's Radio

Marti program on the air and encourages the Agency to undertake

thorough evaluation of this important new service,

T/;Z:~ VOA ntastcr control coniplcx lFas built in 1954, /11

Aunust 198(J. a 1Ifll' solid-stair contputcr-nssistcd IIImtlT ((111-

trol ~vstCIII will bcaiu operations.

7
SUMMARY OF FINDINGS AND RECOMMENDATIONS

Exhibits

• The Commission welcomes the

resumption of traveling U.S. thematic exhibits accompanied by

language-qualifiedAmerican guides

to cities throughout the Soviet

Union.

• The Commission recommends

that USIA fulfill its commitment

to provide a United States presence at Vancouver Expo '86 and

Brisbane Expo '88. Before the U.S.

commits to additional events sanctioned bv the Bureau of International Expositions, however, USIA

should chair an interagency study

of the political, commercial, and

public diplomacy value of international expositions, their costeffectiveness, and appropriate levels of U.S. Government and private sector participation in them.

USIA also should reassess its own

capability as presently organized

to provide high quality U.S. pavilions and exhibits.

The American Cultural Center in Dhalea, Banqladcsb.

Exchanges and International

Visitors

• The Commission urges USIA,

the Department of State, and the

relevant private sector organizations to move quickly to develop

specific programs fix u'S.-Soviet

exchanges pursuant to the General

Exchanges accord, other exchange

initiatives undertaken at the Geneva Summit, and the agreement

by President Reagan and General

Sccrctarv Gorbachev to reviewthese

programs at their next meeting.

• The Commission welcomes the

Central American Program on

Undergraduate Studies (CAMPUS), but finds Congressional

limitation to a one-time pilot group

of 154 students falls far short of

the Kissinger Commission's recommendation. The Commission

recommends the program be expanded.

• The Commission supports

funding for enrichment programs

to provide more than 340,000 foreign students enrolled in U.S. collegesand universitieswith a broader

understanding of the United States.

• The Commission recommends

that USIA's Office of Research undertake evaluations of U.S. Government-funded exchange and international visitor programs.

Cultural Diplomacy

• The Commission finds that

funding for USIA's arts and cultural presentation programs has not

kept pace with national needs and

is far lessthan what is being spent

by America's allies or the Soviet

Union. USIA should examine its

overall budget with a view toward

ensuring greater balance between

its educational exchange and cultural presentation programs.

Book Programs

• The Commission finds the

United States is still not competitive in inrcmational book and library activities despite recent

funding increasesfix USIA's book

programs.

• The Commission endorses the

major findings of the Task Force

on U.S. Books Abroad and recommends that USIA and the National Security Council move

quickly to implement them.

East-West Center

• The Commission welcomes recent improvements in the management and program relevance of

the East-West Center and encourages USIA's Public Affairs Officers to make greater use of this

valuable resource. The Commission recommends the East-West

Center give increased attention to

narcotics issues.

Security and Public Diplomacy

• The Commission recommends

that legislation on diplomatic securitv fullytake into account USIA's

public diplomacy mission, the need

for relatively free public access to

USIA's libraries and information

centers, and the desirability that

USIA give visible evidence of the

free and open socicrv it represents.

• The Commission recommends

that legislation require the Department of State to consult with

USIA on security policies and programs, funding levels,and security

standards. USIA should have authority and separately identified
USIA's American Studies Research Center in Hvdcrabad. India, SC11'CS 2,500

scholars and some 55 Indian universities. .

funds to furnish logistical security

support to its overseas installations

and to perform its own security

inspections.

• The Commission believes USIA

should move quickly to adopt all

reasonable sccurirv measures without jeopardizing its mission. Security decisions affecting USIA

should be made on a flexible, caseby-case basis in full recognition of

differences in local threat levels.

These decisions should be based

on Country Team assessments and

lead to the least possible isolation

of USIA from its audiences.

• The Commission recommends

that physical security policies apply equally to U.S. and foreign national employees at their place of

work.

USIA Officer Assignments

• The Commission finds continued under-representation of senior

USIA officers in Ambassadorial and

Deputy ChiefofMission positions

and recommends that the President and the Secretary of State correct this imbalance.

• The Commission recommends

that USIA officers be given equal

consideration with their State Deparrmcnr colleagues for Charge and

actinq DCM positions.

• The Commission recommends

that the Department of State increase the variety of Washington

assignments gi\'en to USIA otficcrs.

• The Commission recommends

that a USIA officer serve as the

senior public diplomacy advisor to

the Secretary of State.

• The Commission recommends

that USIA officers be assigned

routinely to regional and other

policy positions on the staff of the

National Security Council.

Training

• The Commission recommends

that USIA and the Department of

State move with greater urgcncy

to institute a systematic program

of media and advocacy skills training for Ambassadors, Deputy

Chiefs of Mission, and USIA officers.

• The Commission recommends

that USIA officers receive more

training on narcotics issues, and

the impact of production, trafficking, and consumption on producing and consuming nations.

Representation

• The Commission reaffirms its

finding that personal contact with

foreign opinion leaders is one of

the most important functions of

public diplomacy and urges that

USIA's representation funds be

made comparable to those of other

U.S. Government agencies.

Utilization of Personnel

• The Commission finds that new

communications technologies and

program expansion continue to

make extensive demands on the staff

resources of USIA's overseas posts.

Adjustments in personnel levels that

may be required by federal budget

reductions should not be made in

the Agencv's field operations.

Congressional Grant Controls

• The Commission recommends

termination of the requirement that

Congress be notifcd 15 days before USIA may award proposed

program grants.

Telecommunications Planning

• The Commission recommends

that USIA establish a central planning body within the Agency to

coordinate policy, technical, and

resource decisions relating to its

information and telecommunications systems.

9
Public Diplomacy and Foreign Policy

The Value of Public Diplomacy

"The improvements in USIA in this Administration

... make up a list of admirable accomplishments,

all of which have aimed at one thing - enhancing

the Agency's ability to do its job. And make no

mistake about it, that job is vital to the cause of

truth throughout the world."

President Ronald RcaLQall

International events are increasingly played out, and their outcomes shaped, in the arena of world

public opinion. In the last year, for

example:

• President Reagan went on the

Voice of America to explain U.S.

goals at the Geneva Summit to the

Soviet people.

• General Secretary Gorbachcv's

views before the Summit were carried at length in a Time magazine

interview.

• Contending candidates in the

Philippine national election spent

practically as much time on U.S.

television as their own.

• Libya's Mu'amrnar Qadhafi

spoke directly to the American

people for 20 minutes on the

MacNeil-Lehrer news hour.

• Soviet spokesman Vladimir

Posner was interviewed live on

ABC Television News immediately following President Reagan's

Fcbruarv speech to the nation on

defense spending.

• The views of South Africa Government officials on violence in that

counrrv were brought to American

dinner tables nightly on network

television news.

10

Public diplomacy is part of a

worldwide transformation in the

conduct of international affairs.

Traditional secret govcuirrienr-rogovernment communications have

become less important as world

leaders compete directly for the

support of citizens in other countries. It is happening in democracies, where people vote, and there

is hardly a police state left that can

ignore foreign public opinion.

Put simply, instant global communications are breaking down

rigidities and isolation. and public

opinion is increasingly influential

in shaping foreign policy.

U. S. representatives overseas

have a new and critical role to till

as public diplomats. In a sense, the

United States is waging a political

campaign tC)J'its views. Every day

is an election day around the world,

and our Ambassadors should think

of themselves as being engaged in

a battle tC)J'votes.

The United States Ius powerful

ideas on its side. Indeed, American

ideas are the most truly rcvolutionarv the world has known. They . .

include individual rights, the democratic way oflife, the effectiveness

of the free market system, and the

power of truth in a free and open

society.

But no message, however persuasive, can be effective without an

audience predisposed to receive it.

And here the United States begins

to lose some of its advantage. In

Western Europe, for example, many

voters have no direct recollection

of v\'orld War II, when America

was a major force in rescuing Europe from Nazism and in contributing to its postwar economic n

construction. In the dcvclopin

world, deep cultural differences m,

make the American message di

ficulr to translate. In both Euroj

and the Third World, econom

differences may further widen tl

gap and reduce sympathy for tl

United States.

The challenge, then, is to u:

our skill as communicators and al

vanccd technology to make tl

most of our advantages in the glob

campaign ahead.

The campaign need not be low

nor should it be shrill and manu

ulativc, But more effective use G

be made of television and radio

particularly when direct messag

to mass audiences are reinforce

by the personal contact of publ

diplomats abroad. Inaccurate i

formation can be corrected. Inti;

marion about the U.S. and its p<

icics can be presented to forci;

opinion leaders in subtle, persu

sivc, and imaginative ways. AI

those opinion leaders can be i

vitcd to come to the United Stat

to see for themselves.

It is prudent to recognize tl

appropriate limits of public dipl

macy, but we have not yet - a~

government or as a society - cor

to appreciate its full potential.
Building from Geneva

• The Commission finds that in addition to President Reagan's skillful public diplomacy at the Geneva Summit, USIA's efforts were an important

element in its success.

• The Commission recommends that a coordinated and comprehensive public diplomacy strategy be developed at the highest levels in the National Security Council, the Department of State,

the White House Press Office and the U.S. Information Agency for the 1986 visit of General Secretary Gorbachevto the United States andthe 1987

visit of President Reagan to the Soviet Union.

• The Commission recommends the President

appoint an experienced senior adviser to coordlnate domestic public affairs and foreign public diplomacy decisions relating to the forthcoming

meetings between President Reagan and General

Secretary Gorbachev.

he Geneva Summit was

as much a public diplomacy event as it was a

bilateral encounter between two governments. No summit has

been so extensively CO\'-

crcd by the press, nor have the

leaders and gO\'ernments of both

nations been so solicitous of the

media - and world public opinion - in shaping their agendas,

proposals, and styles of presentation. U.S. public diplomacy efforts

proved successful in articulating

national objectives and in achicving accurate media cO\"Crage of

them. Much of the credit must go

to the President himself Much too

must go to USIA.

In many ways the next Summit

will be more difficult. Continued

single-minded Soviet opposition

to the Strategic Defense Initiative,

coupled with skillful distortions of

SDI as an offensive space weapons

program, make substantive progress difficult. Soviet propaganda

tactics and acccssibilirv to U.S. media will test our abilities to anticipate and respond. And while the

environment in Geneva limited peripheral news events that could advcrsclv affect U.S. interests, many

groups and individuals will seek to

exploit the Soviet leader's presence

in this counrrv to advance their own

causes.

It is essential that the United

States move quickly to develop a

public diplomacy strategy at the

highest lewis in the National Sccurirv Council, the Department of

State, the White House Press Office, and the U.S. Information

Agenc~' for the 1986 visit of General Sccrctarv Gorbachcv to the

United States and the 1987 visit

of President Reagan to the Soviet

Union. It is equally important that

USIA be involved fully in this

planning process.

Kcv clements in developing such

a strategy should include early

guidance on Summit policies .1I1d

objectives, early decisions on how

public aspects of the meetings will

he approached, close contact between policy-makers and the public diplomacv community, conrinuitv between the meetings of

Summit-related planning groups,

continuing outreach to the foreign

media, and a well-conceived plan

for a series of public appearances

hv senior U.S. officials, taking into

consideration both their substantive and symbolic aspects.

To help achieve these objectives,

the Commission recommends the

President appoint .111experienced

senior advisor to coordinate domestic public affai1's and .fiWCtffll public diplomacy decisions relating to

the forthcoming meetings between President Reagan and General Secretary Gorbachcv. This appointment should be made quickly.

Former Ambassador ro Ireland Peter H. Dailey's role as White House

coordinator for public diplomacy

efforts to develop European support till' the deployment of intermediate-range nuclear missiles

should serve as a model.

The Commission also recommends that the National Security

Council and the Department of

State include senior USIA officers

more fully in the Summit planning

process. V\'c are pleased the Agency's European Public Affairs Officcrs were brought to London in

March for a Summit public diplomacy planning conference with

Washington policv-makcrs. But to

date, the NSC has not moved

quickly enough to take full advantage of USIA's officers in Washington, Senior Agency officers

should be included in all NSC and

interagency policy planning groups

dealing with Summit issues. Senior USIA officers also should be

detailed to the NSC and the Office

of the Press Secretary to provide a

public diplomacy perspective 111

Summit planning.

II
PUBLIC DIPLOMACY AND FOREIGN POLICY

Public Diplmnacy and Terrorism

• The Commission recommends that USIA move

quickly to develop and carry out an intensive public

diplomacy program in support of United States antiterrorism policies.

he Commission strongly

believes public diplomacy should playa much

greater role in U.S. ef.-

forts to deal with international terrorism. The

assassination of Prime

Minister OlofPalmc in Sweden was

a graphic reminder that no nation

is immune from acts of violence.

Economic sanctions, traditional

industrial security techniques, and

bilateral and multilateral political

responses to terrorism are not

enough. They must be supplemented I1\' aggressive public pressure on our European allies and

others to take their anti-terrorist

responsibilities seriously.

foreign publics in Western Europe and elsewhere are ahead of

their gO\'Crnments. Loss of tourist

revenues, particularly from the

United States, increased security

costs, fears of investors, and natural human revulsion at even' new

terrorist horror displayed on television and the front pages of

newspapers are leading citizens to

express anger at the inadequate responses of their governments -

and to demand firmer action bv

them.

The United States must make

greater use of its public diplomacy

resources to provide foreign publics and their governments with

persuasive, comprehensive evidence of the costs oftolerating rcr12

Access controls at the American Emlrassv in Boqota, Colombia, an' part ofa JP01ofdwide proJTmm to enhance security fin- u.s. facilities and personnel.

rorism, of who is carrying out terrorist acts, and with whose

assistance. The Vice President's

Task force on Combatting Terrorism and National Security Decision Directive 207 have charged

a special interagency counterterrorism committee with developing

a comprehensive public affairs

strategy to combat terrorism. USIA

heads the effort dealing with overseas public diplomacy, and a strategy document is scheduled fin

completion by May 1986. We urge

the Agency to move quickly to implement this directive and to Gl1T~'

out an intensive public diplomacy

program in support of United

States anti-terrorism policies.
RJlicy Iormulatum

• The Commission welcomes increased USIA involvement in interagency policy deliberations, but

finds that USIA is still not asked to advise routinely

on the public diplomacy impact of proposelJ policy

options and new policies as they are being developed.

• The Commission recommends that the National

Security Council and the State Department mandate public diplomacy impact assessments for all

major foreign policy decisions.

• The Commission recommends that senior USIA

officers be assigned to regular tours of duty at the

White House to provide staff support and a public

diplomacy perspective to the National Security

Council and the Office of the Press Secretary.

here is no doubt in the

Commission's mind that

the nation's leaders and

the foreign policy community have come to appreciate more fully the

importance of public diplomacy. But all too often this extends principally to public diplomacy programming once policy has

been made - not to the AgenC\''s

value in advising on the public

opinion impact of policies before

they are made.

The Commission is pleased with

the recent increase in USIA's participation on interagency groups

covering a wide variety of issues,

both at the senior policy level and

at the level of program implementation. The National Sccurirv

Council's International Inforrnation Committee, an interagency

planning and coordinating body

chaired by USIA, continues to play

a constructive role in bringing

public diplomacy considerations

to bear during the formative stages

of policy.

