UNIIED STATES

ADVISORY

COMMISSION

ON PUBLIC

DIPLOMACY

1985 Report
What is Public

Diplomacy? T

hiS report is about public

diplomacy. It is it term that

is not meaningful to most

. Americans, yet it identifies

acuvuics that arc essential to the inicrcsts of the l 'nitcd States abroad.

Public diplomacy supplements and

reinforces traditional diplomacy b~'

explaining l',S. policies to Iorcipn

publics, by providing them with information about American society

and culture. bv enabling man~' to expcricncc the diversity 01 our country

personally, and by assessing foreign

public opinion lor, vmcrlcun ambas-,

sadors and foreign policy decisionmakers in the l 'nitcd Stall's. The

organization principally responsible

lor canying out our countrv's public

diplomacy is the l 'nitcd Stall's Information ,\gencv (l1SIA).

The L'.S, ;\~h-isorv Commission on

Public Diplomacy i~ responsible for

overseeing the international information and ~ultural programs of the

L'nitcd States COVC111111CThl1le.

Commission has thought a 1.,'l·catdeal

about how bcst to des'Crihe lXlhliL'

diplomacy to Americans, who b~' law

arc unable to receive L'SI1\'s media

products and program materials, \\' c

know of no better wav than to select

lrom a very long list cxarnplcs that

typiJ,v the range of public diplomacy

activities undertaken bv gOVCl1lment

agencies and many pri~'ate American

organizations.

It is public diplomacy

when:

:; The Voice Ilf .Ymcricn broadcasts

news and policy editorials to an cstimated 1 10 million listeners weekly

throughout the world.

, American cmhassv Public, \ffdirs

Officers brief journalists in European

capitals about l ' .S. policies in Central America.

A l'.S, Fulbright professor teaches

American studies at it univcrsiiv in

Brazil or an E!,lyptian Fulbright

scholar undertakes academic research in the l 'nitcd States,

Sccrct.uv of SIdle Cl'orge Shultz is

inkl'\'il'\\'cci in \\'dshinlrto~l on

l TSL\'s \VORL! ):--',TJ' ~atdlitl' tclcvixion network by iourn.ilists in selected ,\sian capitals.

1\ French tccn.uzcr lives in an

.Ymcrican home ill the :.Iidwcst unc1cr the Prcsidcrus Youth Exchange

Initiative.

1\ Thai student karns English at

the Binational Center in Bangkok.

Foreign policy speeches by senior

U.S, officials arc transmitted clcctronicallv to I T ,S. missions abroad

lor media placement.

,\ Philippine scholar consults the

reference collection at the American

library in Manila.

An American musician performs a

piano concert in Montevideo under

l'SIXs .Xrtistic Ambassadors program.

I'uhlic diplomacy is an integral

part of the foreign policy of the

l 'nitcd States and most other countries. It OCClll'S when the BBC broadcasts news: when a .Iapancsc ballet

company visits the l ' .S.; and when

Soviet spokesman Georgi." Arhatov

appears on American television. It

does not occur when l ' .S. officials

arc denied similar access to Soviet

television.

Public diplom.rcy is not it substitute lor traditional diplomacy, bUI it

recognizes the major role of ideas

and opinions in shaping the allcgian .cx .md political understanding

of most of the world.
UNITED STATES

ADVISORY

COMMISSION

ON PUBLIC

DIPLOMACY

1985 Report
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 U.S. Information Agency.

Respectfully submitted,

:£j~1-

Edwin J. Feulner, Jr., Chairman

President, The Heritage Foundation

Virginia

e. robert (bob) wallach

Vice Chairman

Lawyer-Counselor

Dean, Hastings Law School Center

for Trial and Appellate Advocacy

California

Priscilla Bucklev

Managing Edit~r

National Review

New York

/~Lty~

Hershev Gold

Chairman of the Board

Super Yam Mart

California

Tom C. Korologos

Vice President and Director of

Legislative Affairs

Timmons and Company, Inc.

Virginia

Richard Scaife

Publisher, The Tribune Review

Publishing Co.

Pennsylvania

IW-~~

Herbel1 Schmertz

Vice President, Public Affairs

Mobil Oil Corporation

New York

3
A Message

from

theChainnan

4

F

ouryears ago this Commission was gravely concerned

about the prospects for public

diplomacy. In their assessments of USIA our predecessors

founda crystal-set mentality and

vacuum-tube technology in an era of

microchips and communications satellites. They found seriously eroded

budget and staff resources, anda

foreign policy decision-making process frequently uninformed by an understanding of foreign opinions and

cultures.

Today, there are many reasons

why this bleak outlook is changing.

With strong bipartisan support

from the Congress, the Reagan Administration has revitalized USIA

and under the creative leadership of

Charles Z. Wick made public diplomacy a central part of the conduct ol

American foreign policy. USIA is

modernizing. Its influence within the

foreign affairs community has dramatically increased, and its resources have grown significantly.

Much has been accomplished.

In this report, my colleagues andI

have sought to document this progress and at the same time address

those challenges that still confront

the Agency. Each of' us bringsa

unique set of experiences and perspectives to our Commission role.

The views set forth have been considered with care.

In examining the way our country

conducts public diplomacy, we have

been struck forcefully by the dual

role assigned to USIA by the Congress. o The Smith-Mundt Act of 1948 rc

quires USIA to promotea better understanding of the United States in

other countries through the dissemination of information about the

United States, its people, and its

policies. o The Fulbright-Hays Act of' 1961

authorizes the Agency to increase

mutual understanding between the

people of the United States and the

people of other countries through e<

ucational and cultural exchanges.

The two Acts-when read togeth

in the context of 35 years of practi.
under administrations of both political panies-give USIA an obligation

both to articulate persuasively the

policies of the U.S. Government and

to carry out educational and cultural

programs. The two missions are

complementary, and public diplomacy is indeed more than the sum

of its parts.

It is not one-shot dramatic efforts

that make public diplomacy succeed.

Rather, it is the steady, wise use of

all of the resources of public diplomacy over time. It is recognition by

those who seek disproportionaicjy to

enhance educational and cultural exchanges that the articulation of U.S.

policies is also necessary to mutual

understanding and rational international dialogue. It is understanding

by those who support the vigorous

expression of U.S. policies that the

FulbJight and International Visitors

programs provide foreign audiences

with the background and knowledge

of our culture that put those policies

in perspective. And it is appreciation

by our elected and appointed 0111-

cials of the importance of foreign

public opinion and the power of

ideas in international political discourse.

This report contains the principal

findings and recommendations of the

Commission during the past year.

We have focused ona number of

new Agency initiatives such as the

satellite television network WORLDNCI, computerized transmission of

the Wireless File, and rnodemization

of the Voice of America. We have

examined selectively the needs and

contributions of USIA's traditional

programs-exchanges, foreign press

centers, English teaching, and

others. We have not ignored national

news media reports of policy and

manageJial problems that have concerned many Americans and members of Congress.

Shortly after the bombing of the

U.S. embassy in East Beirut,I received a letter from an NBC news

correspondent bringing to my attention the diligence and professionalism of a junior foreign service officer

assigned to that difficult post. She

happened to be the only USIA employee there at the time. The letter

brought home once again the realization that public diplomacy professionals face the challenge of physical

danger as well as the task of explaining the nuances of U.S. foreign

policy to an often skeptical world.

USIA's libraries, information centers,

and other installations-usually located separately from American embassies in areas that afford public

access-arc often the most visible

and vulnerable parts of the U.S.

presence overseas. My colleagues

andI havea high regard for the

quality of USIA's personnel, both

Americans and foreign nationals. We

have watched them operate firsthand. They arc doing a difficultjob

well.

Congress has given the U.S. AdviSo1Y Commission on Public Diplomacy a mandate which we have

taken seJiously-to represent the

public interest in assessing the public diplomacy of the United States.

Because Congress has made an institutionalcommitment for more

than thirty years to the need for the

judgment and long-range perspective

of an informed advisory body, we

urge its members to consider these

views with care.

Ours isa favorable balance sheet.

The American people can be pleased

with the work that USIA is doing. It

is our hope this report will be read

by everyone interested in public

illPl~~rf

Edwin J. Feulner, Jr.

Chairman

5
Contents Transmittal Letter

PUBLIC DIPLOMACY AND FOREIGN POLICY

3

Message from the Chairman 4

The Role of the Commission 8

Summary of Findings and Recommendations 10

The Value of Public Diplomacy 12

Research 14

Semantic Corruption 16

MEDIA AND PROGRAMS

Television 17

Voice of America 20

The Wireless File 26

Foreign Press Centers 27

Major Events in 1984 29

National Endowment for Democracy 31

EDUCATIONAL AND CULTURAL PROGRAMS

Exchanges and International Visitors 32

The Central American Initiative 35

Youth Exchange 37

Book and Library Programs 39

English Teaching and Binational Centers 41

MANAGEMENT

Senior Vacancies 42

Headquarters Controversies 43

Representation 45

Congressional Grant Controls 46

Training for Media Interviews 47

Need for More Personnel Overseas 48

7
The Role

of the

Commission

8

Commission members meet monthly in Washington. (From left to right)

Commissioners Tom C. Korologos, Priscilla Buckley, Richard Scaife, Chairman

Edwin J. Feulner, Jr., Vice-chairman e. robert (bob) wallach, Commissioners

Herbert Schmertz and Hershey Gold.