But the need to consider the

public aspects of foreign policy

more consistently and earlier in the

policy process still exists. USIA's

officers have a wealth of knowledge about foreign media and cultures, and about the attitudes of

foreign opinion-makers. The

Agmcy's public opinion research

is thorough and increasingly timely.

flash telephone surveys, for example, were used for the first time

during and after the Geneva Summit. This information does little

good if public diplomacy professionals are not active participants

at the table when policies are made.

The Commission recommends

the National Security Council and

the State Department mandate

public diplomacy impact assessmcnts for all major foreign policy

decisions. The assessments should

include both an analysis of potential foreign public reaction to policy options and recommendations

for public diplomacy activities.

Senior USIA officers have served

successfully through the years in

other parts of the U.S. Government, including the White House,

the State Department, the Arms

Control and Disarmament Agency,

the Department of Defense, and

the Agency for International Development. The assignment of more

USIA officers to the foreign affairs

,lgencies would increase cooperation and appreciation of public diplomacy. The Commission spccificallv recommends that senior USIA

officers be assigned to reqular tours

of duty at the White House to provide staff support and a public diplomacy perspective to the National Security Council and the

Office of the Press Sccrctarv.

Secretary oftl»: Treasury [ames A. Baller III and other senior U.S. officiah

answer questions at a press conference orqanizcd by USIA at tlic 1985 Ol:'CD

Mill istcrial Council ntcctinq in Paris.

13
PUBLIC DIPLOMACY AND FOREIGN POLICY

Resources

DIlIl,\r:'o

(1111111I1ion\)

800

U.S. Information Agency

Budget (1967·1986)*

700

g Total Budget/Actual Dollars

Ii) Operating Expenses/Actual Dollars

E!I Operating Expenses/Constant Dollars

600

M In recent years, USIA's total ap·

propriarion included Hinds for

500 VOA modernization, V(lA's

F"'-- RadioMartiprogram,andthe ----,m'-------------j

National Endowment for Democracv, which did nor exist in

the 1960s and the 197(h.

400

300

200

100

1967 1970 1973 1Y76 IY7Y IY82 1985

he Commission supports President Reagan's FY 1987 budget

request for USIA of

$959.2 million. The rcqucst is an increase of

$104.5 million from the

Agency's FY 1986 appropriation

of 5854.7 million. *

Dismavcd bv the erosion of

budget and staffresources for public diplomacy during the past two

decades, this Commission has consisrcnrlv advocated that USIA be

gi,'L'I1the funds and people it needs

to perform its essential mission well.

We appreciate that President Reagan, USIA Director Charles Z.

Wick, and a bipartisan consensus

Coach Peter Barry of SOUtbC1i1OrCJJOIlState Collcqc, a participant in USIA's

Sports America pro..lf1·am.conducts a lntskcthall workshopfor members ofthc Somali

national team.

14

in the Congress together in rc

years have brought USIA a I

way toward this goal. US)

growth is fully justified. G

pared with the expenditures ofo

foreign "Hairs and defense a1

cics, it is a small but wise im

merit in our national sccuritv.

The term "Gramm-Rudu

Hollings" has entered the An

can political vocabulary, howc

and USIA is not exempt fron

impact. USIA will take its sh.u

reductions, but the Comrnis

docs not wish to see the gain

recent vcars undone. Gran

Rudman-Hollings should not n

trimming on modernization,

ting valuable traditional progr~

or postponing new initiatives w

technical opportunities and '

gram needs warrant.

It should mean that LTSIA

come more conscious, in the

rent budget climate, of the I

to spend its resources wisely

well. It should mean that all Ag.

grant recipients-traditional ",

groups" and others alike-be:

jeer to the smile careful scrut

periodic review, and prog

standards. And within USIf

should mean that both new

established programs be lookc

closely to determine their cl

rivcncss and relevance to the pl

diplomacy needs of the 19801

As we point out throughout

report, USIA must do a better

of program evaluation, of cs

lishing priorities, and of Iong-r.

planning.

'USIA's FY I YX() .ippropriarion of SXS4.'

million reflects Gr.mun-Rudm.m-Hollinus

reductions of S37.6 million .md .\ pl'ndi~l!!

plcmcnral of S 17.3 million lor RL-\S-T\' .

L'.S.-So\"il't L'xchangl's.
Research

• The Commission recommends that USIA's Of- derstand their potential as managerial tools for

fice of Research be made an independent element program direction and achieving cost savings. The

reporting directly to the Agency's Director. Commissionrecommends that USIA expand its use

• The Commission welcomes the implementation of the Office of Research to assess the effectiveof its past recommendations that USIA enhance ness of Agency programs and do more to insure

the capability of its Office of Research to conduct the utilization of program evaluation by Agency

attitudinal surveys and provide assessments of for- managers.

eign public opinion to the foreign affairs commu- • The Commission repeats its recommendation

nity. Funds for opinion research are now com- that a coordinatedresearch effort, involvingall U.S.

mensurate with the level of professional staff foreign affairs agencies, be organized under the

available to use them, and it is unlikely that further direction of the National Security Council to proincreases could be utilized effectively. vide the U.S. Government with timely comparative

• The Commission finds that USIA has increased data on the cultural, information, and propaganda

its media and program evaluation studies, but many policies and programs of the Soviet bloc and other

Agency managers continue to ignore or misun- countries.

SIA is uniquely qualified

to advise the President,

the National Sccurirv

Council, and the Department of State on the

policy making implications of foreign public

opinion and attitudes toward the

United States. In its advisory role,

the Agency uses the reporting of

its field officers and "assessments

of the impact of actual and proposed United States foreign policy

decisions on public opinion abroad"

prepared by the Office of Research.'

In previous years, the Commission has recommended that funding for USIA's research programs

be increased to meet national security requirements. With

Congressional support, the Agency

has implemented this recommendation and significantly increased

its research budget. This has permitted additional opinion sun'eys

on defense and economic issues as

well as more timely analvscs, including the use of "Hash surveys"

during the Geneva Summit. The

Agency also has increased its research briefings for policy-makers.

The Commission welcomes this

enhancement of USIA's research

capability. funds for attitudinal

surveys are now commensurate

with the level of professional starr

available to use them, and it is unlikclv that further increases could

be utilized cffcctivclv,

Program Evaluation

Although attitudinal research

commands more attention and the

dominant share of USIA 's research

budget, the Agency has increased

funds for media studies and cvalnation of its products and programs. The Commission recommended increased program

evaluation in recent reports and

finds its rationale even more compelling at a time when the GrammRudman- Hollings Act signals I'Cducrions in federal spending, and

an examination of the effectiveness

of current programs.

15
PUBLIC DIPLOMACY AND FOREIGN POLICY

The Commission is mindful of

the difficulties in asscssing program value and cost-effectiveness

in public diplomacy. "No cash rcgistcr rings," former USIA Director

Edward R. Murrow once said,

"when a man changes his mind."

There are many techniques

available to public diplomacy managcrs, however, that permit systcmatic analysis of program cffecrivcncss. Properly designed

program studies can supplement

intuitive judgments and provide

Congress and USIA with valid reasons to modifv, expand, or eliminate programs and media products.

Recent examples of effective

program studies include a review

of Wireless file use bv USIA's

principal posts, an evaluation of

Tsukuba Expo '85, the research

design developed for VOA Europe, an assessment of the Hubert

Humphrey North-South fellowship program, VOA's use of outside linguists for regularly-scheduled language service program

reviews, and an analysis of American studies in ASEAN countries.

Manv of these studies were cond ucrcd by program managcrs

themselves, and the Commission

recognizes the importance of managers evaluating their own programs. We are pleased, too, that

USIA's Management Bureau is

asking all Public Affairs Officers to

16

engage in a worldwide product

usefulness survey, the first in more

than a decade. 2'The Commission

believes, however, that increased

centralization of program studies

in the Office of Research would be

more cost-effective and contribute

to disinterested evaluation and

more widespread use of professional survey design skills.

Despite recent funding increases

for program effectiveness studies

by the Office of Research, the

Commission finds that many

Agcncv managers continue to ignore or misunderstand their potential as managerial tools fix program direction and achieving cost

savings. Reasons vary. Program

evaluation is often seen as a threat

to traditional ways of doing business. for some, the value of established programs, such as academic

exchanges and International Visitors, is assumed to be self-evident.

Others suggest new programs may

need time to develop. Political scnsitivirics in some countries may

preclude use of certain research

techniques.

USIA's media and educational

exchange programs represent substantial capital investments. New

communications technologies, such

as satellite television, an: making

their own legitimate demands on

the Agency's resource base. USIA

cannot continue to fund new and

established programs that look

good largely on the basis of intuitive judgments and anecdotal cvideuce. It faces hard choices. To

choose wisely, it will need a greater

degree of rigorous program cvalnation than it has undertaken to

dare.

The Commission recommends

that USIA increase its Use of the

Office of Research to assess Agencv

programs and do more to insure

the utilization of media and program effectiveness studies bv

Agency managers.

Research Office Requires

Independence

The Office of Research is located

within USIA's Bureau of Programs, which also includes many

of the Agency's program and policy guidance elements. This arrangement in principle entails certain potential conflicts of interest.

Programs carried out by the Bureau include magazines, exhibits,

Arnparts, Arts America, the Wireless hie, and Foreign Press Centers. In the Commission's view, it

is unreasonable to ask the Office

of Research to carry out objective

program effectiveness studies on

Agency elements located in the

same Bureau, reporting to the same

Associate Director. There ought

to be some organizational distance

between program evaluators and

program managers. There is also

value in separating USIA's public

opinion research from its policy

guidance functions. And elevating

the level of research within the

Agency would give its reports

added status and influence.

for these reasons, the Commission recommends that USIA's 0/:

ficc of Research be made an in-
dependent clement reporting

directly to the Agency's Director.

Comparative Studies

In its last report, the Commission

recommended that a coordinated

research effort, involving all U.S.

foreign affairs agencies, be organized under the direction of the

National Security Council to provide the U.S. Government with

timely comparative data on the

cultural, information, and propaganda policies and programs of the

Soviet bloc. We suggested that the

U.S. should have as full a picture

ofthese programs as it does of Soviet bloc military, economic, and

diplomatic activities. The value of

such comprehensive information

for establishing program priorities

and long-range public diplomacy

program planning would more than

justify the effort.

USIA agreed with this recommendation, and the Commission

is aware of Agency efforts to increase its reporting on Soviet bloc

cultural and information activities.

No coordinated and comprehensive interagency studies have been

prepared, however, and the Commission repeats its recommendation.

'Executive' Order 1204l!, March 27, I<J7X

'l'SI:\\ Otficc of Inspections ;lis" mainr.iin, ;111

extensive progr.lIl1 ofperiodic P()st "perform-

.111((.' cv.iluarions" and financial audits of posts

and gr.mr recipients, In recent ~'cars, the ()f~

tirc h.l\ also looked at a few of the Ael'llc\ ....

\\'asi1il1,?tol1 clements. '

Semantic Distortion

oralirarian Systems haw

long misused words and

concepts to impose domestic political control

and further ideological

conflict with other belief

svstcms, This tactic of

seeking psychological advantage

should be of concern to the U.S.

Government, and the Commission

previously has addressed the need

to counteract the distortion ofIanguage by the Soviet Union to

achieve political ends.

Systematic misuse of such concepts as "peace," "democracy,"

"terrorism," and "national liberation" confuses international political discourse and leads to misunderstanding and false

equivalences. The problem is espcciallv acute in the developing

world, where political language is

manipulated and legitimized

through debates in such organizations as UNESCO and the NonAligned Movement, The United

States has been less aware of rhc

importance of semantics in convcving ideas .and perceptions than

its adversaries,

USIA has several modest initiatives underway. It is alerting its

field officers to the seriousness of

the problem and is advising them

on methods of dealing with it. A

collection of essays is being prcpared by an independent scholar

analyzing the misuse of specific

terms. And the Agenc~' is producing a videotape that will present

the views of authorities on semantics and the use of language.

The Commission cndorscs

USIA's gradual and non-polemical

approach. Semantic distortion is a

long-standing problem, and it will

not be resolved bv a quick fix, Nor

will it be resolved bv the activities

of a single agency. USIA needs to

give its own efforts a higher priority. At the same time, others in and

out ofgovcrnmcnr should become

more sensitive to the issue.

.>:

FOl'ctIJ11 jonnialists tour Ellis Is/mid 01/ fl visit orqauizcd 1~1'USIA :r New Yorl:

FOl'ctIJlI PI'CJs Ccu tCI'.

17
Media and Programs

Television

• The Commission reaffirms its support for the

development of the WORLDNET television service

as a major program arm of U.S. public diplomacy.

The Commission commends USIA for its innovative use of "interactive" press conferences with

foreign journalists, its negotiation of favorable financial terms for satellite time in Europe, and its

efforts to install "television receive only" (TVRO)

dish antennas at USIA's posts worldwide.

• The Commission recommends that USIA as a

high priority continue to pursue technical arrangements for a worldwide television broadcasting network. The expansion of regional daily broadcast

services will require audience surveys, careful longrange planning, and considered assessment of appropriate programs and program policies.

• The Commission recommends the National Security Council examine WORLDNET with a view

toward clarifying its mission, long-term needs, and

appropriate institutional role through the preparation of a National Security Decision Directive.

• The Commission recommends that Congress

fund a new television service (RIAS-TV) to be added

to Radio in the American Sector in West Berlin for

broadcaststo the German Democratic Republicand

the Federal Republic of Germany.

18

nc of the most innovative and potentially farreaching achievements

in public diplomacy today is USIA's increased

use of the television medium. In November

1983, the Agency initiated its first

experimental satellite television

press conference. Toda\', USIA's

onc-wav video, two-way audio

WORLDNET interactive programs provide viewers in 75 countries with regular access to prominent American ncwsmakcrs and

vidcoconfcrcnccs on important

public diplomacy themes.

WORLDNET

USIA's WORLDNET television

service consists of two kinds of

programming: WORLDNET

"inrcracrivcs" and regularly-scheduled broadcasts.

WORLDNET intcracrivcs link

Washington and any L" .5. location

with em hassics, consulates, and

USIA posts overseas. Journalists

and other invited guests in up to

five countries question U.S. officials directly via satellite during

hour-long interviews.

Most intcracrivcs have been rclcpress con fcrcnccs designed to

communicate U.S. foreign policy

objectives dircctlv to opinion leaders and important media organizations. But USIA is also beginning to tap the potential of

WORLDNET interactive videoconferences on political, economic, scientific, and cultural topICS.

Examples of WORLD NET il

tcractivcs include:

• An interview with Secretary (

State George Shultz by jourualisi

in five European countries prior t

the Geneva Summit;

• An interview with Atrornc

General Edwin Meese III on il

tcrnarional narcotics issues b

journalists in Latin America

countries;

• A onc-countrv vidcoconfci

cncc with U.S. historian John Hor

Franklin and educators in Franc

preparing questions on America

history for the French national ~H

adcmic examinations;

• A two-hour vidcoconfcrcn,

linking American ~1I1d Soviet ca

diologists; and

• An interview with Under Sel

rcrarv of State Michael Armaco.

bv journalists in Asia on U.S. Sl

curirv concerns in the Pacific.

USIA has produced more tha

l70 WORLDNET interactive

From extensive discussions wit

Ambassadors and USIA office:

during post visits, the Comrni:

sion has concluded that intern.

rives can be extraordinarily dIcl

t ivc. An interview with a kc

American official on an issue in

portant to United States intcrcs

can lead to significant prime tin'

foreign television exposure and c:

tcnsivc print media coveragc. Ju:

as useful in the long run, the Con

mission believes, is the dcvclo]

mcnt of WORLDNETs inrcra.

rive capability and LIseof low-co:

satellite time to link influcnri:

Americans with a varictv of t(lJ

eign audiences.

Some cautionarv notes are in OJ

dcr however. Interviews wit

American officials must produc

genuine news to assure forcig
prime time coverage. Programs

should be tailored closely to post

needs rather than to who is available in Washington or a desire to

fillsatellite time. WORLDNET still

strains the capacity of scarce post

staff and budget resources. Care

must be taken to avoid forcing posts

to participate too frequently or to

spend time inviting busy journalists to programs in which they are

not interested. Some posts believe

that USIA headquarters is not trulv

receptive to candid evaluations of

WORLDNET, and the perception is widespread that there are

penalties for questioning Washington's judgments. The Commission senses that this is changing as

both Washington and field posts

become more comfortable with

WORLDNET. Program evaluation should be strongly encouraged, particularly at this important

early stage in the development of

international broadcast television.

WORLDNET intcractivcs are a

successful progr.ml innovation. The

Commission commends USIA and

Director Wick for bringing about

this visionary and fundamental

change in the conduct of public

diplomacy.

A second kind of WORLD NET

programming began in April 1985

when USIA introduced regularlyscheduled television service between the U.S. and Western Europe. The daily, two-hour broadcasts include: "America Today," a

30-minute news and features program; "Almanac," a rwicc-wecklv

interview show with prominent

Americans; and regular features on

Americana, science, sports, and the

arts. These programs are received

by U.S. embassies, cable television

systems, and closed circuit television in hotels.

This expansion of WORLD-

[ournalists in Sydney question Defense Secretary Caspar Weinbcrqer in Washington dll'rinLqa multicountry WORIJ)NET satellite television "interactive." (Photoaraph provided courtesy afNews

Limited, Sydn~Y, Australia.)

NET was made possible by the

growth of international satellite

capacity and USIA's negotiation

of highly favorable financial terms

for satellite time in Europe.

The Agenc\"s initial contract with

the French Government for

WORLDNET's European service

cost $1.6 million for 520 hours a

year of satellite time, ,1 90 percent

reduction from standard commercial rates. For this amount, the

Agency is able to reach dish anrcnnas at 19 USIA posts (60 more

arc scheduled in Europe) and other

dish antennas within the "footprint" of the EUTELSAT satellite.

The long-predicted arrival of

global television is at hand, and

USIA is taking advantage of fortuirous developments in telecommunications technology. Other

governments arc pursuing similar

uses of international satellite television. The Commission cornmends USIA tor capitalizing on

advantageous rates for satellite time

in Europe and moving quickly to

install TVRO dish antennas at its

posts throughout the world.

The Commission also believes

USIA was wise to experiment with

a dailv WORLDNET service in

Europe. Although still very much

in the R&D stage, with rclarivclv

small audiences, the daily service

is providing the AgC\1c~'with invaluable experience. It is opening

doors with kcv communications

officials in tc)reign governments and

the television indusrrv. USIA is investing early in a powerful and rapidly changing technology. The most

significant payoffs for this aspect

of public diplomacy lie in the future.

USIA should continue to experiment and explore alternative

programming approaches. Some

European posts haw suggested, for

example, that a half-hour news

program produced at the end of

19
MEDIA AND PROGRAMS

the day in Washington for morning broadcast would be successful,

since there is little, "breakfast"

broadcast news in Europe. Video

press releases also should be considered. for example, a major U.S.

Govcmmcnr policy statement on

terrorism or the Strategic Defense

Initiative could be packaged in short

(five minutes or less) video clips.

The clips could then be satellitetransmitted to those posts with dish

antennas, where they would be ITcorded; or they could be shipped

for timely post use. They could be

used for press placement, for

showings to key host country audiences, and for archival use in the

post's video library.

The overall cost for WORLDNET is not high in comparison

with other public diplomacy programs. USIA's WORLDNET

budget in FY 1986 is $9.6 million,

approximately 1.4 percent of the

Agmcy's enacted operating budget.

The overall Television and film

Service budget for FY 1986 is $25.5

million, approximately 3.6 percent

of the Agmcy's enacted operating

budget.

WORLDNET cannot be turned

on and offlike a spigot. Iffunding

is cut due to the Gramm- RudmanHollings Act or other episodic

concerns, the contacts, access, and

favorable arrangements with foreign governments and the television industry could be lost permancnrlv,

Whether to commit to daily television broadcasting in language

services worldwide is a major strategic decision tor the United States.

It involves significant budget and

20

USIA's WORLDNET antenna in Rome is OIIL' of 19 operating in Europe.

staffcommitments tar beyond current levels; judgments on alternative technological futures; and

tough choices among competing

programs, including possible tradeoffs with VOA modernization and

the exchange programs. USIA has

been quietly edging into daily television broadcasting without the

rigorous analysis and long-range

planning such a decision needs. In

the Commission's view, it docs not

yet have the requisite OMB and

Congressional support. The Commission encourages USIA to undertake the audience surveys, careful long-range planning, and

considered assessment of appropriate programs and program policies that expansion of regional daily

broadcast services will require. The

National Security Council should

also examine WORLDNET with

a view toward clarifying its mission, long-term needs, and appropriate institutional role through the

preparation of a National Security

Decision Directive.

Other Programs

The Television and film Scrvic

provides a wide range of other pro

grams.

The TV Satellite file, a weeki:

half-hour magazine-type progran

of news and features, is used b:

140 foreign broadcasters in I I(

countries. "Science World," a bi

weekly TV magazine on develop

mcnrs in U.S. scientific research i

distributed to 94 countries. USII

also produced documentaries tel

worldwide distribution on th.

"first Ladies' Conference on Druj

Abuse" and "Artificial Intclli

gcncc," as well as extensive cov

erage of visits to Washington 0

foreign heads of state. All of rhcsprograms, including TV Sarcllin

file, are distributed on broadcast

quality videocassettes for use b~

foreign television stations and T\

news syndicators.

USIA's Video Library program

begun as an experiment in ten post

two years ago, has now been of

fercd to all Agency posts. A cataloj
RIAS Television

RIAS (Radio in the American Sector) has been the primary U.S. and

West German media link with East

Germany for the past 30 years. Directed and partly funded by L1SIA

and operated by a \V est German

statf, RIAS broadcasts news, commcntarv on international events,

and int~mllation on developments

within East Gcrmanv.

USIA and West German officials arc now proposing to supplement RIAS radio with RIAS

television. Current plans call for a

one-time U.S. capital investment

of S 12 million tor a new building

and technical equipment with recurring annual expenditures of

about $5 million for transmission

costs. West Gcrrnanv would commit to paying approximately $20

million annually for salaries and

other operating expenses.

RIAS-TV would transmit from

West Berlin. Its signal would carry

about 25 miles and reach an estimated 5 million people, including

2 million in West Berlin and 3 million in East Berlin and surrounding population centers of East

Germany. Larger West German

of approximately 1,000 titles permits posts to tailor selections to

country interests and accommodate the growing importance of

home video viewing. Some posts

report increased library usage and

book loans as an unexpected benefit of the Video Library program.

Private sector cooperation continues to enhance USIA's rclcvision and film acquisitions program. By the beginning of 19X6,

USIA had acquired the rights to

more than 225 hours of film and

television products for use overseas at no cost to the Agency. The

programs include the 60-part

"Portrait of America" series, the

Philip Morris collection of cultural

and sports programs, and ASCAP

tributes to Ira Gershwin and Howard Dietz.

The television co-production

program, one of the Agency's most

effective, provides assistance to

foreign TV producers in the United

States. By arranging their video

coverage of press briefings, hardto-get interviews 'with key U.S. officials, and meetings with other

prominent Americans, the Television Service gl'l1erates good will,

prime time coverage, and programs on foreign television stations that may be reluctant to use

Agency-produced programs.

USIA is still exploring how best

to use the versatile and powerful

television medium. It is important

to experiment, to be tolerant of

occasional failure, and to continue

to work toward the establishment

of a worldwide system of direct

television links to American embassies and USIA posts. USIA has

made considerable progress, and

we commend the Agency's television professionals for their

achievements. Nepalese patrons view videotapes at USIA)s library in Kathmandu.

audiences can be reached ifthe signal is transmitted on cable svsrcms.

RIAS-T\"s programs and editorial policies would be similar to

those of RIAS radio.

The Commission finds the justification for RIAS-TV convincing. It would provide balanced, accurate news and an American

perspective to younger audiences

that increasingly arc turning to television in countries that are important to U.S. interests. Although West German television is

seen by a majority of East Germans, the programs are produced

for West German audiences. They

often do not report on developments in East Gcrmanv and frcqucnrlv are slanted against U.S.

policies. RIAS-TV would produce

programs primarily for East German audiences.

The Commission recommends

that Congress fund RIAS-TV as

an unequivocal signal ofU .5. commitment to the vitality of Berlin,

to the free How of ideas in Central

Europe, and to the aspirations of

the East German people.

21
MEDIA AND PROGRAMS

VoiceofAmerica

• The Commission finds that VOA is not moving • The Commission commends USIA for resuming

as rapidly as national needs require in meeting the daily VOA broadcasts to Western Europe, for the

goals of its multi-year modernization program. quality of VOA Europe's audience research design,

• The Commission finds that VOA continues to and for its innovative use of AM, FM, satellite, and

be surpassed by other major international radio cable delivery systems. USIA should evaluate VOA

broadcasters in facilities, equipment, personnel, Europe carefully to determine whether it is reachsignal strength, and broadcast hours. It welcomes ing significant audiences with effective programCongressional willingness to provide adequate mingo Addition of German, French, Italian, and

funding for modernization. Spanish language broadcasts should be based on

• The Commission finds that OMB's $1.3 billion a thorough assessment of research findings.

cap on VOA's multi-year modernization plan will • The Commission commends USIA for getting

inhibit VOA's ability to meet the goals developed VOA's Radio Marti program on the air and enin response to the policy direction of the President courages the Agency to undertake thorough evalandthe National Security Council. The Commission uation of this important new service.

recommends that OMB, USIA, andthe NSC review

VOA's modernization budget in light of recent detailed planning, current price estimates, increased

physical security costs, the terms of negotiated

site agreements, and overall broadcast requirements.

• The Commission is disturbed by the large turnover of VOA Directors and finds that prolonged

senior level vacancies and lack of continuity have

adversely affected the implementation of modernization initiatives and the management of ongoing

VOA programs.

• The Commission finds that increased resources

and significant U.S. private sector participation are

needed to nourish VOA's increasingly effective

training program for Third World radio broadcasters.

22

he Voice of America is

one of the most important instruments of

U.S. public diplomacy.

Broadcasting in 42 languages, it reaches a

wccklv worldwide radio

audience of 119 million with news,

unfiltered explanations of U.S.

policies, and balanced programs on

American thought and culture. For

many listeners, it is their only source

of accurate news and information.

VOA is undergoing a much

needed renaissance. As it enters its

45th year, VOA broadcasts more

programs each week than at any

time since World \iVar II. It also

has embarked on an effort to expand and upgrade its technical bcilitics to modern electronic standards.

The Commission is pleased with

the creativity and quality ofVOA's

recent program enhancements. We

remain concerned, however, that

VOA is not moving as rapidly as

national needs require in meeting

the goals of its multi-year modernization program.

Modernization

The case for VOA modcrnizarior

bears repeating. More than 80 per

cent of VOA's transmitters are a

least 15 years old. More than 3:

percent were manufactured bcfor1955. VOA still has only six op

crating 500 KW supctpowc

transmitters (actually they ar

combinations of aging 250 KWs

compared to 37 used by the Sovic

Union. france has 11, West Gel

many 9, and Great Britain 8. I

broadcasting hours to Africa, I.ari

America, the Caribbean, and Ea:

Asia, VOA ranks no higher rha

fourth in comparison with orh:

major international radio broac

casters.
_SIt:";Il} - 7

President Reagan speaks to the Soviet people before the Geneva Summit from

VOA's studios in Washil1gton. The address was translated into 42 lanlJuages ~)'

VOA for worldwide broadcast and carried on USIA's WORLDNET satellite

television network.

President Reagan announced

plans for VOA modernization in

1982:

"We intend to 1I"1OI'C{arward consistent

with (lIu{fJcta7")'requirements with a

p1"(~fTmmto modernize OUl" primm")'

means of intcrnntional communication,

our international radio svstcm ... the

Voice (!f"Amcrica, Radio· Free }-;1I1"O/lc,

and Radio Libcrtv have been neqlcctcd

.t111"mflny years. '/"hcir eqllipmmt is old

find dctcrioratitiq, their jmw-a11l I"Csources strained. Little bas been done to

counter the ja11ImilYT that has intcusitied ill recent vcars." I

. .

Four years later, in response to

directives from the National Security Council and with the strong

support of Congress, VOA has

made progress. Negotiated agreements have been reached for new

facilities in Sri Lanka, Morocco,

Thailand, Botswana, Belize, and

with Radio Antilles. Negotiations

are nearing completion with St.

Vincent, Israel, and Puerto Rico.

A medium wave station in Costa

Rica has been added to the VOA

network, and a medium wave station in Belize is scheduled to begin

broadcasting in the spring of 1986.

The Commission had the opportunitv to view the first of four prototype 500 KW transmitters being

installed for testing at the Murrow

Relay Station in Greenville, North

Carolina. \'OA has augmented its

engineering staff and undertaken

a number of "front-end" engineering studies.

Yet the Commission is deeply

troubled that VOA continues to

be surpassed by other major international broadcasters in facilities, equipment, personnel, signal

strength, and broadcast hours. In

our report last year we expressed

concern that USIA is not moving

quickly enough into the construction and implementation phase of

the modernization process. A year

later, that concern remains.

The modernization program has

been handicapped by lack of continuity in leadership at the Voice

of America. VOA has had four Directors, four Acting Directors, two

Chief Engineers, and two Acting

Chief Engineers since 1981. For

almost half this period, VOA has

been led bv Acting Directors. The

Commission recognizes this is due

to a variety of circumstances.

Nevertheless, prolonged senior level

vacancies and disruptions caused

by frequent turnovers at the top

have adversely affected implementation of modernization initiatives

and management continuity for

ongoing programs. The Commission also believes that when these

vacancies occur out of necessity,

stronger leadership should be exerted in finding replacements in an

expeditious manner.

VOA also faces a fundamental

budget question. OMB has imposed a S 1.3 billion cap on VOA's

multi-year modernization program. This will inhibit VOA's ability to meet the goals developed in

response to the policy directives of

the President and the National Security Council with the support of

the Congress. It would be unfortunate ifVOA were forced to make

major long-range decisions now,

based on assumptions ofa funding

shortfall in coming years, that

would limit the Agency's ability to

carrv out the full modernization

program under existing timetables.