S

ince 1948, the U.S. Advisory

Commission on Public Diplomacy and its predecessors

have represented the public

interest by overseeing the overseas

information and cultural programs of

the United States.

The Commission is a permanent,

bipartisan and independent body

created by Congress to recommend

policies and programs in support of

USIA's mission and principal activities. It is required by law to assess

the work of the Agency and to report

its findings and recommendations to

the President, the Congress, the Seeretary of State, the Director of USIA

and to the American people.

TIle Commission's seven members

are appointed by the President 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 unanimous conviction

that public diplomacy is indispensable to our national security and to

the achievement of U.S. foreign policy objectives.

TIle Commission is one of three

permanent Presidential advisory

bodies with foreign affairs responsibilities. I It was established in 1978

as the successor to the U.S. Advisor

Commission on Information for

USIA and the U.S. Advisory Commission on International Educationa

and Cultural Affairs for the former

Bureau of Educational and Cultural

Affairs in the Department of State.

TIle Commission carries out the duties of its predecessors as well as ac

ditional responsibilities set forth in

its enabling authority.

In fulfilling the responsibilities

given to it by the Congress, the

Commission:

o Formulates and recommends pol

cies and programs to the President,

the Secretary of State and the Direc

tor of USIA to carry out the tunctions vested in the Director and

USIA;

o Appraises the effectiveness of

USIA's policies and programs;

o Reports annually to the Presiden

the Congress, the Secretary of State

1°!1lc others are the Foreign Intelligence Advisory

Board and the General Advisory Committee on

Arms Control and Disarmament.
and the Director of USIA on the programs and activities of USIA and

their effectiveness;

o Submits other reports to the Congress as it deems appropriate and

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

o Assesses the degree to which the

scholarly integlity 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. 2

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 has no desire to

"micro-manage" public diplomacy.

Support for the work of the Commission is provided by a small

professional staff. We would like to

express appreciation to former Staff

Director G. Richard Monsen, a Minister Counselor in the Senior Foreign

Service, who recently retired after 36

years of distinguished service on behalf of this country and the mission

of public diplomacy.

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

ways. TIle Commission meets

"Section 8. Reorganization Plan Xo. 2 of 1')77.

monthlv with Director Charles Z.

Wick alld other senior officers in

USIA.

It meets 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 veal' the Commission testified

in oversight hearings on USIA held

by the House International Operations Subcommittee and also made

its-views known on public diplomacy

funding issues through letters and

reports at various stages of the legislative process.

TIle Commission is convinced that

it cannot fulfill its responsibilities

without observing USIA's activities

overseas. DUling~the year, members

of the Commission visited 25 posts.

Commission meetings were also held

"During the period covered by this report. the

Commission met with President Ronald Rcauan,

Vice President Geor!!e Bush. Secretary of Stite

George Shultz. COlll~Sellor to the Pres'ident Edwin

N!ees~· fIl. White Ilouse Press Spokesman Larry

Speakes. Senator Charles II. Percy. Senator

Claiborne Pcil, Conl,>Tessman William S, Broomfield.

Consressman Dan ~1ka. Under Secrctarv of

Dc!;nse for Policv Fred C. IkIe. General 'Edward L.

Rownv, Under S~cretan' of Slate lor Political Affairs

N!ich~cI Armacost. Xat'jonal Endowment for

Dcrnocracv President Carl Gershman, Assistant

Sccretarv of State for Inter-American Affairs

Lanuhorno ,\. Motlev, Ambassador Charles Price.

AnlbassaJor John (}m'in. Mexican Foreign

Secretary Bernardo Sepulveda and East-\\'est Center

President Victor II. Li.

Adoisory Commission members discuss public diplomacy issues with President

Reagan.

in London and Mexico City.

The purpose of these visits, many

of which are privately financed, is to

inform the Commission's deliberations andjudgment with a first-hand

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,

TIle Commission also derives useful comparative insights through

meetings with foreign government officials engaged in information and

cultural activities. Meetings in London with the BBC and th; British

Council and in Mexico City with

Foreign Secretary Bernardo Sepulveda and senior foreign ministry oflicials provided a valuable context in

which to view U.S. public diplomacy

activities.

Finallv, the Commission seeks to

extend the representational reach of

the posts it visits through privately

hosted luncheons and dinners for

key post contacts. These events,

which include journalists, government officials, business leaders,

scholars and cultural figures, provide

both a program opportunity for the

post and a better understanding of

the work of the Agency for the Commission,

A few days in one post do not permit a full assessment of its activities.

In those it has visited, however, the

Commission has been able to conclude that USIA is maintaining open

channels of communication with significant opinion leaders and decision-makers, many of whom have no

other ties to the U.S. embassy in

that country.

This report sets forth the Commission's principal findings and recommendations developed during the

past year. They are offered in the

hope that both the Congress and

those charged with the conduct of

public diplomacy will benefit [Tom

them, As private citizens we believe

that oversight and evaluation can

contribute to the development of

sound public policy, to the improvement of our nation's public diplomacy, and to better understanding of

its necessity and importance by the

American people.

9
Summary

of Findings &

Recommendations

10

Television

o 111eCommission welcomes the

emergence of television as a major

program ann of USIA and fully endorses the Agency's initiatives in utilizing:communication satellites and

new~'ideo technologies.

o The Commission recommends

that as a high priority USIA, with the

support of other government agencies, plan for the establishment of a

worldwide system of television

broadcasting to enable U.S. leaders

to speak directly to audiences in

every region of the world.

Voice of America

o 111eCommission reaffirms its support of VOA modernization and believes it is vitally important that the

U.S. remain committed to a multiyear program designed to produce a

strong, reliable VOA signal worldwide.

o TIle Commission recommends

that USIA take steps to instill a

greater sense of urgency among all

Agency elements involved in VOA

modernization and establish a mechanism to promote communication

and cooperation at the senior level

Agency-wide.

o 111eCommission commends VOA

and those Public Affairs Officers

who have initiated training programs

for Third World national broadcasting organizations. The Commission

recommends this effort be expanded.

Radio Marti Program

o The Commission recommends

that a reorganization plan transferling the Radio Marti Program to the

Board for International Broadcasting:

be proposed to the Congress and ~

that the Congress act favorably on

such a plan.

Wireless File

o TIle Commission welcomes

USIA's decision to make computerized transmission of the Wireless

File a high priority and commends

the use of program evaluation techniques by Wireless File managers.

Automation of the File combines on!

of the Agency's most effective information services with the technology

of the 1980s.

Books and libraries

o 111eCommission is deeply concerned that the U.S. is not competitive in international book and librar

activities. Needed increases in resources for overseas American libra

ies and for USIA's book translation

and donated book programs will re

quire the sustained cooperation of

USIA, the Congress and the private

sector.

The Central Americar

Initiative

o TIle Commission fully endorses

the recommendation of the Kissins

Commission that government-spo~

sorcd scholarships to bring Centra

American students to the U.S. be

greatly increased to counter expanded Soviet bloc scholarship

programs.
Research

o TIle Commission recommends

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 and other countries.

o The Commission recommends

that USIA increase its utilization of

the Office of Research to assess the

impact and effectiveness of Agency

products and programs.

o The Commission recommends

that USIA be invited to participate

regularly in meetings of interdepartmental groups where options for new

policies are developed and be asked

routinely to assess the impact of proposed foreign policies.

o The Commission finds that

USIA's resources are insufficient to

provide the research capability that

national security requires and that

the Agency needs to make its resource management and programming more efficient.

Semantic Corruption

o The Commission repeats its recommendation that the National Security Council and USIA assess the

problem of semantic corruption and

institutionalize ways to counter misleading terminology and increase the

accuracy of words and concepts in

international political discourse.

Senior Vacancies

o The Commission recommends

that the Director and the White

House move quickly to fill longstanding vacancies in the positions

of USIA Deputy Director, USIA Associate Director for Programs, and

Director of the Voice of America.

Headquarters

Controversies

o "The Commission finds that interest abroad in recent USIA headquarters controversies was marginal and

that there was no discernible adverse

impact on USIA's overseas programs

and activities.

o TIle Commission recommends

that USIA provide clearer operational

guidance on speaker selection criteria and the relationship between advocacy and education in its speaker

programming policies.

o The Commission recommends

that USIA encourage responsible internal discussion of professional

public diplomacy issues and provide

an appropriate forum for doing so.

Representation

o The Commission finds that personal contact with foreign opinion

leaders is one of the most important

functions of public diplomacy. A

substantial increase in USIA's overseas representation funds would

serve the national interest.

Congressional Grant

Controls

o TIle Commission finds the requirement that Congress be notified

15 days in advance of all USIA program grants is neither necessary nor

sound public policy and repeats its

recommendation that the practice be

discontinued.

Need for More

Personnel ()verseas

L New communications technology

and program expansion, particularly

in USIA's WORLDNET, educational

exchange and International Visitors

programs, have stretched the Agency's overseas staffs to the breaking

point. The Commission strongly recommends that additional personnel

be assigned to USIA's field posts.

Training for Media

Interviews

L The Commission recommends

that USIA institute a program of

training to prepare senior USIA officers, ambassadors and deputy chiefs

of mission for media interviews.

11
PUBllC DIPWMACY AND FOREIGNPOllCY

The Value

of

Public

Diplomacy

"Telling America's story to

the world is a fantastic

mission, because America's

stor» is nothing more or

less than the success story

of freedom. The story of

freedom is a threat to evelY

tyrant and every obstacle

to freedom in the world.