VOYAGER, VOA ~rbroadcast van and travelina studio, pisited 30 statts last vcar addina a llell' dimension Lto VOA:I"

reporrinj; 011people and CPCIltSill American lifc.
MEDIA AND PROGRAMS

Voice of America & Radio Moscow

Weekly Program Hours (1985)

14

6

4

• Radio Moscow

o Voice of America

3

~Excludes V()A Broadcasts

to North America.

•.• Excludes IUvl Broadcasts

to Soviet Union.

The Commission has observed

strong bipartisan support in the

Congress for VOA modcrnization. A national consensus exists

to gct on with a task that will rake

vcars under the best of circumstances. The Commission recommends that OMB, USIA and the

National Sccurirv Council review

VOA's modernization budget in

light of recent detailed planning,

current price estimates, increased

physical sccurirv costs, the terms

of negotiated site agreements, and

overall broadcast co\'erage requirements.

VOA is facing increasing competition for audiences from television and high-powered regional

and international radio broadcasters, who are challenging it with

stronger signals, improved production techniques, and more attractive programming. VOA must

spend its modernization resources

wisely, but it must also modernize

more rapidly if it is to hold its listeners and attract new ones in this

competitive communications environment.

24

Program Enhancements

VOl\. continues to make improvemcnrs in program quality and delivcrv .

During the past ycar VOA's

broadcasts increased from 9g7 to

1327 hours weekly, largely from

the introduction of two major new

services, VOA Europe and the Radio Marti program. Broadcasts expanded in eight other services: Albanian, Arabic, french, Czech/

SIO\'ak, Portuguese, Russian,

Spanish, and Thai."

The increases include a one-hour

carlv morning show to the Central

USSR, an hour-long evening program to Czechoslovakia, and additional half hour shows in the Thai

and Albanian services, for Latin

America, VOA has added an hour

to its evening show, "Bucnas

Neches, America," a half-hour

midday news show, and a half-hour

to its morning show, "Buenos Dias,

America."

A new computerized systcm

called SNAP (System for News and

Programming) will significantly

reduce the time it rakes to write

and translate in VOA's 42 Ianguagcs, including Russian, Arabic,

and Chinese,

"Sound On Demand," VOA's

electronic audio distribution svstern, also began operation. The

svsrcm deli vcrs news actualities instantly to all ofVOA's writers and

grcatlv increases the amount of live,

on-the-scene reportage in VOA's

broadcasts.

These developments, new and

renovated recording studios, and

replacement of vacuum-rube

equipment in the Washington

Master Control center constitute

VOA's "indoor modernization."

Less heralded than other aspects

of modcrnizarion, they ncvcrrhcless add up to a significant change

tor the better in VOA's daily operations.

The Commission is especially

pleased that VOA continues to give

audience research and program

quality control a high priority.

VOA's use of USIA's Office ofResearch for audience studies is extensive and should serve as a model

for other Agency media elements.

Increased research coordination

between VOA, the BBC, and the

Board for International Broadcasting minimizes duplication of

effort and expands the research

findings available to each. VOA's

enacted operating budget in FY

1986 is $176.9 million, approximately 26 percent of USIA's overall operating budget and the largest single media budget in the

Agency. In an era of reduced federal spending, it is important that

VOA continue to emphasize program evaluation.

finally, VOA's forum Lectures

bring distinguished !,'1.lestspeakers

from in and out of government to

USIA. Man), arc interviewed on

VOA's broadcasts. The series stimulates new ideas and fresh thinking. It is precisely what the Commission had in mind last year when

it recommended that USIA's top

management encourage responsible internal discussion of professional issues.

Training for Third World

Broadcasters

Last year the Commission endorsed VOA's fledgling training

program for broadcast profession-
als from Third World countries.

We are pleased the program has

grown, with five workshops

planned this year at VOA headquarters and six overseas in South

Asia, the Caribbean, East Africa,

Southern Africa, and the Philippines. Each will last several weeks

and will reach up to 50 broadcasters.

Traditionally, USIA has not been

a "training" organization such as

AID or the Peace Corps. USIA

needs to strengthen the resources

it allocates to its own training programs. The BBC and other European broadcasters have long

conducted excellent training programs for journalists in the developing world, and have established

standards and groups of alumni that

are enviable.

USIA also should cooperate

more closely with AID. As Rep.

Dante Fasccll (D- FL) wrote recently, "USIA could usefully complcmcnr a number of AID's development activities by helping to

train journalists, communications

technicians, and engineers, teachers, and the like. By permitting each

agency to undertake the activities

to which it is best suited, the missions of public diplomacy and development, as well as the foreign

policy goals of the United States,

would be strengthened.":

Unlike the BBC and Deutsche

Welle, VOA has no domestic network on which to draw in providing this kind of training. To relate

fully to the domestic broadcasting

background of most foreign radio

professionals, VOA needs to supplement its international broadcasting experience by tapping the

expertise of the American private

sector. The Commission encourages VOA to continue to develop

links with US radio stations, netAdvisory Commission members look at a newly installed 500 KW shortwave

transmitter being tested at VOA's Edward R. Murrow relay station in Greenville,

North Carolina. (From left to right) Chairman Edwin]. Feulner, Jr. and

Commissioners Priscilla L. Buckley, Hershey Gold, and Tom G Koroloqos. (Photo

by Tommy Forrest)

works, foundations, and UI11\'l'rsiries for this purpose.

VOA Europe

On October 15, 1985, the Voice

of America resumed rargcrrcd

English language broadcasting to

Western Europe for the first time

in 25 years. Broadcasting aroundthe-dock, seven days a week in

English, VOA is seeking to reach

younger Europeans who have no

personal memory of World vVar II

and who may have misconceptions

about the U.S., its policies, and the

shared values of the past.

VOA Europe isthe resultofiongterm planning and bipartisan support in the Congress. Extensive

multi-country audience research

studies, recommended by this

Commission four years ago, have

VOA's American

Republics division

uses "Code-aPhone" to provide

short, updated reports in English

and Spanish on

breakin.r:rIlews

stories to local radio stations

throughout Latin

America. The stations call VOA by

telephone and

place the reports

on their own news

programs.

25
MEDIA AND PROGRAMS

guided decisions on programming

and delivery of the VOA signal in

the highly competitive European

radio environment.

Its program format resembles a

"full service" U.S. commercial radio station with contemporarv

American and European hit music,

hourly news broadcasts, VOA editorials, public affairs programs, and

Americana segments. The broadVOA's Radio Marti proqra»: isfed ~v satellite }1-11/11

Washinqton to this relay station ill M arntbon [(I"\', Florida

jor bro;'dmst to Cuba O~I a 50 [(W medium ll'al';'

transmitter.

26

casts originate in Washington and

are sent bv satellite to Munich for

rclav throughout Europe via leased

AM and fM frequencies and cable

systems. Programs are carried by

the European Communications

Satellite (ECS) and recently on

medium wave from VOA transmitters in Munich.

The Commission commends

USIA for initiating VOA Europe,

for the quality of its audience research design, and for its innovative use of AM, fM, satellite, and

cable dclivcrv svstcms, USIA should

evaluate VOA Europe carefully,

however, to determine whether it

is reaching significant audiences

with effective programming. Addition of German, french, Italian,

and Spanish language broadcasts

should be based on a thorough assessment of research findings.

Radio Marti Program

On May 20, 1985, VOA's Radio

Marti program of broadcasting to

Cuba went on the air. News, public affairs, VOA editorials, music,

and cultural, scientific, and entertainment features comprise its

broadcast schedule, which was increased from 14 II2 to 17 II2 hours

a day early in 1986.

following initial protests and

veiled threats to retaliate, Cuban

authorities apparently have chosen

to compete by upgrading the quality of their own broadcasting. So

tar, the gloomy predictions of Radio Marti's U.S. critics have not

come to pass.

The Commission commends

USIA for getting this valuable new

service on the air. Despite ambiguous legislative intent, the Agency

has successfully developed highquality programming fully in accord with VOA standards of objectivity, accuracy, and balance. At

the same time, the Cuban people

are now able to receive news, ideas,

and information about Cuba not

otherwise available to them.

The Radio Marti program is

broadcast on shortwave and from

a VOA transmitter in Marathon,

florida, on the 1180 medium wave

frequency. VOA officials estimate

the signal reaches the entire country. This was corroborated in

Commission discussions with Radio Marti program monitors at the

Guanranamo Bay Naval Base in

Cuba. Although reliable audience

figures do not exist, t(lCUS group

studies suggest the Radio Marti

program has listeners in every demographic and professional group

in Cuba.

The Commission encourages

USIA to evaluate this important

new service thoroughly to assure

lively, relevant programming and

compliance with legislative mandates.

IC,lpti\'l' Nations Week Proclamation. JlIl~' 19,

I<JH2.

'\'OA, bro.idc.istina 1327 hours wccklv ill 42

lallgu.lges, is still b~hilld Radio ,'v!osco;,',

hroadcasrini; 16HO hours wccklv ill (,4 1.111-

gll.l~CS. {)\,~Tall, however, l'.S .' inrcrn.rrional

broadcasting moved ahead of the Soviet Union

last vcar. The V nice: of America, Radio Libcrtv. Radio Free Europe, .md Radio Free Algh.mistan now broadcast ~353 hours wccklv in

comparison to .1 Soviet total of 1220 hours.

"ForcVl11 Srrric; Journal, J.1Il1l.1ry, 19X-t..
The Wireless File

Computers arc used for text editinq and tvpescttina ill the production of the Wirelcss File and USIA:.-

magazines and pamphlets,

ow more than fifty years

old, USIA's Wireless file

continues to provide

U.S. policy statements

and related information

to U.S. missions overseas, f(lI\:ign officials, and

t()reign editors and journalists for

media placement. The past ~'ear has

seen progress in Wireless file automation, expanded Congressional cO\'erage, and increased delivery of official texts, speeches, and

policy background material.

Some 70 posts now rccci vc the

Wirelcss Filc electronically through

computer-to-computer links with

USIA in Washington; an additional 16 branch posts have Computer links with their principal

posts. Bv the end of 1986, the

AgenC\' expects that 120 posts will

receive the Wireless File electronically, virtually all posts where it is

feasible. for the rest, USIA is

studving means by which the File

could be transmitted bv radiorclctype but received on Victor microcompurcrs. These posts could

then edit and store text with comparable flcxibilirv,

USIA is experimenting with dirccr computer links with major

media organizations in London,

Manila, and Tokyo. Through ITr

Dialcorn these organizations can

have direct access to parts of the

Wircless File in Washington,

rhcrcbv obviating the interim stcp

of moving text through the USIA

post. In addition to looking at cxpaneled use of Dialcorn, the Agcncy

is studying dcvc lopmcnr of a

broader high-spccd information

service utilizing its new mainframe

computer and the possibility of

satellite transmission of the File to

some posts and users.

USIA has upgraded the Wireless File's Congressional cO\'cragc

in response to numerous post rcquests and has broadened the gcographic spread of its U.S. media

coverage bv including major West

Coast newspapers,

The Commission is pleased with

the File's expanded coveragc, more

timely dclivcrv, and new flexible

cditing and formatting capabilitics. Thc Wireless File continues

to be one ofrhc most cflccrivc tools

of public diplornacv,

27
MEDIA AND PROGRAMS

American Participants

Academic specialist Miles [aclsou addresses Pakistani librarians at USIA's Center ill Islamabad.

ach year, through its

American Participants

(Arnparrs ) program,

USIA brings approximatch, 800 U.S. citizens

from varying professions

together with foreign audiences to discuss issues of mutual

concern. An Ampart might be ~l

U.S. Govcmmcnt official explaining and advocating U.S. policv toward Nicaragua; an economics

professor describing ways a dcvcloping nation can attract foreign investment; a specialist in AfroAmerican literature; or a counrv

elections official describing American methods of protecting against

electoral fraud. for Amparrs unable to travel, the Agencv conducts

video dialogues and telephone prcss

28

conferences linking speakers in the

United States .wirh professional

counterparts at L'SIA posts.

Through its Sports America program, the Agencv sends U. S.

coaches and athletes abroad as

Amparts to conduct sports workshops primarily in Third World

countries. Arnparts in ~lllfields bring

a depth of specialized expertise to

the public diplomacy dialogue that

USIA officers can rarely match.

Thc Amparr selection process

responds to field programming

needs. Each USIA post, as part of

its annual Country Plan, requests

speakers on various topics that

support U.S. objectives in that

counrrv. USIA's Office of Program Development in Washington surveys those requcsts and invires experts who can undcrr,

lecture tours to multiple posts, of

within the same region. Ampa

in recent years have included f

mer UN Ambassador Jeane Ki

patrick, novelist E.L. Doctorc

Assistant Sccrctarv of State Elli

Abrams, national security spec

ist Helmut Sonnenfeldt, a

American boxer Ceorge Forem

In 1983, media reports of a

called speakers "blacklist" in USI

Arnparrs program led to inquit

by this Commission, the C<

gress, and the Agency's own Of

of Inspections. The Commiss

dealt with this issue at length in

last report. Two years later, we

convinced that the Amparrs p

gram is operating effectively,

scarred hv this unfortunate (

sodc in its historv. USIA is select

a range of speakers who can

plain, defend, and vigorously

vocate I,' .S. Government polic

It is sending abroad articul.

highly competent professional

a varicrv of subject areas who

capable - through dialogue

personal contact - of bringing

sponsiblc contrasting views and

best achievements of American

cicrv to audiences interested in \\

rhcv have to sav.

. .
Exhibits

• The Commission welcomes the resumption of

traveling U.S. thematic exhibits accompanied by

language-qualified American guides to cities

throughout the Soviet Union.

• The Commission recommends that USIA fulfill

its commitment to provide a United States presence at Vancouver Expo '86 and Brisbane Expo

'88. Before the U.S. commits to additional events

sanctioned by the Bureau of International Expositions, however, USIA should chair an interagency

study of the political, commercial, and public diplomacy value of international expositions, their

cost-effectiveness, and appropriate levels of U.S.

Government andprivate sector participationinthem.

USIA also should reassess its own capability as

presently organized to provide high quality U.S.

pavilions and exhibits.

nc of the most significant provisions of the

U.'s.-'soviet Exchanges

Agreement signed at the

Geneva Summit permits

U,SIA to resume major

thematic exhibitions in

the 'soviet Union. The program was

suspended in 1979 f()llowing the

Soviet invasion of Afghanistan.

Under the agreement, the U.S. will

be able to show its exhibits for 28

days each in up to nine cities.

The Commission finds the rationale tor these exhibits pcrsuasin.' and in the national interest. In

the provincial cities of the Soviet

Union and Eastern Europe, arrcndance at major U.S. exhibits has

in the past ranged from the tens

Former U.S. Ambassador to Bolivia Edwin G. Corr, center riaht, points outfcaturcs of'a USIA exhibit tofonner President ofBolivin Hernan Silcs Ztmzo,

of thousands to occasionallv over

one million. The exhibits, accompanied bv language-qualified

American guides, provide many

with their only first-hand exposure

to the United States and to American citizens.

U,SIA's exhibits program also

provides a U.S. presence at major

international trade fairs; poster-like

paper shows and audio/visual presentations, particulariv valuable in

srrccr-fronr windows in U.S. embassies in Eastern Europe; and cultural exhibits in non-Communist

countries where the U .S. has viral

interests. In 1985, the Commission examined these programs with

USIA's East European PAOs and

the statts of the Regional Program

OHice (RPO) and Regional Exhibits Office (REX) in Vienna.

U,SIA is responsible for providing a U.S. presence at overseas

events sanctioned bv the Bureau

of Inrcrnational Expositions (BIE).

With a Congressionally appropriated budget of $8.5 million and

more than 56.5 million in private

sector contributions, the Agency

mounted an exhibit on artificial intclligcnce at the Tsukubn Expo '85

in Japan. Research and development is now underway for expositions in Vancouver in 1986 and

Brisbane in 1988.

The Commission visited Tsukuba Expo '85. It has read an exccllcnr evaluation of the exhibit

prepared by USIA's Office of Re29
MEDIA AND PROGRAMS

A poster display at USIA's American Center in Karachi,

Pakistan.

search and a report by USIA's Inspector General on the management of the Tsukuba project. We

have come away with a number of

questions, which we believe both

Congress and the executive branch

should address.

Arc international expositions

scheduled with such frequency that

the U.S. is unable to mount top

quality pavilions and exhibits? The

following Bl Evsanctioncd expositions have been held or are scheduled during the decade 1982-1992:

Knoxville (1982), New Orleans

(1984), Tsukuba (1985), Vancouvcr (1986), Brisbane (1988), Chicago (1992), and Seville (1992).

USIA's evaluation found that visitors to the U.S. pavilion at Tsukuba Expo '85 rated it only "fairto-good."

30

AdJ>isoryCommission members visit USIA's Regional Proqram and Exhibits Offices ill Vienna.

What is the national interest and

public diplomacy value of U.S.

participation in international expos? Are they cost-effective] Is the

U.S. Government organized adequately to manage and fund its

participation in these events?

Congress is primarily interested

in encouraging BIE-sanctioned

expositions in the U.S. handled by

the Department of Commerce. It

has been reluctant to fund adequately U.S. Government commitments to overseas BIE expositions carried out bv USIA. Yet

U.S. participation in foreign expositions is a trade-off resulting

from expectations that other countries will participate in expositions

in the United States. U.S. decisions arc often made at the White

House or Secretary of State level

without full assessment of their organizational and resource requirements.

The Commission believes that

USIA should fulfill its commitment to provide a United States

presence at Vancouver Expo '86

and Brisbane Expo '88. Bd()JT the

U.S. commits to additional events

sanctioned bv the Bureau of International Expositions, however,

USIA should chair an interagency

study of the political, commercial

and public diplomacy value of U.S.

participation in international expositions, their cost-effectiveness,

and appropriate levels of U.S.

Government and private sector

participation in them. USIA should

reassess its own capability as presently organized to provide high

quality U.S. pavilions and exhibits.
National Endowment ForDemocracy

he National Endowment

fix Dcmocracv was established as a Congrcssionally-fundcd private,

nonprofit corporation in

November 1983 to encourage the development of democratic values and institutions throughout the world.

The Endowment supports business organ izarions, free trade

unions, and a variety of other indigenous democratic groups in

countries as diverse as Chile,

Nicaragua, Poland, Atghanisran,

the Philippines, and South Africa.

Its Board of Directors is bipartisan.

USIA provides funds appropriated for the Endowment through

an annual grant. In establishing this

funding arrangement, Congressional foreign affairs leaders also

suggested the Commission could

"contribute usefully to the oversight of the Endowment and its

relationship with USIA."* The

Commission has met several times

with the President of the Endowment and members of its Board of

Directors.

During its first two vcars, the

Endowment and its grantees encountered criticism and incvirablv

made some mistakes. But overall

there have been some notable successes, and the Endowment is supporting a number of proh'Tams with

considerable long-term potential.

Examples include:

• "Libro Libre," a Costa Ricanbased Central American book program, which is publishing low-cost

editions supportive of democratic

ideals and sponsoring conferences

on democratic and human rights

themes;

• The Chinese Lnt cllectu al ; a

Chinese language quarterly with "a

circulation among Chinese students in the West and inside China

itself which is promoting democratic values and providing support to young reformist groups in

China; .

• The AfL-CrO's free Trade

Union Institute (fTUI), which,

among other programs, is helping

to strengthen democratic trade

unions and prevent further Communist penetration oflabor unions

in the Philippines;

• The New York-based Committee in Support of Solidarity,

which is promoting the translation

and publication of documents on

Polish workers and human rights

Issues;

• The U.S. Chamber of Commerce's Center for International

Private Enterprise (CIPE), which

is providing Peru's Institute for

I.ibcrrv and Dcmocracv with funds

. .

for a program of advocacy on behalf of small businesses (the "informal sector");

• The Republican Party-affiliated National Republican Insrirurc tor International Affairs, which

supported nonpartisan voter education programs in Grenada prior

to its 1984 elections; and

• The Democratic Parrv-atfiliared National Democratic Insrirurc for International Affairs, which

assisted the Social Democratic and

Labour Party (SDLP) of Northern

Ireland in creating an institute for

party-building and education development activities.

Since the Endowment was established, Congress has taken several steps to strengthen its operating procedures and public

confidence in its activities. By law,

no more than 25 percent of the

Endowment's funds may now be

granted to any single organization.

Prior consultation is required with

the Department of State on all Endowment-funded programs overseas. No Endowment funds may

be used for domestic partisan politics, the activities of the Republican and Democratic National

Committees, or any candidates for

public office. All information relating to the Endowment's organization, procedures, and activities

is publicly available, and it must

comply with the Freedom of Information Act. finally, USIA may

audit the Endowment's financial

transactions. The Commission

welcomes these changes. The role

of the Endowment is evolving, and

we will continue to review its

progress with gre~lt interest.

The Endowment is filling a need.

Because it is a private, bipartisan

body, it has the flexibility to undertake many programs that U.S.

Government agencies would find

difficult to carry out as effectively.

America's adversaries work hard

and spend a great deal to challenge

democratic values throughout the

world. The Endowment was created to meet that challenge and to

provide a long-overdue American

investment in building democratic

institutions and processes. It will

take time and steady, persistent cffort. The Commission endorses the

Endowment's goals and believes it

should be given a chance to develop a record.

•Colloquv between Rep. Dante B. Fasccll and

ReI'" Benjamin A. Gilman. CIII(ffrfJ.<illllt1/ Record, November 17, I<)S~, PI'. II 1033-2.

31
Educational and Cultural Programs

Exchanges and Intemational Visitors

• The Commission urges USIA, the Department

of State, and the relevant private sector organizations to move quickly to develop specific programs for U.S.-Soviet exchanges pursuant to the

General Exchanges accord, other exchange initiatives undertaken at the Geneva Summit, and the

agreement by President Reagan and General Secretary Gorbachev to review these programs at their

next meeting.

• The Commission welcomes the Central American Program on Undergraduate Studies (CAMPUS>, but finds Congressional limitation to a onetime pilot group of 154 students falls far short of

the Kissinger Commission's recommendation. The

Commission recommends the program be expanded.

• The Commission supports funding for enrichment programs to provide the 340,000 foreign

students enrolled in U.S. colleges and universities

with a broader understanding of the United States.

• The Commission recommends that USIA's Office of Research undertake evaluations of U.S.

Government-funded exchange and international

visitor programs.

32

xchangc of persons and

cultural presentation

programs can be among

the most effective instruments of public diplomacy. They can provide

foreign audiences with a

knowledge of our culture that puts

our policies in perspective. Although their impact on short-term

objectives is often difficult to discern, the Commission remains

convinced that educational and

cultural exchanges can create understanding and long-term relationships that arc very much in the

interests of the United States. As

President Reagan said in his telcvised New Year's message to the

Soviet Union, "If people in both

countries can visit, study, and work

together, we will strengthen the

bonds of understanding and build

,1 true foundation for lasting peace."

The Commission docs not question the fundamental value of cducational and cultural exchange

programs, but it docs believe they

can be greatly strengthened through

rigorous evaluation. Their benefits

arc not self-evident as some would

suggest. USIA's rv 1986 budget

for these programs is $169.3 million, approximately 25 percent of

the Agency's enacted operating

budget. With resources of this

magnitude, in the budget climate

now facing USIA, evaluations

leading to the establishment of

program priorities arc a necessity.

The Commission is aware that

for management planning purposes USIA's Bureau of Educational and Cultural Affairs conducts internal grant reviews and

periodically contracts for assessments of some of its programs. We

arc unaware, however, that USIA's

Office of Research has had any significanr role in evaluating the Bureau's programs, or the activities

of the private sector organizations

that carry many of them out.

The Commission recommends

the Office of Research be asked to

undertake its own evaluations of

USIA's exchange and international visitor programs. It also

should be asked to advise on studies contracted bv the Bureau of

Educational and Cultural Affairs.

In addition, the Agency's foreign

public opinion surveys should ask

routinely if those surveyed have

. .

visited or studied in the U.S. in

conjunction with questions regarding attitudes toward the United

States.

The role of private sector agencies in carrying out U.S. Government exchanges is, quite simply,

indispensable. The Commission

appreciates the intrinsic value of

private sector involvement, and its

central role in multiplying what

cannot be accomplished through

government programs alone.

To the extent these organizations operate with grants of go\'-

crnmcnr funds, however, they must

be subject to regular tinanc'ial audits and program review. Several

rcccn t cases have come to the

Commission's attention that raise
serious questions about substantial non-compliance with the terms

of grant agreements for periods of

many years. Moreover, a tradition

has grown in USIA that seems to

establish favoritism fix some groups

over others. Relationships developed during many years have led

some grant recipients to consider

themselves part of a "core entitlement group." No private organization has an automatic right to

ta,xpayer funds. The Commission

believes the merits of all applicants

must be judged by the same criteria. USIA must take greater care

to treat its grant recipients equally,

to make clear what is expected of

them, and to hold them to the same

standards of program effectiveness

and financial conduct.

The Commission also has observed a tendency on the part of

some USIA-nlI1ded exchange organizations, either deliberately or

through oversight, to obscure the

fact the U.S. Government is a major funding source for their programs. We believe the national interest is served if the American

public and foreign scholars, political leaders, opinion makers and

others who receive exchange program grants are aware the American people are supporting these

programs through their tax dollars. The Commission urges the

private sector agencies to do more

to ensure that grantees and the

public are aware of the extent to

which these programs are sustained bv U.S. Government funds.

Academic Exchanges

The past ~'ear has seen continued

growth in the Fulbrighr-Havs ex-

~hange programs, b(~th in ~iollar

terms and in numbers of participating U.S. and foreign scholars.

Figures provided by USIA's Office

of Academic Programs show that

for rY 1985 (academic year 1985-

86), the number of grants for U.S.

Fulbrighr lecturers, research scholars, short-term lecturers, students,

teachers, and grantees through cooperating private institutions rose

from 2,490 to 2,617. The number

of foreign Fulbrighr scholars rose

from 3,488 to an estimated 3,680

during the same year.

The University Affiliation Program, which enables U.S. academic institutions to establish enduring partnerships with t()reign

universities, increased the number

of atliliations bv ncarlv 30 in FY

1985 to bring the total to 100. The

grants of up to $50,000 fund joint

research, teacher and student exchanges, the sharing of facilities,

and joint publication of research

findings.

The Hubert Hurnphrev NorthSouth fellowship Program increased from 133 grantees in FY

1984 to 150 in rv 1985. This important program awards grants to

mid-career professionals in public

service from developing countries

for one ~'Car of non-degree study

in the United States. A recent

change in emphasis-on professional training rather than formal

academic study-is a positive devclopmcnr.

U.S.-Soviet Exchanges

Agreement

A general exchanges agreement

between the United States and the

Soviet Union covering education,

culture, science, and rechnologv was

signed at the Geneva Summit. The

U.S. and the USSR have had formal educational and cultural exchanges for more than 21 years.

The new accord, which extends

through 1991, includes:

• Reciprocal U.S. and Soviet

traveling thematic exhibits on aspects of life in each country;

• Exchanges of at least ten individual performers and at least ten

major performing arts groups from

each country;

• Expansion of academic exchanges to include 15 Fulbrighr

teaching professors, 40 long-term

researchers, language teachers, and

exchanges between archives;

• Exchanges in a wide variety of

fields such as art, theater, film, architecture, music, law, journalism,

medicine, museums, radio, and

television;

• Exchanges of publications between libraries, including book exhibits, magazines, and technical

publications;

• Continued distribution of the

magazine America Illustrated in the

Soviet Union and Soviet l,~rein the

United States;

• Exchanges of parliamentarians

and other government officials at

federal, state, and local levels; and

• Expansion of civic and social

organization exchanges in fields

such as tourism and sports.

Although the agreement is between governments, it paves the

\Va~'for the U.S. private sector to

become deeply involved. Univcrsirics, dance companies, theater

groups, athletic organizations,

churches, and professional organizations of doctors, lawvcrs, and

scientists can invite their Soviet

counterparts to visit the United

33
EDUCATIONAL AND CULTURAL PROGRAMS

"Americans should know the people of the Soviet

Unioll-thei1- hopes and [cars and the facts of their

lives. And citizens of the Soviet U1IiOllneed to 1111011' of

America's deep desire filr peace and 0111' unwavcriiu;

attachment to jrccdmn.

"We'Fe concluded a nell'----- aarccmcnt dcsiancd to brint;

the best of America :, artists and acadCl~i6sto the So~

viet Union. The exhibits that will be included ill this

c.'(chall,..f/carc one l!f the most eJjectiFc waysfiir the aFera.,qcSoviet citizen to learn about 0111' lI'ay of l!fi'.

This acffreemcnt will also expand the opportunities jin'

Americans to experience tlic SOFia people'S rich cultural hcritnqc =bccausc their artists and academics

will be COltl£Ughere.

-a-

"We'l'c also decided to cf/o[arwart! with a number (!f

people-to-people initiatives that will..l1obeyond cffrmter

contact not 01lZVbetween the political leaders l!f 0111'

tJPO COUlltries, but our respective studcuts, teachers and

others IlS well. We have cmplmsizct! youth cxcluumcs.

And this will help lrrcal: down stereotypes, build

friendships and, [ranltlv, provide fill alternative to

propacf/allda. )J

President Ronald Reagan

States for conferences, concerts,

tours, and professional svmposia.

In return, Americans will visit all

corners of the Soviet Union.

In his pre-Summit address to the

nation, President Reagan also called

for a new program of "people-topeople initiatives," going beyond

traditional exchange programs to

bring the people of the United

States and the Soviet Union into

direct contact-to "lessen the distrust between the two nations, reduce the levels of secrecy, and bring

forth a more open world." At Geneva, the two leaders agreed on six

new kinds of exchanges:

• Annual exchanges of professors

to conduct special courses in history, culture, and economics;

• Creation of a U.Sv-So vicr

scholarship program in the natural

sciences, social sciences, humanities, and technology;

34

• Measures to promote the study

of the Russian language in the u.s.

and English in the USSR;-

• A joint program of cancer research;

• A program fix cooperation in

developing elementary and seeondarv school microcomputer educational software; and

• Expansion of contacts in sports,

including regular meets and increased television coverage,

Both governments currently ~lIT

drawing up specific proposals. The

Commission urges the speedy development of concrete programs

pursuant to the agreement by President Reagan and General Secretary Gorbachcv to review progress

at their next meeting.