USIA is the cheapest, safest, most important instrument of American foreign

policy. JJ

-Jeane J. Kirkpatrick

U.S. Ambassador to

the United Nations

T

he more we have come to

understand the nature of

public diplomacy, the more

this Commission is convinced that Ambassador Kirkpatrick

is light. Public diplomacy is indispensable to our national security and

deserves to be treated with the same

importance accorded to the other instruments of foreign policy. There

can be few tasks more fundamental

than to make sure the unique ideals

for which our nation stands are

understood.

Public diplomacy seeks to utilize

the power of ideas and public opinion to advance foreign policy objectives and long-term national interests. To this end, the United States

has conducted official information

and cultural programs for many

years, long before the U.S. Information Agency existed. Until recently,

however, many American diplomats

and policy makers did not take public diplomacy very seriously.

The public aspects of foreign policy were usually an afterthought. According to one experienced former

ambassador: "In almost anyone of

the endless Washington meetings

that determines a course of diplomatic action, the final question normally posed as the participants are

rising from the table and moving toward the door is, what do we say to

the press about this?" It will, he

12

s~id, require "a major reorientation

of attitudes among our professional

as well as our political diplomats to

institute a practice that considers th

public dimension of a foreign policy

a major part of its solution rather

than another piece of the problem."

That limited and purblind approach is changing through force 01

circumstances if not always througl

a change of heart on the part of dij

lomats. The imposing role of the m

dia in today's world and advances

communications technology have

drastically changed the rules of the

diplomatic process. The secret, elit

world of traditional diplomacy is

largely a thing of the past.

U.S. policy makers are increasingly aware that foreign perception

of America and its policies may in

fluence the policies of other countr

and affect the success of our own.

Senior administration officials rcgi

larly take part in briefings at USIA

Foreign Press Centers and use

USIA's worldwide satellite tclevisi

network to explain policies and re

spond to questions from foreign jc

nalists in capitals around the worl

USIA participates in more and

higher level interdepartmental gro

involved in the conduct of foreign

fairs than ever before.

In recent years, the White Hou.

press office has become more aw:

of the specialized communication

skills of USIA's officers and the s

ices the Agency can provide. USI

daily reports on foreign media reo

tion are perused with care by Pre

dential press aides, and at all int

national conferences attended by

President, USIA's officers help 0

ganize and staff the press center:

and brief the foreign press in the

own languages. When the Presid

travels abroad, USIA's officers a

often called on to lead the advar

parties to organize and coordina

arrangements for the media. Wh

House Press Spokesman Larry

Speakes affirmed to this Commi

that he has come to rely heavily

USIA for such support.

It is still true, as we observed

'William I!. Sullivan, "The Transformation ol

Diplomacy," The Fletcher Forum, Summer, I

p.293.
year, that USIA is called in more

often to advise on the presentation

and execution of policies already decided upon than to participate in

their formulation. Nevertheless, there

is a receptivity to the Agency's ideas

and counsel that did not exist

before.

If USIA is to take advantage of

this new openness and contribute in

an advisory capacity to the policy

making process, some adjustments

in old habits will be required.

What is needed, and is often lacking among harassed policy makers,

is an understanding of the history

and culture of a foreign society as

well as the immediate political and

economic forces that are likclv to influence its perceptions and attitudes

in the future. This clearly is what

Congress intended when it gave

USIA a mission to "enhance understanding on the part of the Government ... of the history, culture, attitudes, perceptions, and aspirations

of others. ,,2

USIA has many officers in posts

around the world who can provide

this information. But USIA must require that they report it, and the

Agency in turn must ensure that

their reports are timely and utilized

by policy makers with available

opinion research and other data.

USIA's advisory role in the policy

making process can make it more

likely that foreign publics will support rather than oppose U.S. policies

and actions.

USIA's primary mission is, of

course, to provide information about

the United States, its policies and

values to an often skeptical world. It

is no small task. The strength of

Communist parties and the appeal of

Marxist philosophy is declining in

the industrialized world, but it remains strong in much of the Third

World. The Soviet Union, which devotes vastly greater resources to information and propaganda activities

than we do, has greatly increased its

programs in Mica, South Asia and

Latin America,

The Soviets have little to teach the

people of these lands about feeding

themselves or developing their econ-

"Public Law 95-426.

omies, yet they have been very successful in seeing to it that Third

World problems are viewed as the

fault of the "rich" countries, meaning usually the United States. The

Soviets predictably seized on the

tragic Union Carbide accident in

Bhopal to repeat to the people of India and the Third World their old

charge that U.S.-based multinational

companies are an evil force. But the

Soviet media neglected to mention

that India's agricultural progress-in

pan the result of insecticides produced by Union Carbide-has enabled it to ship food surpluses to the

Soviet Union. 111e Marxist government of Ethiopia has, typically,

blamed its famine on Western counhies, even though they and not the

LT.S. Information Agency

Appropriations, Salaries and

Expenses, 1967-198j

Soviet Union have been providing

most of the food and other assistance.

Perhaps we should be proud that

the United States is universally held

to a different standard of conduct

than Communist countries. America

has a message to tell of freedom, human lights, and cultural and material development that the Communists cannot match.

We urge the Congress, even in this

period of fiscal austerity, to provide

USIA with the resources it needs to

carry out its essential public diplomacy mission. Compared with the

expenditures of other foreign affairs

and defense agencies, additional

funds for USIA would be a prudent

investment in our national security.

800---------------------- _

o:

cr::.

«-l 500 -l

0

0

u...

0 400

o:

z

0

:::i

-l 300

~

200

100

1967 1970 1973 1976 1979 1982 1984 1985

o Actual Dollars

• Dollars Adjusted for Inflation

13
Research

14

Findings&

Recommendations U The Commission recommends

thata 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 and other

countries.

LJ The Commission recommends

that USIA increase its utilization of

the Office of Research to assess

the impact and effectiveness of

Agency products and programs. u The Commission recommends

that USIA be invited to participate

regularly in meetings of interdepartmental groups where options

for new policies are developed and

be asked routinely to assess the

impact of proposed foreign policies. LJ The Commission finds that

USIA's resources are insufficient to

provide the research capability that

national security requires and that

the Agency needs to make its resource management and programming more efficient. U

SIAis regarded primarily

a.sa purveyor ofTi~fonnanon about the United

States to the people of

other countries, Less well understood

but scarcely less important is its reverse duty "to ensure that our govemment adequately understands foreign opinion and culture for policymaking purposes." 1

More specifically, the Director is

required to provide the President, the

National Security Council and the

Secretary of State with "assessments

of the impact of actual and proposed

United States foreign policy decisions on public opinion abroad.":'

Providing these assessments is primarily the task of the Agency's Office of Research which conducts reg- 'Presidential Mcmorandurn of March 13, 1978. 'Executive Order 12048. March 27.1971'.

ular surveys of foreign public opinio

on important issues and current U.~

policies. It also analyzes the attitudes of influential foreign groups tc

ward the United States.

During the past fiscal year the Of

lice of Research conducted more

than 30 survevs of foreign attitudes

on security Issues. More than 50

other studies dealt with public opin

ion in single countries about the

U.S. and its foreign policies. Twelv

focused on economic issues in pre]

aration for the London Economic

Summit Conference. These surveys

are studied with considerable inter

est bv the White House and the va

ious foreign affairs agencies.

Foreign Opinion Research

Advisory Committee

The Commission believes there is

creasing but still insufficient consr

tation between decision-makers ar

the researchers who conduct

the polls. An interagency group, tl

Foreign Opinion Research Advisor

Committee (FORA) was establish!

last year to coordinate, commissic

and review studies of foreign opin

ion. It is composed of mid-level

representatives of USIA and theI

partments of State and Defense a:

is chaired bv an NSC officer. FOI

meets monthly to discuss the mos

recent USIA surveys and to ident

the needs of the foreign affairs

community for additional opinior

research data. USIA budgeted

$250,000 specifically for FORArequested studies, although virtu:

all the Agency's attitudinal survc

are related to issues of concern tl

FORA's members.

While FORA is not involved ir

formulation of foreign policy, the

Commission nevertheless regard:

asa positive development in the

wider dissemination and utilizat

of USIA's specialized knowledge

foreign public opinion. As we nc

last yeal', however, the studiesn

quested have focused mainly on

sessing public reaction in Westc

Europe and Japan to U.S. polic

and the problems of building su

for them. Rarely has USIA parti

pated in those meetings of inter

partmental groups where option

new policies are developed; ran
.•

has it been requested to assess the

impact of proposed foreign policies

as called for by the Executive Order.

Such assessments should not be

limited only to opinion polls. They

should provide the policy planners

insight into the historical and cultural factors and perspectives that

would influence the reaction of foreign people to our proposed course

of action. For the most part, as former USIA Director Edward R. Murrow ruefully observed, the Agency

continues to be excluded from the

take-offs but is regularly called in to

help with the crash landings.

To the extent that limited funds

have permitted, research has provided program managers with useful

planning information, During the

past year, the Office of Research

conducted eight studies of VOA listeners to determine audience size

and preferences in different countries

and areas. The Office of Research

also completed studies of communications systems and media habits in

ten countries. Such studies are of

considerable value to PAOs in their

planning and should be made in all

priority countries,

Comparative Studies

The Office of Research occasionally

conducts studies of Communist international broadcasting. It has a

small staff that assembles a large

amount of information gathered by

USIA's field posts from public

sources on overt Soviet cultural activities. This information is summarized in an annual report. The Agency's Bureau of Educational and

Cultural Affairs, using information

obtained from other U.S. Government agencies, produces estimates of

the number of Soviet bloc exchanges

worldwide and by geographic region.