The Commission welcomes the

General Exchanges Agreement and

the President's people-to-people

initiatives. USIA, the Department

of State, and the relevant private

sector organizations must be vigilant to ensure that strict rcciprocirv is maintained in overall numbers of grantees and in academic

fields. For example, U.S. social scientists traveling to the USSR must

be matched bv Soviet social scientists, and not nuclear physicists,

coming to this countrv,

Central American Exchanges

In January 1986, a pilot group of

154 Central American undergraduate students arrived in the United

States to take part in the Central

American Program of Undcrgraduarc Scholarships (CAMPUS). The

program is a direct result of a I'CCommcndation made in the Kissinger Commission's 1984 report 0

Central America and is consisrci

with this Commission's own IT(

ornmcn dation last vcar.

CAMPUS is an experiment. 11

goal is to help these students b(

come productive members of the

own societies. The srudcnts=frot

all Central American nations, il

eluding Nicaragua, and Panamawill remain in the United Stan

for 18 to 30 months depending ()

their course of studv, Most arc no'

pursuing six months of inrcnsix

English language training. All we:

selected on the basis of econom

need, superior motivation, an

demonstrated academic achicv.

mcnr. USIA is administering rl

program through direct contrac

with U.S. colleges, rather tha

through private sector prop-al

agencies. An outside managemel

consulting firm has been rctainc

to conduct an ongoing cvaluatio:

Only a handful of disadvantage

Central American students have ha

the opportunity to study in tl

United States, although thousanc

srudv annuallv in the Soviet blo . .

The United States, which is UI

dcrsrandablv concerned about mi

itarv conflict in Central Arncric

for too long has left compctiri«

in the field of ideas to the Soviet

The CAMPUS program is a sm.

start, but a good one. The Con

mission recommends it be c:

pandcd,

Substantial increases have ().

curred also in traditional cxcbanj

programs in the region. Intern

tiona I Visitor grants have c:

pandcd from 50 to 77 grantees .u

nuallv, and Fulbright cxchang.

11-0111 60 grantees to 175 annual]
Distinguished Former Participants in USIA's International Visitors Program

The following current foreign chiefs of state or heads of govcmmcnr came to the United States

earlier in their careers as participants in USIA's International Visitors Program.

Africa

Botswana President Qucrr K. J. Masirc,

1975 .

New Zealand Prime Minister David Lange,

1983

Central African

Republic

President General AndreDicudonnc Kolingba, 1966

Kenya President Daniel T. arap

Moi,1969

Madagascar President Didier Rarsiraka,

1973

Mauritius Prime Minister Ancrood

Jugnauth, 1981

Governor General

Davcndranarh Burrcnchobav,

1969 .

Seychelles President France Albert

Rene, 1967

Zambia Prime Minister Kebbv S.K.

Musokorwanc, 1979 .

American Republics

Argentina President Raul Alfonsin,

1981

Colombia President Bclisario Bcrancur,

1952

Dominican Republic President Salvador Jorge

Bianco, 1979

Montserrat Chief Minister John

Osborne, 1981

St. Vincent Prime Minister James

Fitzallcn Mitchell, 1973

Uruguay President Julio Maria

Sanguinetti, 1983

East Asia and Pacific

Fiji Governor General Raw Sir

Pcnaia Ganilau, 1963

Prime Minister Raru Sir

Karniscsc Mara, 1964

French Polynesia President Territorial

Asscmblv Gaston Flossc,

1969 .

Malaysia Prime Minister Maharhir bin

Mohamad, 1973

Papua New Guinea Prime Minister Michael

Somarc, '1971

Singapore President Wee Kim Wee,

1964

Solomon Islands Governor General Baddclcv

Devesi, 1977 .

Tonga King Taufa'ahau Pupou IV,

1964

Prime Minister Prince

Farafehi Tu'ipclchakc, 1968

Trust Territory of

the Pacific Islands

President Tosiwo Nakavama,

1961 .

Vanuatu Prime Minister Father

Walter Lini, 1976

Europe

Austria Chancellor Dr. Fred

Sinowatz, 1963

Belgium Prime Minister Wilfried

Martens, 1971

Canada Governor General Edward

R. Schreyer, 1978

Federal Republic of

Germany

President Richard Von

Wcizsacckcr, 1976

Luxembourg Prime Minister & Minister

of Finance Jacques Saurer.

1973

Norway Prime Minister Karc

WiIIoch, 1978

Portugal President Mario Soares,

1976

United Kingdom Prime Minister Margaret

Thatcher, 1963

North Africa, Near East and South Asia

Lebanon President Amin Gcmavcl,

1972/79 .

Sri Lanka Prime Minister Ranasinghe

Prcmadasa, 1966

Tunisia Prime Minister Mohamed

Mzali, 1964

35
EDUCATIONAL AND CULTURAL PROGRAMS -

five U.S.-Central American UI1lvcrsirv affiliation programs have

been added, and 33 U.S. lecturers

and researchers will travel soon to

the region, a fourfold increase in

U.S. Fulbrightcrs. The Commission welcomes these increases.

Foreign Students in the United

States

Last year more than 342,000 foreign students enrolled in U.S. colleges and universities. Sixty-six

percent used personal or familv

funds to pav for their education,

while another 12 percent were financed by their home gO\'ernmcnrs. Only two percent received

U.S. Government support. Many

of these students will assume leadership positions and he in the torefront of economic development

when they return home.

Less than a fourth of these students will experience "enrichment" programs aimed at broadening their understanding of the

United States, its culture, its people, and its values. In FY 1985,

USIA provided $700,000 in grants

to academic institutions and private nonprofit organizations for

such programs-a funding level

only slightly higher in real terms

than what was spent to reach the

50,000 foreign students in the U.S.

when the program was created in

1961. This clearly is inadequate.

36

More should be done to provide

foreign students with opportunities to meet American professionals in their fields of study, to

encourage community-based programs and volunteer efforts aimed

at foreign students, and to increase

opportunities for them to deepen

their appreciation of American institutions and culture.

Many of the world's future political leaders, industrialists, business executives, scientists and

teachers are in the United States

today. This important audience for

U.S. public diplomacy efforts can

be reached with on lv a modest investment of funds.

International Visitors

USIA's International Visitors (IV)

program, which brings established

and potential foreign leaders to the

United States for visits of a few

weeks, has nearly doubled in the

past four years. In fY 1986, the

Agency expects 3,000 visitors.

Just as important, in the Commission's view, is the use of computer technology by USIA and

private sector organizations that

arrange professional appointments

and local programs throughout the

United States to make the visits

more substantive and productive.

Through a series of grants, expected to total about $1 million,

USIA is upgrading the data processing capabilities of approximately 100 local organizations.

High-speed link-ups will connect

visitor program agencies with each

other and with USIA's Reception

Centers. for instance, program

planners in Atlanta will communicate more quickly with counterparts in Dallas. Schedules can be

more closclv tailored to a visitor's

interests, and duplication more

easily avoided. The purpose is to

maximize the effectiveness and impact of the visitor's relatively short

time in the United States.

Most local international visitor

agencies in the U.S. developed as

purely volunteer organizations

decades ago. The volunteer nature

of the national network is uniquely

American, and provides an important and necessary dimension

to the program. But as farsighted

members of the National Council

for International Visitors (NCIV)

Board of Directors informed the

Commission this year, there is a

need to raise program standards

and strengthen the efficiency and

professionalism of the volunteer

agencies, especially as the number

of visitors continues to rise.

USIA currcntlv is facilitating

fund-raising workshops for local

visitor committees to permit them

to expand their resources and,

where needed, to hire professional

staff Additionally, the Agency is

seeking to ensure that local volunteers understand the importance of professional development

activities as well as tourism and

home hospitality while a visitor is

in their community. USIA and the

NCIV are seeking to broaden the

demographic profile of the \'01-

untcers to ensure broad private

sector representation by all elements of American society. finally, the adoption of competitive

bidding procedures tor private sector agencies will increase the costeffectiveness of their programs.
Cultural Diplomacy

• The Commission finds that funding for USIA's

arts and cultural presentation programs has not

kept pace with national needs and is far less than

what is being spent by America's allies or the Soviet Union. USIA should examine its overall budget

with a view toward ensuring greater balance between its educational exchange and cultural presentation programs.

he benefits of cultural

diplomacy - tours by

American performing

arts groups and tine arts

exhibits, U.S. participation in arts festivals,

and lectures and workshops by U.S. writers and artists

- are well established. USIA's cultural exchanges are carried out primarily through its Arts America

and Artistic Am bass ado I' programs.

Arts America, which in addition

to its other activities administers

cultural agreements with China,

the Soviet Union, and countries in

FundingFor U.S. Government

Cultural Presentations (1955-1986)*

~~'ll!l~illiorl\) • Until 1977. cultural presentations were tnndcd by the State

4.0 Department's Bun..'au of Educational and Cultural Affairs.

- Actual Dollars

- Constant 1955 Dollars

3.0

2.0

1.0

1955

Eastern Europe, had a budget in

i-v 1985 of $3.1 million. Its programs included 24 performing arts

groups, 83 writers and artists, and

19 art exhibits. Arts America selections are based on recommendations from the National Endowment for the Arts. Under the 1985

Artistic Ambassadors progr~ml, five

young, previously "undiscovered"

American pianists were selected

through regional competitions and

sent on solo tours to 25 countries.

The Commission is concerned

that funds for cultural diplomacy

are little changed from the amounts

this nation spent on such programs 30 years ago. In real dollar

terms they are only a tin)' percentage of mid-1950s levels, despite significant and justified increases in U.S. Government

educational exchange programs.

The amount the United States

spends on cultural diplomacy also

is well below what is spent by either

our major allies or the Soviet Union.

Although foreign cultural diplomacy budgets do not permit exact

comparisons, British Council tigurcs for 1984-85 show an "arts/

humanities" budget of $11 million. In 1986, according to press

reports, the U.K. will fund 300

British music and drama tours to

more than 60 countries, 50 British

tine arts exhibits in 40 countries,

and 300 British films for 30 international festivals. West Germanv in 1980 (the most recent year

for which figures are available)

spent $290 million on all "cultural!

educational" programs. USIA's

corresponding educational and ClIItural budget that year was $86.2

million. france spent 5648 million

on international cultural programs

in 1980, 60 percent of it aimed at

Francophone Africa. finally, the

'Soviet Union spends far more annually than the U.S. for its information and cultural activities. A

large portion subsidizes tours by

showpiece companies such as the

Bolshoi Ballet.

As California Institute of the Arts

President Robert Fitzpatrick stated

recently in an address to the American Council for the Arts:

"The current American practice I!f"cultural diplomacy is clcarlv inadequate

andtrcqucntlv cmlutrrassina. The

United States is a world leader, not

J1Ist in aqriculturc, science, tcclmoloqv,

and business, bitt also ill most cultural

fields. Unjortunatclv, Ipe consistently

fail to use those things that could create

a climate I!f"tolerance, undcrstmuiina,

interest, and excitement which would

be beneficial to the country. ".

Secretary of State George Shultz

in a meeting with this Commission

last year expressed the view that

the "cultural side" in USIA does

not get nearly the attention and

policy push that it should. A number of Public Attairs Officers have

expressed similar concerns during

Commission post visits.

The Commission finds that

funding for USIA's arts and cultural presentation programs has not

kept pace with national needs.

USIA should examine its overall

budget with a view toward ensuring greater balance between its educational exchange and cultural

presentation programs.

* /.OJ AJ{rrdt'J Times, October ~O, 19X5.

37
EDUCATIONAL AND CULTURAL PROGRAMS

Book Programs

• The Commission finds the United States is still

not competitive in international book and library

activities despite recent funding increases for

USIA's book programs.

• The Commission endorses the major findings

of the Task Force on U.S. Books Abroad and recommends that USIA and the National Security

Council move quickly to implement them.

ore than a year ago,

a specialTask Force

on U.S. Books

Abroad, established bv USIA at

the direction of the

National Sccurirv

Council, completed itsstudy of the

20 year decline in the dissemination of American books overseas.

Among its extensive recommendations were:

• A Presidential directive to all

relevant C.S. Government agencies to bring about a revitalization

of overseas book programs;

Patrons browse at the American Center Librnrv ill Lusaka,

Zambia, where 1,000 bOO/lS circulate each month.

38

• A currency convertibility program to enable importers in developing countries to convertlocal

currencies into dollars for book orders and translation reprint rights;

and

• Increasesin funding for USIA's

book and library programs sufficient to bring resources to the level

of the 1960s.

The report and a complementary set of recommendations prepared by former USIA Director

Leonard Marks were sent to the

National Security Council in May

1985. To date, there has been no

formal response.

The Commission endorses the

major findings of the Task Force

report and recommends that USIA

and the NSC move quickly to implement them.

In the meantime, growth has occunni in USIA's overseasbook and

library programs. USIA's budget

for book programs (including staff

salaries and related costs) for FY

1986 is $5 million, an increase of

$2.3 million from the previous

vcar-i-still well below the $15 million the Task Force suggests is

needed to bring it to 1960s levels.

Congress has continued the

Central American book initiative

begun in FY 1985. Under the program, 30,000 to 40,000 textbooks

have been provided to Central

American universities.

The donated books program expanded from 50,000 books in FY

1984 to 500,000 donated by

American publishers in FY 1985.

Valued at $5 million, the books

were distributed primarily in the

developing world. Agency officials

estimate a potential 5 million books

could be donated annually, 10 times

the current amount. USIA's staff

and available warehouse space will

accommodate perhaps one million.

USIA also has heightened its

presence at international book fairs,

a part of the book industry long

neglected by the Agency that familiarizes foreign importers and the

public with the best of U.S. publishing.

The Soviet Union, which translates more titles than anv other

country in the world, continues to

Hood the markets of developing

countries with subsidized low-cost

books - both to advance MarxistLeninist ideas and to demonstrate

Soviet cultural values. The U.S. is

still far from competitive with the

Soviet Union or such major allies

as the United Kingdom, West

Germany, and France in international book and library programs.

Ambassador Jeane J. Kirkpatrick wrote recently:

"1t is endlcsslv ironic that the SOJ'ia

Union, which affirms tlic power I!f' ceonomics over culture and nutttcr over

mind, should sponsor a Ptff01"01IS P1"Ocqram ofpllblishil~q and dtstributitu;

books worldwide while the United

States, which embodies and promotes

freedom, should invest little tffiwt and

few I"CSOltrCCS iu their production and

distribution. ,,*

The Commission agrees.

• \Villi,un M. Child, and Donald E. :OVk!':l'il,

cds., Antcriam BoolesAbroad, The I Iclcn

Dwight Reid Educational Foundation, \\'a"hingt(\n. D.(:., 19X(), p. xi.
English Teaching

An English lal1;../juf1;.CfCclass at the Yemen-America Institute ill Sana'a.

ince its inception, USIA

has been involved in

English language teachII1g programs, concentrating on teacher training. More than 381,500

foreign citizens attend

English-Ianh'llage classes at Agencyassisted facilities annuallv,

In past reports the Commission

noted that declining funds over a

period of years had weakened

USIA's English teaching program.

In 1967, USIA had more than 150

Americans overseas engaged in

English teaching. Today, the

Agency has only 12 English teaching specialists assigned to USIA

posts abroad. These officers conduct teacher training courses; consult with posts on their English

teaching activities; conduct seminars and workshops fix national

teachers of English; consult with

rninisrrv, university, and teacher

training officials on national English teaching programs; lecture at

universities and teacher training

institutions; and evaluate English

teaching programs in which USIA

has an interest. The Agency also

prepares and distributes a variety

of English teaching and teacher

training materials.

The English teaching budget for

FY 1986 is $1.5 million, an increase of$427,000 from FY 1985.

Recent program highlights include the first teacher training

seminar under the Central American Initiative, the establishment

ofa regional English Teaching Officer position in South Africa, and

growth in USIA's linFiis/; Teacbitui

Forum to subscriptions totalling

more than 110,000.

USIA obtained approval from

Congress in 1982 to recycle proceeds from teaching fees and the

sale of Agency materials, up to a

$500,000 limit. The funds ordinarily would have reverted to the

U.S. Treasury. As of September

30, 1985, approximately $318,000

had been recycled.

On December 13, 1985, USIA

and the Macmillan Publishing

Company announced a cooperative agreement that enables Macmillan to produce a major multimedia package to teach English to

speakers of other languages. USIA

will have considerable input into

the concept and design of the sencs.

The program is designed for the

beginner to intermediate level. It

will consist of 26 half hour television programs in a magazine format, 52 fifteen-minute radio programs, series workbooks, video and

audio cassettes, supplementary texts

and teachers' aids. Designed for use

both in the classroom and openair broadcast, this package will serve

a multitude of post needs. The scries also will provide users with

insights into American institutions

and customs.

The Commission commends the

Agency for this innovative and ElI'-

sighted initiative.

39
EDUCATIONAL AND CULTURAL PROGRAMS

East-ltest Center

• The Commission welcomes recent improvements in the management and program relevance

of the East-West Center and encourages USIA's

Public Affairs Officers to make greater use of this

valuable resource. The Commission recommends

the East-West Center give increased aHention to

narcotics issues.

asr year the East-West

Center in Honolulu celebrated its rwcnrv-fifrh

anniversary. This unique

institution annually

brings together some

2,000 scholars, graduate

students, government officials,

journalists, and other professionals

from some 60 countries to examine issues of importance to Asia

and the United States. The Center

has developed a network of more

than 33,000 "alumni," many in key

leadership positions. Two-thirds

of the participants are from Asian

and Pacific nations; one-third are

from the United States. In FY 1986,

the Congress, through USIA,

funded $20 million of the Center's

budget of 525 million.

The Commission has visited the

Center and discussed its programs

at length with its Board of Directors and senior staff The East-West

Center plays a key role in U.S.-

Asian relations. We welcome recent improvements in its management and program relevance, and

we applaud its efforts to decrease

its dependence on CSIA as its primary source of funding. In 1985,

the Center began a comprehensive

effort to raise a $25 million endowment fund. The Commission

40

u.s. Fulbl't'qht ProfessorJohn Hafner conducts a seminar in American literature

(It the Univcrsitv of Indonesia's new American Studies Center in Jalmrta.

urges the Center to make increased

support by the private sector and

other gm'Crnments a high priority.

We also encourage USIA's Public Affairs Officers in the region to

make gn:ater use of this valuable

resource. Areas to consider include

participation in seminars by International Visitors and Amparrs,

greater post use of East-West Center publications, and greater post

input into the planning and execution of Center events and ITsearch studies. USIA also should

consider detailing an officer to the

Center.

finally, we recommend that the

Center sponsor research and programs in all aspects of narcotics

trafficking, including the impact of

substance abuse, societal consequences for producer and consumer countries, and the legal issues involved.
Management

Security and Public Diplomacy

• The Commission recommends that legislation

on diplomatic security fully take into account USIA's

public diplomacy mission, the need for relatively

free public access to USIA's libraries and information centers, and the desirability that USIA give

visible evidence of the free and open society it

represents,

• The Commission recommends that legislation

require the Department of State to consult with

USIA on security policies and programs, funding

levels, and security standards. USIA should have

authority and separately identified funds to furnish

logistical security support to its overseas installations andto perform its own security inspections.

• The Commission believes USIA should move

quickly to adopt all reasonable security measures

without jeopardizing its mission. Security decisions affecting USIA should be made on a flexible,

case-by-casebasis in full recognitiun of differences

in local threat levels. These decisions should be

based on Country Team assessments and lead to

the least possible isolation of USIA from its audiences.

• The Commission recommends that physical security policies apply equally to U.S. and foreign

national employees at their place of work.

ublic diplomacy is facing

a new and fundamental

dilemma. How docs

USIA-remain accessible

to its audiences and, at

the same time, protect

the security of its personnel and facilities!

Terrorist threats and acts ofviolcncc against American diplomats

make it imperative that we do more

as a nation to protect U.S. personnel and installations overseas.

The problem is urgent, and the

Commission welcomes the protective measures, enhanced professional standards, and plans to correct security deficiencies at U.S.

embassies recommended hv the

Inman Panel on overseas security

and contemplated in legislation ITquested by President Reagan.

Effcct ive public diplomacy,

however, requires that USIA's libraries, cultural centers, and press

offices be accessible to those they

arc intended to serve. To "harden"

USIA's buildings, insist Oil 100-

foot setbacks for Agency facilities

in urban areas, or require that rhcv

be moved to remote cmbassv compounds would greatly diminish

their effectiveness.

The Commission strongly believes that the threat of terrorism

should not be allowed to deter the

United States from conducting

public diplornacv. Late last year,

ill an effort to bring needed public

arrcnrion to this important issue,

we prepared a special report containing a number of detailed ITCommcndarions. *

The Commission did not question the Department of State's primary responsibility in formulating

diplomatic security policies. But

we recommended that the Departmcnr take into account USIA's

separate public diplomacy mission

and its Director's responsibility for

carrying it out. The Commission

is pleased that Secretary of State

George Shultz recognized this

when he wrote to USIA Director

Charles Wick on October 16, 1985,

"that differing [security j standards

should be applied to [VOAj relay

stations and libraries." It is importallt that this broad policy be

reflected in the legislation now before the Congress.

The Commission recommends

that legislation on diplomatic security take into account USIA's

public diplomacy mission and the

need for relatively free public JCcess to USIA's libraries and information centers. The legislation

should require the Department of

State to consult fully with USIA

on security policies and programs,

funding levels, and security standards. USIA should have authority and scpararclv identified funds

to furnish logistical security support to its overseas installations and

to perform its own security inspections.

Security decisions affecting USIA

should be made on a flexible, casebv-casc basis in full recognition of

differences in local threat levels.

These decisions should be based

on Country Team assessments and

lead to the least possible isolation

of USIA from its audiences. This

approach requires more than broad

policy statements at the top. It IT-

* U .s. Advisorv Commission 011 Public Diplomacv, "Terrorism and Sccuritv: The Chalkl1g~' tor Public l)ipi<Hll;K~·,"·I)l'(L'mht'r,

19R5. Copies are .ivail.iblc trom the Commisslim.

41
MANAGEMENT

quires consultations between USIA

and the Department of State that

are timely and thorough. To date

they have been neither,

Thc Commission also questions

Stare Department policies that LTC-

~1tCdifferent standards for U.S. and

t<lI"Cign national crnplovccs at

l'SIA's libraries and information

centers. Waivers or IOO-foot sethack standards for USIA's buildings should not be contingcnt on

the requirement that U.S. ernployccs be located scpararclv from

their foreign national colleagues.

Phvsical security policics must be

applied equally to all USIA ernplovccs at their place of work.

COMMENTS BY U.S. AMBASSADORS ON SECURITY AND PUBLIC DIPLOMACY

The Commission has received thoughrful comments from ,1 number of American Arnb.issador« on the need to take the

mission of public diplomacv into aL~count i;, dealing with security concerns in their country .. Tvpical arc the t()IIo\\'ing:'

Ambassador John D. Scanlan in Yugoslavia

"'/1JC1'Cis 110doubt ill my mind. p{l11iCllII7}"~1'since I IJIlI'C bcL'II

directly involved ill USIS jm!jT1"I7111sdurim; ntuch o( 1/1.1' carrcr ill

the F01'c{IJII Service, tliat sttcccssiul USIS pro,qra11lJ rcquirr reasonable public access. Thcrcfim: I Ilppll7l1d VO/l1'Coutntissian :,.(t{im to

I7SSlIl'Cthat sucb accessbv audiences which USIS must address 11'111

be retained. It is 1i1l11'tiJ1''O/IIJbsuch availnbilitv tluit USIS can

fit/fill its mandate. At the .\~111(thuc, lfull» ~!1rft' tlmt IIjJpmpriate security lIICf1.1"l11'CS arc required and tlic RSO, I'AO atu! 1

lutvc consulted OJ/ the most t:tll-rlil'c Jl'1l1' to implement tlmu.'

Ambassador John Gunther Dean in India

"The heart 0/ tlic matter is tlutt Enthnssv ofjim:1" mu! USIS otticO:1"do two quite n[ttiTClit tIJi1{IJ.iillfiJ/'e~1J1l countries. 1I'/1ilt L'SI,)

docs (public diplomacv. librarv opcmtions. iJostill.!Tcult ural nnd

intcllcctnal proamms), requires dnil» atui CI1S1' accessto USIS

premises lrv host COIIIIIII' tuttumnls.

"YOIII' excellent article ill tln: Oaolrcr ,'"Washington Post is n

{(!jTent and persuasive sunnuarv of these lmsic poi~/ts I1l1d the

overall mcaniuj; is enhanced lrv .1'0111' cloqncnt title: 'J)IJ// 't Let Securitv Hide (Jill' Liuht . '

"1 am especially COIICLTIlCdabout this '/~TIJ1'ill ludin. II'/Hrc it is

PO)! hriqln' ill deed. 'J'IlL'[am: USIS libraries arc nntoun tlic be.f1

Illld It/r;'l"t cfji'cril'e A 11I0:iCllII libraries ill the world. rl)e USIS (1'/1-

tcrs host II,j"JI7tI11IlYbc tlrc busiest schedule o( USIS pl"l(llm11l11/ill/1

ill the n-orld. The pbvsicn! plants o( these II/li/diJI,ITs arc tlrc tl11{Iliblc source ottlns I~TIJt. Tlicv brill!T tlic American lIIl'.'."Y7c to tln:

nation o( 750 nullion people. l-."lIfill"cill,!1Oil these /1/Ii1di1(11Stile

.1"1111/1' sccuritv procedures nmndnrcdjin: 0111111.1:' IIlIi/d:1' i1(IlJ .. II'/IITC

the tvpc otactiritv, 11.1' I lmvc .I"I1id,is quite di[fiTt'1It-- II'I!/t/d

1II1l1.!' it ucarlv itupossiblcjor USIS to do itsjob. As sint a! ill tln:

II1Jt section oitln: report: 'It is illlpossiblc to conduct public diplo·

IIIIlCl' [rour behind lrarrcd door«. '"

Ambassador Millicent H. Fenwick at the U.S.

Mission to the UN in Rome

"'I1JC rcconnncndations / ill the Commission \" rcpmt / which st 1"11(1.'

/'lICas particnlarlv valuable and relevant lI'erc these: tbr nccdjor

free accessfor tbc public; the rcquircnicru that the Stnt c DrpanIIIt'11t consult with USIS Of} sccuritv; scpnrntcjuuds, dcarlv 111/·

tiJorizcdjill' cxpcudit nrc I~v USIS I1l1d l~f1I'(Cl/h'1I1with St atr 11.1 to

sccuritv 1l17'1l1(1Tt'llIt'IIIS;[lcxilnlitv; 11IJdcqunl sccurttv 11I"I"111(lleII/OItsjill"/im'{IJII and U.S. lI'01-!,'t'1)"."

Ambassador Mike Mansfield in Japan

"I wOllld like to add 111\' litl/ SIIPpOl't to WIlli' major rccannncudntiaus. Lcqislntion should rcconnizc tlic scparntc mandate I!f"USIA

to conduct public diplonuu» 11IJdthe USIA Director's rcsponsibilttv tofil(fill this IIII11/dl7te. lnrpknicnmtion of'/,:qi,latillll should

be bv tttt cr-tutcncv narccnicut worlann tlnuunl: 1111iutcr-ancncv

Pllli:-)'-1II1l1,iltfr mid c~}(}I'dilll1li1~1Jbod\~. c c.

"Approprilltc scpnratc stmuiards need to be dCPc/o/,edfilr USIS IiInarics and iniornmtio» centers aud these standards 11111.1'1lictlcxiblc OIOIIITb to rccoanizc the wide di{fi'l"t"IIct's ill tluIocal threat

level t1l1d the hO.l"tCCllll1lt11'~\· nbilitv fl/Jd inclinntion to dcal witb it.

. .

"The kcv licrc is to avoid i11lpcniltIJ public accessto tbc detriment

ottln: nnssiou's public ':fjiJinJrotlls. III JIlPIl/l, fill" example, Amenmil Centers need Il central cttv location itwe (1/'Cto umintain

rcasonnblc acccssilnlirv fill' usis: clients ..

"Tbcsr srparatc, jlcxibtc standards 111"(best set bv IIsiJ(lr tln: e.tl'tTtisc o( tln: C01l1ltl"1' Tcani to IIJ( [ullcst extent possth!« ((llIplrd with

IVIlJiJiI{IJtll1/ iJltI'1'-IYTCIIC1'((}ordilll7tiJI,IT bodv 1'I'PieJl' o( ituportnut,

10I{IJ-ml(17( sccttritv decisions nuuic lrv tln: A 11IbIlSJIln01'.

"I 1/"11.1'1the Connuissiou ~I" repllrt will be Fil'flI tbr serious nttcutiou

it deserves both within tlic 1Jtjli1rt11lCllt I1l1d ill (.'III(lTI"C.\)". "

Ambassador L. Craig Johnstone in Algeria

"1 lI/,p/lll1n the posittnn WI/I lmvr taken. Altholl!T/), ill tlns era of'

terrorism. IPt' Il1l1St11/1do whn! is jllIssibie to prot at the lives ojonr

illlIcrimll Illld filrt'lJlII nntiounl ollplol'rcs, wc must 1I0t lc! the

terrorists succeed ill dl"il'i1{1TliS iuto IJlIIIl.'en or isolntion .

"111tlns rrnnrd. IPC IJI7l'Chcru tlJ1"!IIIqlJ 11srtcccssiul ucaotintion

1111101'.!7 IIJL~interested '~IJcII(ics WIICI';'IIi1(11tbr oilcllill.!T ofa lIell'

USIS cult ttml ccut I']" ill Alnicrs. (Jill" choices JI'(/'e to require absolntc I1dl)tTCJlCCto 1111111111 pnncl uuidclincs, tbcrchv rcquiriui; that

USIS 1/1111'1' to 11remote locat iott, 01"to IIIl1la' rcnsonnblc II(C01/I1IIOdntunts to the USIS role wliil: IIJ:iJI'11dill,lTsccuritv I1t 11location

nicrssiblr 10 the A lncrian public. I 11111pleased to report tlmt JI'I"

dHISI'tbr scantd course I1l1d tlmt ill A/IJiClJ, nt least, sccuritv ant-

{e1'1lJ,respecter; 11.1"tbcv ivill be, will lll;t hide 1Il11'/~7bt." .