This information is interesting and

valuable, but the net result is rather

frustrating. The data tend to be uneven, most more than a year old and

based, necessarily, more on estimates than on hard facts. It is inevitably incomplete, since it deals primarily with Soviet overt programs

and velYlittle with the vast range of

Soviet covert propaganda activities.

It is, in fact, merely the tip of the

iceberg.

This Commission believes the U.S.

Government should have as full a

picture of foreign cultural, information and propaganda programs as

it does of foreign military and diplomatic activities. All U.S. foreign affairs agencies should be tasked to

contribute to this effort. USIA's Office of Research should, with the cooperation of the Department of State

and other agencies, be given the assignment of collecting and analyzing

the unclassified data. In the Commission's view, the value of such information for establishing policy

priorities and long-range public

diplomacy program planning will

more than justify the effort.

Need for Program

Evaluation

This Commission has long felt that

Agency managers should systematically utilize the capabilities of research to assess the impact and efIectivcness of Agency products and

programs. We are aware that there is

more than a little resistance to this

idea in some Agency elements. In

addition to VOA listener surveys, infrequent but useful studies of some

Agency publications have been

made. Marketing studies and surveys

of consumer preferences have long

been standard business management

tools. We believe that Agency resource managers and program planners should develop a comprehensive method for the systematic

evaluation of their programs.

The Office of Research has requested funds and staff to establish

a unit to perform this function. This

unit's research would not only support the substantial increase in

VOA's worldwide broadcasts, but

also evaluate the effectiveness of the

new programs of the rapidly growing

Television Service and the vastly expanded exchange programs. It would

also assess various Agency media

products. Given the rapid and

needed growth of a number of major

Agency programs and the expenditure of considerable sums of money,

a system of objective assessment and

evaluation is needed.

The resources for research for FY

1985 were increased by approximately $1 million. The overall

budget of $4.7 million is nevertheless insufficient to provide the research capability national security

requires and that USIA needs to

make its programming and resource

management more efficient. We recommend that the Agency give this

function a high priority and that

Congress appropriate the necessary

funds.

15
Semantic

Corruption

16

o The Commission repeats its recommendation that the National Security Council and USIA assess

the problems or semantic corruption and institutionalize ways to

counter misleading terminology

and increase the accuracy of words

and concepts in international political discourse.

Findings &

Recommendations

I

itsn previous report, the Commission addressed the problem .

of systematic distortion by the

Communists of the meaning of

certain words to confuse and mislead in international political discourse. TIle misuse by Communist

propagandists of such positive words

as "peace," "democratic," "liberation" and "people," to mention only

the most obvious, often succeeds in

concealing or confusing the real nature of the movements or regimes

described. Our adversaries have

been much more aware of the importance of semantics in conveying

ideas and perceptions than have we.

As Senator Daniel P. Moynihan

has observed:

.'Simply put, semantic infiltration is

the process whereby we come to

adopt the language of our adversaries

in describing political reality. The

most brutal totalitarian regimes in the

world call themselves 'liberation

movements. ' It is perfectly predictable

that they should misuse words to

conceal their real nature. But must we

aid them in that effort by repeating

those words? Worse, do we begin to

influence our own perceptions by using them?"

U.S. political leaders and journalists need to display more sensitivity

to the nuances and accuracy of

words and concepts. And systematic

government efforts to counter misleading terminology must be increased.

Last year the Commission recommended that an interagency task

force be created under the National

Security Council to assess the prob-

'Policy Rericu-, Spring, 1979,

lcm and devise means to respond.

11le NSC's International Information

Committee and USIA have tentatively addressed the problem.

A telegram was sent to all U.S.

missions abroad instructing them to

be alert to the problem. Copies of a

lexicon of Marxist-Leninist terminology have been sent to USIA's overseas posts for possible placement.

The Television Service is planning a

video cassette on "the use of words

and concepts in the battle of ideas,"

and the USIA magazine Problems of

Communism has been requested to

commission articles on the use of

words by Communist propagandists.

Finally, a scholar has been engaged

to produce a series of short analyses

of specific concepts and terms which

have been misused by the Soviets.

These are promising projects and

a necessary first step, but to the

Commission's knowledge nothing

has been produced. Meanwhile, tile

problem of semantic-corruption remains. The Commission continues to

believe that it is important and that

it should be dealt with on a systematic and continuing basis.
MEDIA AND PROGRAMS

Television

Secretary of State George Shultz

holds a press conference organized by

USIA in Mexico City.

-...;..--""'...•-

Findings &

Recommendations

lJ The Commission welcomes the

emergence of television as a major

program ann of USIA and fully endorses the Agency's initiatives in

utilizing communication satellites

and new video technologies,

o The Commission recommends

that as a high priority USIA, with

the support of other government

agencies, plan for the establishment of a worldwide system of television broadcasting to enable U.S.

leaders to speak directly to audi- "

ences in every region of the world.

T

h.e past year has seel: telcvision emerge as a major program arm of USIA. Making

innovative use of the latest

satellite communications technology,

the Agency is creatively exploiting

the potential of this powerful medium for communicating with foreign

audiences.

WORLDNET

A new era for USIA in global communication and telepress-conferencing was opened in November 1983,

when the Agency launched its own

satellite television networkWORLDNET. Initially beamed to

five U.S. embassies in Western Europe, WORLD NET currently consists

of four regional networks reaching

nearly 30 countries in Western Europe, East Asia, Africa, Latin America and the Middle East. An Arabic

language service will be added this

year. The Agency hopes eventually to

expand the system to link all American embassies in the network. I

WORLDNET permits U.S. policy

makers and other leading figures to

speak to foreign TV audiences about

the vital issues of the day. Through

one-way video, two-way audio disIAll of the programs broadcast so far have been

through the Intelsat system in cooperation with local

post and telephone organizations (IYlTs).

Xe!!otiations arc undcrwav in a number of countries

to ~lIow CSlA to place di~h antennas on the roofs

of our embassies to receive the Agency's satellite

transmissions directly without going through local

Pl'Ts, This will result in considerable savings,

cussions, foreign journalists can, in

turn, question American officials directly during hour-long interviews.

Among the U.S. officials who have

been interviewed arc Secretarv of

State George Shultz, Defense 'Secretary Caspar Weinberger, UN Ambassador Jeane Kirkpatrick, Treasury

Secretary Donald Regan, Agriculture

Secretary John Block. Joint Chiefs of

Staff Chairman General John W.

Vessey, Senator Richard Lugar, National Security Advisor Robert MeFarlane and many others. Belgian

Foreign Minister Leo Tindemans and

West German Chancellor Helmut

Kohl are among the foreign leaders

who have participated in these programs.

President Reagan's speech to the

United Nations in September 1984

was carried live via satellite to participating posts in Europe and was

followed by a question-and-answer

session with Under Secretary of State

Michael Armacost and European

journalists. The President's subsequent speech to the IMF /IBRD was

also telecast live by satellite to European and Latin American posts and

was followed by a similar interactive

discussion with Treasury Under Seeretary Beryl Sprinkel. Foreign coverage of both programs was extensive.

Except for Presidential speeches,

use and coverage of \VORLDNET

programs in Europe have been uneven, but they have been regularly

and widely shown and reported in

Africa, Asia and Latin America.

During the past year more than 45

programs have been transmitted over

WORLDNET, and the program

budget has been increased from

$3.4 million in FY 1984 to S 12.6

million in FY 1985. The overall

budget for television in FY 1985 is

$28~8 million, an increase of about

812.1 million over FY 1984.

Increasing the frequency of

WORLDNET programs and broadening the scope of the subjects presented attest to the usefulness and

adaptability of this new technique.

Refinements will improve a system

that has already demonstrated its effectiveness.

A word of caution is in order,

however. From inspection nips to

overseas posts and many meetings

17
with PAOs, it became clear to the

Commission that the novelty of the

technological aspects of WORLDNET has begun to wear off. The appearance of high-level American officials is no longer enough to assure

prime-time foreign coverage unless

the interview produces some genuine

news. The subjects presented must

respond closely to the interests of

each country or region and to the

needs of the posts if they are to continue to command an attentive audience. This will require greater consultation between USIA's television

program planners and its field offieel's.

WORLD NET programs demand a

great deal of overseas staff time and

effort, The expansion of the television programs, while certainly to be

encouraged, will place severe burdens on already understaffed and

overworked posts. We noted in our

last report that "the Agency's overseas staffing has been reduced below

the level where new programs can be

accommodated .... " With the expansion of television and other

Agency activities (most notably exchanges), it is imperative that posts

18

be given additional American and

foreign employees if these important

programs are to succeed.

Other Program Initiatives

Another form of satellite interview,

the so-called Video Dialogue, designed to meet specialized needs of

individual posts, has also been very

successful. This is a one-way video,

two-wav audio link between USIA's

Washington studios and a foreign

television network or station in

which U.S. spokesmen are interviewed on major issues. The interview is usually carried live by the

foreign station or taped for later use.

Since the foreign broadcaster in most

cases pays for both the up-anddown-link satellite charges, there is

no cost to the USIA post, and usage

is assured.

The Television Service provides a

wide range of other programs and

services. TV Satellite File is a

weekly, half-hour magazine-type

program of features and news. Approximately 90 posts are subscribers

to the File, and 28 foreign correspondents in the U.S. receive videotape recordings (VTRs) through the

Agency's Foreign Press Centers for

direct reporting to their countries.

In addition, VIZNE\t\fS and UPITN, the world's largest TV news

syndicators, are provided with VTRs

of the Satellite File for syndication to

their clients around the world. Stories or items from the File are used

extensively by many television stations' especially in Asia, Africa and

Latin America, to augment their own

programs.

Science World, a monthly program

on the latest U.S. scientific developments, is distributed to USIA's posts

in 84 countries. This highly successful program is produced at a very

modest cost (less than S4,000 per

show including French, Arabic and

Portuguese language versions)

thanks to the cooperation of private

American companies which furnish a

great deal of film and videotape material for Agency use. Several Science

World programs have received international awards.

There are other heartening examples of private sector cooperation

and assistance. The Agency has obtained for overseas use a large number of valuable commercial films and
television programs. They include

the composite stories from the ABC

World News Tonight, the Phillip

Morris collection of cultural and

sports programs (14 thus far), 22

programs from the Coca-Cola library, Beverly Sills' New York City

Opera "La Traviata," the popular

science series, "Omni: The New

Frontier" and many others. These

useful additions to the Agency's program resources have been received

enthusiastically by overseas posts.

The Television Service's assistance

to foreign TV producers continues to

generate much good will as well as

favorable prime-time shows. Some

foreign TV stations may be reluctant

to use Agency-produced programs,

but they are delighted to have

USIA's assistance to produce their

own. Over the past year, the Tv coproduction unit worked on 28 major

foreign productions. On a few projects, USIA's posts made financial

grants (from S2,000 to $10,000) to

foreign broadcasters.

Capitalizing on the tremendous

growth in home video, USIA has established videotape libraries at ten

selected posts in five geographical

areas. Each has received 80 titles to

start. If financial resources permit,

this project will be expanded to include all principal posts with a catalogue of up to 1,000 titles.

The Television Service cooperates

closely with USIA's Foreign Press

Centers in the United States. It also

supports the Agency's speakers program in producing various forms of

electronic dialogues with overseas

posts. The Television Service played

a major role in explaining to foreign

audiences the uniquely American

system of nominating Presidential

candidates, conducting campaigns

and electing a President.

The various programs and activities of the Television Service mentioned above are examples of the

creative use being made of this versatile and powerful medium. It is

important to note, however, that the

Agency is still in the early, experimental stage of international satellite

communication. Different formats

and concepts are being explored.

Given the increasing importance of

satellite communication to USIAUSIA installs a dish antenna all the American embassy ill Mexico City for a

WORLDNET transmission.

indeed to the whole concept and

conduct of public diplomacy-it is

essential to experiment, to be tolerant of occasional failure, and to

learn how best to use and adapt this

new medium to provide the capability national interests require.

Communication satellites and the

rapid development of new communication technology are bringing profound changes to USIA and the ways

it communicates with foreign audiences. Many such changes are already apparent; more are on the

way. Direct television transmissions

to some American embassies, without going through local land lines,

will begin in 1985. In a Jew years

USIA and the Department of State

will be able to communicate with

most embassies in this manner.

Two-wav video links between Washington a"ndthe major field posts also

will almost certainly be established

in the years ahead. Teleconferencing

will be a routine practice for both the

Department and the Agency. And

communications experts confidently

expect that satellite broadcasts

across international borders directlv

into homes is just a matter of time.

This Commission believes the

United States Government should

actively plan and work toward the

establishment of a worldwide system

of television broadcasting to enable

l'.S, leaders to speak directly to audiences in every region of the world.

We recognize that for technical, legal

and budgetary reasons, it is unlikely

the goal of a worldwide direct broadcast service can be reached soon,

but everv effort should be made to

achieve it within the next decade.

Establishing such a system, with the

full development of satellite technology for international communication,

should be a high priority for USIA

with the active support of other involved government agencies,

We commend Director Wick and

the Agency's television professionals

for their creative and innovative elforts to develop the full potential of

this powerful new system of international communication.

19
Voice

of

America

Findings &

Recommendations

[J The Commission reaffirms its

support of VOA modernization

and believes it is vitally important

that the U.S. remain committed to

a multi-year program designed to

produce a strong, reliable VOA

signal worldwide.

o 111eCommission recommends

that LJSIAtake steps to instill a

greater sense of urgency among all

Agency elements involved in VOA

modcmization and establish a

mechanism to promote communication and cooperation at the senior level Agency-wide.

o The Commission commends

VOA and those Public Affairs Officers who have initiated training

programs for Third World national

broadcasting organizations. The

Commission recommends this effort be expanded.

o 111eCommission recommends

that a reorganization plan transferring the Radio Marti Program to

the Board for International Broadcasting be proposed to the Congress and that the Congress act favorably on such a plan.

VOA's news room operating 24 hours a day, seven days a week produces copy

for more than 300 daily newscasts and summaries. News from all major news

agencies is supplemented by reports from 38 VOA correspondents in the u.s.

and overseas.

20

T

he United States communicates directly with the people

of the world by radio

through the Voice of America. Broadcasting in 42 languages,

VOA provides news, thought-provoking programs and statements of U.S.

policies to an estimated weekly audience of 110 million listeners, many

of whom are unreachable in any

other way.

VOA's mission and importance to

public diplomacy has been summed

up well by President Reagan:

"By giving an objective account of

CUJTentworld events, by communicating a clear picture of America and our

policies at home and abroad, the

Voice serves the interests not only of

the United States but of the world

. . . We are justifiably proud that,

unlike Soviet broadcasts, the Voice of

America is not onlv committed to telling its country's story, but also remains faithful to those standards of

journalism that will not compromise

the truth. "1

Last year the Commission noted

with approbation that a historical

pattern of neglect of VOA had been

arrested and reversed. With the support of President Reagan and the

Congress, VOA has undertaken new

program initiatives and has begun

the long overdue modernization of

its facilities and transmitting equipment. The Commission welcomes

the emerging national consensus that

has led to increased Congressional

support for VOA modernization. It is

vitally important that the U.S. remain committed to a multi-year program designed to produce a strong,

reliable VOA signal worldwide.

Program Enhancement

Increases in VOA's operating budget

in 1984 led to program expansion

and qualitative improvements.

VOA increased its language service broadcasting in Azerbaijani

(Soviet Union), Amharic (Ethiopia),

Dari and Pashto (Afghanistan), and

Hausa (Nigeria), An hour-long program in Ukrainian to the Soviet Far

!Remarks of President Ronald Reagan at a ceremony

marking the 40th anniversary of tile Voice of .

America.
East was also initiated. By the end

of 1984, VOA was broadcasting

more than 989 hours weekly, an increase of 23 hours per week during

the year.

News operations were expanded

with the addition of news bureaus in

Islamabad, Geneva, Central America, Boston and Houston. The VOA

Bureau in Rome was reopened.

Enhanced resources have also increased program quality. Additional

staff, creativity incentives, new professional development programs, the

first comprehensive "VOA Handbook" establishing uniform standards for program development and

production, and a permanent computerized system for news and programming are all positive steps.

Daily editorials=clearly identified

and distinguished from VOA's news

reporting-continue to present unequivocal statements of U.S. Government policy. The Commission examined VOA's editorials closely during

the year, and it continues to find

them an effective means of implementing VOA's Charter. TIle Commission welcomes recent efforts to

tailor them to different regions of the

world.

Efforts to increase audience partieipation also reflect a new vitality in

VOA's programming. Voice, a bimonthly listener magazine, has a

worldwide circulation of 97,000

after its first full year of publication.

Language editions are planned.

"Talk to America," a worldwide

call-in show featuring prominent

Americans, is a new and promising

program format. Automated equipment in a new Office of Audience

Relations has increased VOA's capacity to analyze and respond to listener mail. Exhibits prepared by

VOA's graphics design staff accompany traveling VOA program personalities and help to make VOA a

more tangible presence with listening

audiences.

In a modest way, VOA has undertaken in the past year to work with

Public Affairs Officers in several

Third World countries to provide

training for other national broadcasting organizations.

It conducts training seminars in

Washington for foreign broadcasters,

At a White House ceremony, U.S. and Moroccan officials sign an agreement

for a new Voice of America shortwave relay station in Tangier. Shown (from

left to right) are Moroccan Prime Minister Mohamed Karim-Lamrani, Minister

of Information Abdellatif Filali, President Reagan and USIA Director Charles

Z. Wick.

Why VOA Needs to Modernize

o More than 80% of VOA's 108 transmitters are 15 years old or

older. More than 35% are 30 years old or older.

o VOA has six 500 KW superpower transmitters (actually

combinations of aging 250 KWs) compared to 37 500 KWs used

by the Soviet Union. France has eleven, West Germany nine and

Great Britain eight.

o VOA broadcasts 989-% hours per week. Radio Moscow

broadcasts more than 2,175 hours weekly.

o VOA broadcasts in 42 languages; Radio Moscow broadcasts in 81.

o In international broadcasting hours, VOA ranks fifth in hours to

Africa; fifth in hours to Latin America and the Caribbean; sixth in

hours to Eastern Europe and sixth in hours to East Asia.

o VOA manufactures its own replacement parts for some of its

antiquated equipment, because many spare parts are no longer

manufactured.