42

. l.cttcr ....t( 1 l' .s. Advi ...()r~· (:()Jl)!1lI",j( III on PlIblil: nipl()lll.lL·~· Ch.urm.u: l:,d\\ ill

[. Feulner, II". lrom Amh.l"'\,lI..i()r .\like .\1.ulI,ficld, 1.11lll,lIY 10, I()X()~ :\Illh.l~ •.•l•-

~i()r I., ('r,li~ [ohn: ...t()J}C Dc-rcml-c-r 2(), It)K:1: .\Illh,l~, ..••ld~)r'\lillil'c1lt II. lcn

w u-k, J.11ll1,1~-\ 13, ItJX(): :\lllh,l. •.••.•• ld(!]" lohn I), Sl',lIl!.lIl, J,lllLl,I1T X, Il)X(): .uul

:\ll\h.I~"',HI()r lohu (iUllilll'1' Ik,lJI, lanu.irv tJ, jl)K().
USIA OfficerAssignments

• The Commission finds continued under-representation of senior USIA officers in Ambassadorial

and Deputy Chief of Mission positions and recommends that the President and the Secretary of

State correct this imbalance.

• The Commission recommends that USIA officers be given equal consideration with their State

Department colleagues for Charge and acting DCM

positions.

• The Commission recommends that the Department of State increase the variety of Washington assignments given to USIA officers.

• The Commission recommends that a USIA officer serve as the senior public diplomacy advisor

to the Secretary of State.

• The Commission recommends that USIA officers be assigned routinely to regional and other

policy positionsonthe staff of the National Security

Council.

lmost without fail, as

members of this Commission depart from a

USIA post, we remark

about the quality of the

officers that USIA has

been able to attract and

hold over the wars. We have mer

them in different capacities - as

Information Officers, as Cultural

Affairs Officers, and as Public At:

fairs Officers, many of whom have

larger staffs and grt:att:r rcsponsibilirics than Ambassadors at small

missions. We haw been told t1"Cqucnrlv by Ambassadors that the

Public Affairs Officer is the most

valued member of the Countrv

Team. W c have been impressed

with their political acumen and the

case with which they interact with

a broad range of influential foreign

officials and opinion leaders.

Ambassadorial Assignments

Nevertheless, USIA's officers are

substantially under-represented at

the top of their profession. Ambassadorial and Deputy Chief of

Mission appointments routinely go

to State Department officers, but

only rarely to USIA officers of

equivalent rank, merit, and expenencc.

Last year, 80 U.S. Ambassadors

were career foreign service officers

out of a total of 127. Three of the

80 were USIA officers. Looking

at appoinrmcnrs over the past dccadc, the ratio is the same. On a

proportional basis, USIA oficas are

SCl'C1I times lesslikeZv than State Department l!ffiCCl'sto make Amlmssador.

USIA officers do their share of

political reporting, monitor host

country developments as closely as

anv State political officer, usually

have greatt:r representational responsibilities than Mission officers

other than the Ambassador, art: recruited for their strong written and

oral communications skills. and

have extensive management and

negotiating experience. In addition, USIA's foreign language

proficicncv requirements arc among

the most rigorous in the foreign

atbirs community.

The Commission again recommends that the President and the

Sccrcrarv of State act to correct this

imbalance and make greater use of

USIA's officers for Ambassadorial

and Deputy Chief of Mission appoinrmcnts. The Commission also

recommends that USIA's officers

be given equal consideration with

their Stare Department colleagues

for Charge and acting DCM positions.

Interagency Assignments

USIA's advisory role in the policy

making process can be enhanced

significantly through interagency

assignments, Historically, USIA

off-icers on tours of durv at the Department of State haw been assigned to the Department's Public

Affairs Office or to press positions

in the geographic bureaus. The

Commission is pleased that modest progress is being made in assigning USIA officers to geographic desks and a variety of other

positions in the Department. The

Commission recommends that the

Department increase the number

of such assignments.

In addition, the position ofscnior public diplomacy advisor to the

Secretary of State has the potential

to broaden significantlv the Department's appreciation of the value

of public diplomacy and to enhance coordination between the

Department and USIA. Unforrunarclv in recent years this position

has not been tilled bv a senior USIA

officer. The Commission urges the

Secretary to appoint a senior USIA

off-icer with broad field experience

to this important position.

finally, the Commission ITCommcnds that CSIA officers be

routinely assigned to regional and

other substantive policv positions

on the staff of the National Sccurirv Council,

43
MANAGEMENT

Training

• The Commission recommends that USIA and

the Department of State move with greater urgency to institute a systematic program of media

andadvocacy skills training for Ambassadors, Deputy Chiefs of Mission, and USIA officers.

• The Commission recommends that USIA officers receive more training onnarcotics issues, and

the impact of production, trafficking, and consumption on producing and consuming nations.

n its last report, the Commission strongly urged USIA and

the Department of State to instirutc a program of media skills

training for Ambassadors and

Public Affairs Officers to enable them to explain U.S. actions and policies more effectively

on foreign television programs. In

June 1985, this Commission,

USIA, and the Department of State

jointly sponsored a television

training conference in London fix

European Ambassadors and PAOs.

The conference, designed to upgrade media skills and develop ideas

fix a regular training program, was

judged highly useful by most Ambassadors and an eve-opener by

many. Subsequently, USIA has

undertaken a pilot television skills

workshop for mid-career officers

and extensive research on appropriate wa~'s to implement media

skills training.

A year later, the Commission is

disappointed with USIA's lack of

progress in implementing this recommendation. Most Ambassadors

and many PAOs still have had little

television training. With television

44

interviews becoming an increasingly important part of their duties, it is essential that hands-on

training and frequent practice be

part of their professional development. USIA's PAOs must not

only become highly proficient

themselves, they must be qualified

to serve as primary advisors to their

Ambassadors on a broad range of

media skills and advocacv techniques, such as debating and extemporaneous speaking.

In an era of budget austerity,

USIA need not contract with topof..the-line television skill development firms. Much can be done

with a "bare bones" approach. A

single qualified professional using

USIA's own television equipment

in regularly scheduled training

courses can do a great deal. The

Commission urges USIA and the

Department of State to get on with

the task.

Other Training Needs

The Commission has not undertaken an assessment of USIA's

training programs. However, several training needs have come to

our attention during recent PAO

conferences and post visits. Many

foreign national employees in post

audio/visual sections were trained

primarily to deal with 16 mm film.

Suddenly, they are WORLDNET

television technicians. USIA needs

to do more to upgrade their skills.

Many of the engineers at VOA's

relay stations hired in the period

after World War II arc now retiring. VOA is finding it difficult to

compete with private sector salaries in attracting recruits. Moreover, U.Sctcchnical schools do not

offer courses in shortwave technology, VOA being almost the only

user of such skills. VOA wisely has

begun an in-house training program fix its relay station engineers.

The Agency also should look at

curriculum development grants IT)r

technical schools, perhaps near its

primary transmitting station in

North Carolina, to meet its engineering needs.

Finally, U.S. public diplomacy

must do more to address international narcotics issues. The perception in many countries that the

U.S., as a narcotics consuming

nation, is responsible for the problem distorts the fact that narcotics

trafficking and consumption are

shared international concerns. Unchecked narcotics trafticking causes

economic distortions, breakdown

of societal values, and corruption

of legal and political systems. The

Commission recommends that all

USIA officers receive more training on narcotics issues and their

impact on countries involved in

production and distribution.
Representation

• The Commission reaffirms its finding that personal contact with foreign opinion leaders is one

of the most important functions of public diplomacy

and urges that USIA's representation fUnds be made

comparable to those of other U.S. Government

agencies.

he Commission has

urged Congress repeatedlv to increase the

amount of USIA\

budget allowed for representational activities

overseas. We appreciate

that Congress in recent years gradually has increased the funding

ceiling on this critical activity.

Nevertheless, the Agency's representational budget remains well

below the level necessary for public diplomacy to be fully effective.

Out-of-pocket expenditures by

USIA officers have continued, although at a somewhat lower level.

Americans serving their counrrv

overseas should not have to dip

into their personal funds to perform their missions.

In our society, the benefits of

representational activity are taken

for granted - in sales, in the media, in public relations, in political

campaigns, and in corporate public affairs. One-on-one personal

Contact is just as necessary in today's crowded public diplomacy

environment. It is one thing to

present a clearmessage to a foreign

opinion leader; it is another to ensure that it is heard. Personal contact in a representational setting

can mean that USIA's press release

or feature article or offer of a satellite telecast will get the attention

it deserves.

USIA is underfunded when

compared on a per capita basis to

•...

Pianist David Northington pe1fimns at the AmeriCiln Cultural Center in Madrid. Under USIA's Artistic Ambassadon' p1'ol1ram,lTifted musicians perform before la'lJc and small audiences, ~qiFcmasters classes, and speat: about American

musical life at workshop, and seminars.

the representational budget of the

Department of State, even though

the representation obligations of

USIA's oHicers are at least as great

as those of their Dcpartmcnr colleagues.A comparison of USIA and

State shows that in FY 1985 USIA,

with 600 fiweign service officers elilJible [or l'e/wesentatio1Zfunds, spent

$636,000, or $1,060 per capita, on

representation. The State Department with 2,923 officers eltlJib/efor

representation fonds, includinq Ambassadors, spent $4,500,()()O, 07"

$1,540 per capita. USIA's representation budget increased to

$768,000 in FY 1986 for its eligible overseas ofticers. Its per capita share remains well below State

Department levels.

As a Commission we have a responsibility to ensure that tax dollars for public diplomacy arc spent

wisely. USIA's overseas representation funds serve the national interest. The Commission docs not

recommend that USIA's overall

budget be increased for representation purposes. We do recommend that USIA's House and Senate Appropriations Committees

substantially increase the ceiling on

representation expenditures within

USIA's program budget, and that

thcv be made comparable to those

of other U.S. Government agencics.
MANAGEMENT

Utilization of Personnel

• The Commission finds that new communications technologies and program expansion continue to make extensive demands on the staff resources of USIA's overseas posts. Adjustments in

personnel levels that may be required by federal

budget reductions should not be made inthe Agency's field operations.

he rebuilding of

USIA-necessary capital improvements, development of new technologies, and the

addition and enhancement of good programs-is greatly encouraging to

this Commission. As the Agency's

growth curve levels out, however,

it is important that USIA look

closclv at the distribution of its kcv . .

resource-its personnel.

The Commission continues to

be concerned that USIA's field posts

do not have adequate staff to administer entirely new programs,

such as WORLDNET and Video

Libraries, or expanded exchange

and International Visitor programs. The number of American

employees overseas has remained

relatively stable for the past decade. During the same period, howU.S. Information Agency: U.S. and Overseas

Staff Levels, 1975 and 1985

FY 1975 FY 1985

U,S. Staff 3.333 4,382

Voia oiAmcrica 1,3.'>4 2,282

American Sraf]' Overseas 1.106 1,083

Voice of America 109 130

foreign National Staff 4.865 3,891

Voice ofAmcrica 800 683

46

ever, the Agencv.'s U.S.-based staff

has increas~d by more than 1,000,

or about 30 percent (more than

900 of the increase was in \'OA).

USIA's foreign national staff has

decreased by slightly less than

1,000, about 25 percent. In 1975,

taking U.S. and foreign national

employees together, overseas posts

accounted for approximately twothirds of USIA's positions. In 1985,

only slightly more than half of the

Agency's positions were in the field.

The Commission recommends

that USIA look closclv at the distribution of its personnel to ensure

that overseas staff levels are commensurate with program gro\\'th.

Any prospective adjustments in

personnel levels required bv federal budget reductions should not

be made in the Agenc~T'sfield operations-either from American

officers or foreign national employees, a valued source of continuity and professionalism.

In addition, certain administrative elements in USIA have not

kept pace with recent program

growth. There is chronic understaffing in offices that collect debts,

audit grants, process travel vouchers, and pay USIA's bills. Shortage

of personnel in these areas can cost

the Agency in unnecessary expenses, loss of revenue, penalties

on late payments, and low staff

morale.

Forciqn national employeesfrom USIA J overseas posts participate in nil

administrative traininq course ill W aslnnqttni.
Congressional Grant Controls

• The Commission recommends termination of

the requirement that Congress be notified 15 days

before USIA may award proposed program grants.

mcc I9X3, the Senate

Forc ign Rc lar ions

Committee and the

House Foreign Affairs

Committee have required through USIA's

authorizing legislation

that rhcv be notified 15 days be-

. .

fore the Agency may award a11\'

program grant. The Commission

repeatedly Ius opposed this legislative micro-management as unnecessary and adrninistrativclv

burdensome.

The Commission bc li cvcs

strongly in Congressional oversight of USIA's programs, but not

through what has become in effect

a "legislati\'e veto" exercised by a

handful of Committee staffers and

one or two Committee members.

Congress has ample opportunity

to assure that USIA's activities are

consonant with its legislative mandate through the budget process

and other legitimate review procedures . Moreover, USIA has

worked with Congress to develop

grant guidelines and an internal

program grant approval system that

is working well.

The Commission again rccommends that the 15-day notification

requirement be terminated. Meanwhile, as an alternative the Commission recommends that the

Chairmen and ranking minority

members of the Foreign Relations

and Foreign Affairs Committees

reach ~111 understanding with the

Agenc\' that grants will be awarded

without delay unless questioned

hv a majorirv of the members of

the Committee.

American Participant [tiel: Glatzer conducts 11 violin lI'orltshopat the Nell' Delhi Schoo! o(Mwic

47
MANAGEMENT

Telecommunications Planning

• The Commission recommends that USIA establish a central planning body within the Agency

to coordinate policy, technical, and resource decisions relating to its information and telecommunications systems.

SIA's cntrv into the satellite and computer age

is leading the Agency to

make a variety of disparate long-term decisions on the selection of

information and telecommunication systems suitable

to its worldwide needs.

A partial list of ongoing studies

and initiatives includes: alternatives for Agency domestic and

overseas telecommunications;

Voice of America satellite relays;

electronic Wireless File links with

USIA posts and t()reign news organizations; technical and policy

decisions for overseas audience

Distribution and Records Systems

(DRS); electronic mail links with

the White House and other agencies in and out of government;

WORI,DNET television satellite

broadcasting; library database automation and expansion; enhancement of country plan and program

information systems; improvements of U.S. and post data processing systems for records and

48

property management; conversion

to a new headquarters mainframe

computer; security needs for automatic data and word processing;

and long-range technology planmng.

Each has its own rationale, and

the Commission welcomes the long

overdue modernization of USIA's

information and telecommunication systems. Bur many key dccisions on the projects now underway are being made separately by

different Agency elements. Nowhere does it all come together for

planning purposes.

Major decisions involving potentially expensive communications technology should not be

made piecemeal. The Commission

believes a central telecommunications planning body within the

Agency would reduce costs, avoid

duplication, establish Agency-wide

priorities, and ensure greater compatibility between separate systems.

The Agency should know best

how to organize such a body. The

Commission recommends that it

be done.

USIA:r television control room provides

technical production find special effias

capabilities. It is also the COI1l11l1l1Jications center fliT' live W()RLDNET

broadcasts. .
For additiol1,ll information, pkasl' write:

l 'nircd States Advisorv Commisxion

011 Public Diplomacv .

Room 600

301 4th Sr., S.W,

Washington, D.C 20;;47

Bruce Gregor" Sr.itl' Director

Michael Morg,lll, Deputy Stalf Director

(202) 48;;-24;;7