21
and it recently has begun to send radio professionals abroad to provide

advice on programming, engineering

and broadcasting techniques. The

Commission, which has observed

this program abroad, endorses this

initiative and strongly recommends it

be expanded.

These improvements have received

less public attention than the much

needed modernization of VONs

technical capability. Xevcrthclcss,

the revitalization of the Voice of

America's programming is a noteworthv achievement. The Commission ;ommends those broadcasting

professionals who are responsible.

Modernization

The Commission is pleased that a

sustained national commitment now

exists to make VOA technically competitive with the world's international

broadcasters. The case for VOA

modernization has been made in

past recommendations of this Commission, by the General Accounting

Office, and in policy directives of

the National Security Council. As

President Reagan has observed:

"Were it not for many years of neglect, the Voice of America could be

heard more clearly by many more

people around the globe. And that's

why our Administration has made the

same kind of commitment to modernizing the Voice of America that President Eisenhower and President Kennedy brought to the space program. "2

Congress has responded with

strong bipartisan support and resources, for which the Commission

expresses its appreciation. In Fiscal

Years 1984 and 1985, Congress appropriated $116 million for the acquisition and construction of radio

facilities.

To carlY out this mandate, USIA

has developed a multi-year modernization program now estimated to

cost S1.8 billion. Included are plans

for major construction projects at

new and existing relay stations and

plans to expand and rehabilitate

VOA's broadcasting facilities to meet

higher technical performance stan-

'Remarks by President Ronald Reagan at the signing

ccrcmonv for a Voice of America agreement with

Morocc(;. March I. 1984. '

22

Radio Moscow & VOA

LangUages Weekly Program Hours

Radio Moscow 63 1649

WORLDWIDE Voice of America 42 967

Radio Moscow 11 2~S

EASTERN EUROPE

Voice of America 10 186

Radio Moscow 13 413

WESTERN EUROPE VOice of America 4 81

Radio Moscow 13 294

AFRICA

VOice of America 142

RadiO Moscow 20 417

Voice of America

N AFRICA M. EAST S. ASIA

245

Radio Moscow 11 419

Voice of America

EAST ASIA

196

Radio Moscow

LATIN AMERICA CARIBBEAN

Voice of America 86

The Major Broadcasters: Weekly

Program Hours to Western Europe

U.sS.R

(22 languages I

WEST GERMANY

i121anguagesl

EGYPT

(6languagesl

U.K. (BBC)

171anguagesl

AUSTRIA

14 languages I

ALBANIA

(10 languages)

ISRAEL

(8 languages)

CUBA

(S languages)

CHINA

(10 languages)

EAST GERMANY

(7 languages)

SOUTH KOREA

(7languagesl

U.S. (VOA)

(4 languages)

350

Includes broadcasts '.-'/hlch are simultaneous to Western

Europe and other world areas

The Major Broadcasters: Weekly

Program Hours to North Africa, the

Middle East & South Asia

U.S.S.R.

(30 languages)

EGYPT

19 languages)

U.K. (BBC)

(9 languages)

INDIA

11Slanguages)

U.S. (VOA)

(8 languages)

WEST GERMANY

(11 languages)

ISRAEL

(4 languages)

CHINA

(11 languages)

EAST GERMANY

(5 languages)

NORTH KOREA

(4 languages)

CUBA

IS languages)

~.,'-. ~ .' Ld'. ".a..L 658

537

Includes broadcasts whICh are simultaneous to North Af·

rica. The Middle East. South Asia and other world areas
The Major Broadcasters: Weekly

Program Hours to Eastern Europe

u.s. (VOA. RFE)

(10 languages)

WEST GERMANY

(10 languages)

U.K. (BBC)

(10 languages)

US5.R.

(11 languages)

AUSTRIA

(1 language)

ALBANIA

(8 languages)

ISRAEL

(7 languages)

CHINA

(11 languages)

398

325

252

221

196

163

88

Includes broadcasts which are simultaneous to Eastern

Europe and other world areas

The Major Broadcasters: Weekly

Program Hours to Africa

EGYPT

(16 languages)

U.S5.R.

(13 languages)

U.K. (BBC)

(6 languages)

NIGERIA

(4 languages)

U.S. (VOA)

(6 languages)

WEST GERMANY

(7 languages)

NORTH KOREA

(4 languages)

CUBA

(5 languages)

CHINA

(7 languages)

Includes broadcasts which are simultaneous to Africa and

other world areas

The Major Broadcasters: Weekly

Program Hours to Latin America &

The Caribbean

VOICE OF THE ANDES

(7 languages)

CUBA

(7 languages)

U.K. (BBC)

(3 languages)

U.S.S.R.

(8 languages)

U.S. (VOA)

(3 languages)

WEST GERMANY

(3 languages)

CHINA

(5 languages)

EAST GERMANY

(4 languages)

Includes broadcasts which are simultaneous to Latin

America. the Caribbean and other world areas

305

The ,\lajor Broadcasters: Weekly

Program Hours to the Baltics & the

CSSR

U.S. (VOA. RL) I"'I'I!I!II

116languages) ~

ISRAEL I

(8Ianguages) : 196

U.K. (BBC) j 182

(2 languages) I

CHINA i

I

114 (4 languages)

(1I:~~~~~~I 46

1008

Includes broadcasts which ale smuntaneous to the Balncs.

the USSR and other world areas

The Major Broadcasters: Weekly

Program Hours to East Asia

Includes broadcasts which are Simultaneous to East ASia

and other world areas

TAIWAN

(14 languages)

(18 languages) CHINA ~'11.

U5.S.R.

(14 languages)

NORTH KOREA

(6 languages)

AUSTRALIA

(9 languages)

SOUTH KOREA

(7 languages)

FAR EAST BROADCAST CO.

(20 languages)

U.K. (BBC)

(9 languages)

U.S. (VOA)

(9 languages)

'NEST GERMANY

(5 languages)

The Major Broadcasters: Weekly Program Hours - Worldwide

U.S.S.R

(81 languages)

UNITED STATES

(48 languages)

CHINA

(43 languages)

TAIWAN

(17 languages)

EGYPT

(30 languages)

WEST GERMANY

(37 languages)

UNITED KINGDOM (BBC)

(36 languages)

798

789

716

1395

1154

2175

1988

23
dards, In addition, VOA plans new

language services and increases in

program hours. The Commission

urges continuing National Security

Council review of these plans to ensure that decisions are based on the

facilities needed and not on artificial

budget constraints.

The Commission is encouraged by

these developments, and we recognize that overcoming decades of neglect is not an easy task. But the

balance sheet on implementation so

far is mixed.

Some progress has indeed been

made. 111eCommission is pleased

that USIA successfully negotiated

agreements to construct new shortwave facilities in Sri Lanka, Morocco

and Thailand. The Sri Lanka agreement provides for up to six 500 KW

and one 250 KW shortwave transmittel's. The Morocco agreement

contemplates up to ten 500 KW

transmitters. Six 500 KW and one

250 KW transmitters are planned for

111ailand.

Agreements have also been concluded for medium wave transmitters

in Costa Rica and Belize, the first of

a series of such stations planned for

Central America and the Caribbean.

VOA's Costa Rica transmitter went

on the air in .Ianuary 1985, only five

months after the conclusion of negotiations. Belize transmission is

scheduled to begin in July 1985.

USIA is currently engaged in negotiations and prenegotiation discussions with other governments for

medium and shortwave relay sites.

The Commission recognizes that site

negotiations can be complex and

time-consuming. Many countries, including a number of our allies, are

unwilling to accept VOA facilities.

The stakes are high, and progress

depends on many factors beyond the

control of USIA's negotiators.

Four new studios were brought on

line at the VOA headquarters building in 1984. Further renovation of

studios and replacement of vacuumtube equipment in VOA's Master

Control center is scheduled for

1985. Long-range space problems

continue to impede the modernization process, however, and the Commission strongly supports the timely

implementation of agreements to

provide additional space to VOA in

its headquarters building.

VOA has also begun the task of

identifying overall performance requirements for an integrated worldwide broadcasting system. 111is

analysis is necessary before construction can begin. There is merit in

the view that inadequate planning

and piecemeal approaches in the

past have not met VOA's needs, and

the Commission endorses the commitment to a comprehensive, systematic approach that now characterizes

the modernization program.

At the same time, the Commission

is concerned that USIA is not moving quickly enough into the construetion and implementation phase of

the modernization process.

Funds are not being expended as

rapidly as Agency estimates had predicted. In FY 1984, USIA spent

S7.8 million, or eight percent of the

current and carryover funds in its radio construction account. Congress

has appropriated an additional S85

million for modernization in FY

1985, thereby increasing available

funds to S174 million.

111eCommission is concerned too

about other problems. Within USIA,

delays in awarding contracts, poor

internal Agency communication, turf

battles, and a sense of business as

usual have played too large a part in

the modernization process to date.

These problems are within the

Agency's control.

Senior USIA officials are aware of

these problems, and the Commission

is pleased that in recent months

progress has been made in dealing

with them. The Agency's decision to

create the position of VOA Deputy

Director for Modemization is a positive development. At the same time,

modernization is not just an internal

VOA matter. It involves Agency-wide

legal, contractual and resource management undertakings, the cooperation of other government agencies,

and the informed oversight of Congress.

The Commission recommends that

USIA take steps to instill a greater

sense of urgency among all elements

involved in VOA modernization and

establish a mechanism to promote

communication and cooperation at

the senior level Agency-wide.

The Soviet Union spends more to

r--------- _

Soviet Jamming Vs, U.S. Broadcasting

To the Soviet Union and Eastern Europe

PERSONNEL

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200

COST TO

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150 RFE/RL

.....J «

.....J

0

Cl

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0 100

U)

z

0

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2 50

VOA

0

• USSR FY 1984

D USA

r----_ 9,000

.....J

l.U

Z

6,000 z

0

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cr::

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PERSONNEL u;

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BROADCAST cr::

l.U

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FY 1984

24
jam U.S. broadcasts than the combined budget for VOA, Radio Free

Europe and Radio Liberty. And

VOA's signal is weak and inconsistent in many parts of the world, notably the Middle East, Soviet Central

Asia, and northwest, central and

southern Africa.

A national consensus exists to increase VOA's transmitter power and

signal strength. We do not wish to

see public dollars spent unwisely.

And we are mindful of the need for

prudence and the wise commitment

of resources in meeting this need. It

is time, however, to get on with the

job before audiences are lost to more

aggressive competitors.

Radio Marti Program

Congress passed the Radio Broadcasting to Cuba Act establishing the

Voice of America's Radio Marti Program in October 1983. Preparations

for this new VOA service have been

underway for the past year.

The Radio Marti Program is an

ambitious undertaking, and delays in

putting it on the air have occurred

for a number of reasons. It has been

difficult to recruit and obtain security

clearances for employees to fill the

188 authorized positions, most of

which require Spanish language

skills, area expertise and broadcasting talent. Construction of Washington studios, installation of a link

with the transmitter site at Marathon, Florida, and locating office

space in Miami, New York and

Washington have also taken time.

Ambiguities in the law have created confusion over the Radio Marti

Program's intended mission and

programming policies. Many

Congressional sponsors view it as a

"surrogate radio station" or "home

service" for the Cuban people. The

legislation itself contains a Congressional finding that "there is a need

for broadcasts to Cuba which provides [sic] news, commentary and

other information about events in

Cuba and elsewhere to promote the

cause of freedom in Cuba.":'

At the same time, four members of

the U.S. Senate have informed

USIA's Director of their view that

"the Cuba Service is part of the official radio of the United States-the

VOA-and can in no way be construed as anyone's home service or

surrogate station.":' TIle law provides

that the broadcasts "shall be part of

the Voice of America radio broadcasting to Cuba and shall be in accordance with all Voice of America

standards to ensure the broadcast of

programs which are objective, accurate, balanced, and which present a

variety of views.":'

Congressional intent is indeed ambiguous, and members of Congress

clearly have incompatible points of

view as to the purposes of the Radio

Marti Program. This understandably

has made it difficult for USIA to implement the legislation.

TIle Commission repeats its previous finding that the decision to

place the Radio Marti Program

within the Voice of America is not

sound public policy and sets a precedent of uncertain consequence. We

do not argue against Radio Marti as

a separately funded organization administered by the Board for International Broadcasting. We do, however, continue to oppose placing

surrogate broadcasting activities

within VOA.

In signing the Radio Broadcasting

to Cuba Act, President Reagan

stated: "I would have preferred to

place Radio Marti under the Board

for Intemational Broadcasting instead of the Voice of America, because the distinct nature of its mission is akin to that of Radio Free

Europe and Radio Liberty."" The

Commission agrees. We recommend

that a reorganization plan transferling the Radio Marti Program to the

Board for International Broadcasting

be proposed to the Congress and

that the Congress act favorably on

such a plan.

'Public Law 98-1 I I.

"Letter to l'SIi\ Director Charles Z. Wick from

Senators Lowell Weicker. Roger IV. Jepsen. Charles

E. Grasslev and Edward Zorinsky, February 9.

1984.

'Public Law 98-1 I 1.

"Statement Ill' President Ronald Reauan. October II.

1983. -

25
The Wireless

File

26

Findings &

Recommendations

iJ '11K Commission welcomes

USIA's decision to make computerized transmission of the Wireless

File a high priority and commends

the use of program evaluation

techniques by Wireless File managers. Automation of the File combines one of the Agency's most effective information services with

the technology of the] 980s.

S

ince1935, the United States

has without interruption transmitted policy statements and

interpretive material to Amelican embassies throughout the world

via a radioteleiype n~twork known as

the Wireless File. Information on the

File is used for media placement,

distribution to foreign opinion leaders and as background for U.S. mission personnel.

TIle File is prepared by USIA's

Washington staff and is transmitted

in Iive regional editions five days a

week. English transmissions average

20,000 words per day. There are

also Spanish, French and Arabic versions.

111eWireless File has proven its

value to public diplomacy. Ambassadors, Public Affairs Officers and foreign journalists have repeatedly told

members of this Commission that

the File is one of the most valuable

information services provided by the

Agency.

TIle Commission has closely reviewed a recent in-depth study of the

File in Europe prepared by former

UPI correspondent Frank Tremaine.

TIle Tremaine report notes areas of

needed improvement, but concludes

that the File is "doing a good job

with the West European print media

with the tools now available." Without exception, the foreign editors

and writers interviewed found the

File to be "the most valuable thing

they receive from USIA." I

TIle Tremaine report recommended that the File could be improved through (1) implementation

of a modem news editing and reproduction system to provide more

timelv delivery, (2) tailoring the File

more- closely to the needs of the print

media, and (3) providing the funds

and time necessary to permit l'Sli\'s

field officers to improve and expand

their personal contacts. TIle Commission is pleased that USIA has

moved to implement these and other

related recommendations.

The Commission especially welcomes USIA's decision to make

computerized transmission of the

File a high priority, TIle results are

impressive. By the end of 1984 the

Agency had installed automated

equipment and minicomputers in 57

posts. Computerized transmission

enables delivery of the File in about

15 minutes, compared with three to

four hours for radiotelctype, with virtually none of the garbles typical of

the latter. Electronic editing, storage

capability, retransmission to branch

posts and post-initiated retrieval at

times of its choosing have transformed the Wireless File. Access to

the White House News Summary,

quicker submission of foreign media

reaction reports and word processing

in a number of languages, including

Arabic, are additional advantages of

computer technology.

Comments from two USIA posts

are typical. Stockholm recently reported that computer-to-computer

transmission "revolutionized our

handling of the Wireless Fileenabling rapid editing, reformatting,

and printing." Beijing found it can

"almost triple its information

output in a timely manner."

Elsewhere in this report and in

many reports over the years, the

Commission has strongly urged

USIA to undertake routine systematic program evaluation. TIle Agency's overall record in this area still is

not good. The managers of the Wireless File, however, are exceptions to

this pattern, Showing a positive approach to program evaluation,

USIA's Wireless File and data processing professionals have combined

one of the most effective tools of

public diplomacy with the communications technology of the 1980s.

'Frank Tremaine, "The C.S. Information Agency

and the Western European Print Xlcdia," January

2, 1984.
Foreign

Press

Centers

U

SIAoperates Foreign Press

Centers (FPCs) in Washington, New York and Los

Angeles. These Centers

provide foreign joumalists-both resident correspondents and those visiting on working assignments=wirh

comfortable facilities and a variety of

services to help them report on the

American scene. (There are approximately 540 resident foreign journalists in Washington, 600 in New

York and 200 in Los Angeles.) Each

Center, has a briefing area and a

lounge stocked with American periodicals and reference materials.

There are typewriters, telephones

and telex machines, as well as video

and audio equipment.

Press Center personnel responded

in 1984 to substantially more than

one thousand requests-many

passed on by USIA's posts overseas-from foreign journalists for assistance with specific assignments.

Such assistance ranges from help

with information sources and setting

up appointments to aITanging complex programs for individuals.

groups of journalists and camera

teams. The number of requests for

assistance has tripled in the last

three years, due in part to coverage

of the elections and the Olympics.

Briefings are an important pari of

the information program ofIered foreign correspondents, Administration

leaders have become increasingly

aware of the importance of what the

foreign media report about their policies and programs. There has been.

accordingly, a growing willingness

USIA publishes 10 magazines and other publications in 18 languages, most at Regional Service Centers in Manila and this one in Mexico City.

27
on their part to come to the Centers

and talk to members of the foreign

press. On an average of three times

a week, top U.S. officials and other

noteworthy Americans meet with the

foreign press at the Washington

Press Center or in certain cases with

FPC-assisted groups at other sites.

Similar but less frequent briefings

are held at the New York and Los

Angeles Centers. USIA's posts are

notified of these briefings in advance

and asked to supply media reaction.

Transcripts of the briefings are prepared for correspondents and sent to

the posts by Wireless File.

With the cooperation of USIA's

Television Service, experienced TV

Journalists at work at a USIA Foreign Press Center.

Foreign Press Center Briefings

Among the U.S. officials who participated in briefings at USIA's

Foreign Press Centers during the past year are:

Arms Control and Disarmament Agency Director Kenneth L. Adelman

Chief of Staff and Assistant to the President James A. Baker III

Secretary of Commerce Malcolm Baldrige

Washington, D.C. Mayor Marion S. Barry, J1'.

Secretary of Agriculture John R. Block

U.S. Trade Representative William E. Brock

Deputy Secretary of State Kenneth W. Dam

Under Secretary of State for Political Affairs Lawrence S. Eagleburger

Chairman of the Council of Economic Advisors Martin Feldstein

U.S. Ambassador to the United Nations Jeane Kirkpatrick

Secretary of the Treasury Donald Regan

Special Representative for Negotiations ACDA General Edward L.

Rowny

Attorney General William French Smith

Under Secretary of the Treasury for Monetary Affairs BerylSprinkel

Secretary of Defense Caspar Weinberger

28

producers, with minicam crews on

call, are assigned to the three Press

Centers to assist foreign journalists.

New facilities at the Washington

Center enable video cassette recordings to be made of on-the-record

briefings and one-on-one TV interviews with senior officials for use by

the correspondents' home stations or

networks. TV journalists can also obtain stock footage and reels of short

news clips on important subjects for

use on their news programs. White

House and State Department press

briefings are piped into the Centers

evelY day and, on Tuesdays and

Thursdays, the Pentagon briefings.

These are open to all foreign conespondents and are taped for later use

by those who may not have been

able to attend.

Tours for small groups of resident

foreign correspondents are arranged

by the Centers on a wide range of

topics throughout the United States.

The Centers also assist with intensive working tours by visiting journalists, sponsored by USIA posts, focusing on issues of priority concern.

In 1984, the Centers organized tours

on NATO, science and technology,

and security issues in Central America, among other subjects. The bulk

of the tours this past year, however,

dealt with the Presidential elections.

Because of the ban on the domestic dissemination of Agency program

materials, 1access to the Foreign

Press Centers can be granted only to

those journalists who provide news

and information exclusively for foreign distribution.

In the judgment of experienced

USIA officers familiar with the foreign media, the programs offered by

the Foreign Press Centers have substantially improved the working relations between U.S. officials and resident foreign journalists. The Centers

have also facilitated more accurate

and informed reporting on specific

Administration policies and programs and on the American scene in

general. The Commission regards

this as an important and laudatory

operation and commends all those

responsible for it.

'22 r.s.c. 1461.
Major Events

in 1984 U

SIAemploys a broad range

of media and communication tecImiques to carry the

message of America to the

world: radio and television broadcasting, the press, books, libraries,

publications, speakers, exhibits, international visitors, cultural presentations and academic programs. Three

major events in 1984 demonstrate

the Agency's ability to combine and

focus its diverse communication resources on single, complex issues.

past year, virtually all Agency elements and overseas posts were involved in this task.

USIA's posts abroad organized

election watches to follow the returns, which were broadcast by VOA

and carried on the Wireless File. The

Television Service arranged for satellite feeds of election returns from the

U.S. commercial networks to 37

countries.

Tens of millions of people viewed

the programs. Five post-election

analyses by American commentators

were telecast by satellite to 16 posts

on four continents where the experts

were questioned by foreign journalists. The Agency also transmitted the

Presidential and Vice Presidential

debates live by satellite to 25 countries.

Around the world, ordinaIY people

as well as opinion leaders gathered

at USIA's installations to follow the

election results. Beijing reported that

1,500 Chinese showed up at the

Great Wall Hotel to watch the retums-an "exn'aordinaIY Opportunity to reach Chinese audiences with

the powerful message of democracy

in action." Thousands of earlY-lisers

and night-owls in posts throughout

Europe gathered to watch television

coverage of the elections and discuss

the returns with political analysts.

Belgrade reported the election programs "allowed us to contact people

we could never bring together in any

other way. "

In Tanzania, the crowd outside

the USIA library in Dar es Salaam

started forming at about 6 a.m.

Among those watching the returns at

the library was Krishna Babla, an

accountant, who told an American

reporter, "Whether we like it or not,

you're electing the President not only

of the United States but of the

world. . .. People know that what

happens in the United States can decide our future." I

USIA's Foreign Press Centers in

Washington, New York and Los Angeles were crowded election day and

night with resident and visiting journalists. For several weeks prior to

the election, the Centers had busy

schedules of briefings on the elecThe 'Presidential Elections

The quadrennial elections are the

show-piece of American democracy.

The intense interest with which they

are followed by people from evelYregion of the world provides USIA

with an unmatched opportunity to

present a powerful demonstration of

our democracy at work. DUling the

VOA provides extensive coverage of the Democratic and Republican Presidential nominating conventions for its overseas audiences.

IThe Washington Post, :\ovembcr 8, 1984.

29
tions and the American electoral

process. On election day, groups of

joumalists were taken by bus to polling places in and around the three

cities and to ballot counting centers.

At the Press Centers on election

night the joumalists could watch the

coverage of the major television networks.

The Wireless File carried continuous reports and statistical updates

on the Presidential, gubematorial

and Congressional races as they unfolded. The File also carried com-,

missioned articles by well-known

joumalists, academic figures and

other experts on election issues, substantive policy statements by the

candidates, especially those on foreign policy, and full transcripts of

the three debates.

Extensive daily coverage of the

campaign was carried by the Voice

of America, supported by features

and backgrounders offering perspectives on the electoral process and

campaign events. VOA also broadcast worldwide coverage of the three

debates. The Voice began its worldwide English coverage of the election

results at 7 p.m. and stayed on the

air until midnight. Political experts

representing both parties were on

hand to answer questions and analyze voting trends.

For several months before the

elections, USIA's speakers staff organized more than 60 programs on the

elections. Various audio and video

techniques permitted prominent political analysts unable to travel overseas to discuss election issues with

foreign audiences invited to USIA's

centers.

An election exhibit was produced

by the Agency and placed in 215 locations around the world, and the

Exhibits Service offered an assortment of political stickers, posters,

buttons and leaflets to posts to decorate their election night parties.

Finally, more than 500 foreign

joumalists, public officials and

scholars observed the election firsthand under USIA's Intemational

Visitors program.

Central America

USIA has played a significant public

30

diplomacy role in Central America

through its Central America Working

Group. Because of the Group's interagency membership, USIA has also

contributed to better coordination of

overall U.S. efforts in this critical

and controversial area.

A wide range of effective products

and programs have emerged from

the Working Group's efforts: several

highly praised television documentaries, a series of WORLDNET interviews, dozens of Wireless File stories, VOA editorials, an Agency

pamphlet on democracy in the re~

gion and two editions of an information kit on "U.S. Policy in Central

America" for the use of U.S. missions overseas.

USIA cooperates with other government agencies in the production

of material explaining the U.S. role

and position in Central America.

Most notably, the Agency has close

relations with the State Department's

Coordinator of Public Diplomacy for

Latin America Otto J. Reich and his

staff This has resulted in the production, translation and distribution

of information from the Departments

of State and Defense that supports

U.S. policy.

At the Working Group's recommendation, USIA sponsored two visits to Central America for joumalists

from Europe and South America who

regularly write about the subject. A

group of Washington-based foreign

newspaper correspondents and a

group of television joumalists and

camera crews traveled throughout

the region to observe and Iearn for

themselves about conditions in the

area.

The Working Group also co-sponsored a visit to the region by eight

USIA Public Affairs Officers (PAOs)

from the European area. The PAOs

praised the experience for deepening

their understanding of the subject

and reported they would be able to

speak with greater authority in explaining some of the complex issues

to often skeptical audiences.

The Commission commends these

efforts to provide the information

and insight essential to an accurate

understanding of events in this troubled region.

The Olympic Games

USIA began planning for the Summer Games in 1983. A task force

was formed to coordinate all Olvmpic-related Agency activities inv~lving all media services; to stimulate

Olympic programs by USIA's posts;

and to act as liaison with the State

Department, the U.S. Olympic Committee, the Los Angeles Olympic Organizing Committee and the national

sports goveming bodies.

One of the most serious challenges

prior to the Games was the possibility that Third World nations, particularly in Africa, would follow the Soviet-led boycott. Communist-inspired

stories had raised questions about

the security and treatment of nonAmerican black athletes in Los Angeles. USIA successfully addressed

this head-on in a variety of ways,

most notably through WORLDNET

satellite television programs to Africa

featuring Los Angeles Olympic Organizing Committee President Peter

Ueberroth and Los Angeles Mayor

Tom Bradley. WORLD:\fET programs to both Latin America and

East Asia also featured M1'. Ueberroth discussing preparations for the

Games.

VOA sent correspondents from 20

language services to the Games.

Since many VOA reporters are fluent

in more than one language, the

Voice was able to provide coverage

in most of the 42 languages in whicl

it broadcasts.

USIA also operated two full-time

foreign press centers during the

Games. One, at the main Olympic

press center, served accredited journalists. The Agency's permanent Los

Angeles Press Center assisted Ioreigr

joumalists who had not received accreditation. Extra telex machines

and telephone lines were installed.

The Center used its permanent sate!

lite dish to receive ABC's world television coverage without commercial

breaks or commentary,

The extensive and largely positive

view foreign audiences received of

the Olympic Games and the culturai

events that took place at the same

time in Los Angeles testifies to the

effectiveness of USIA's coordinated

effort.
National

Endowment

for Democracy

USIA officers help Beijing University students analyze U.S. election returns

broadcast live by satellite. More than 1,000 guests watched the results at

USIA's Election Center at the Great Wall Hotel. Photo by Neal Uleoitch, AP

A

little over a year ago, this

Commission's advisorv responsibilities were extended

to the National Endowment

for Democracy. The Endowment is a

privately incorporated non-profit organization created to strengthen

democratic institutions throughout

the world. It is funded by Congress

through annual grants from funds

appropriated to USIA.

In giving the Commission advisory

responsibilities for the Endowment

and its relations with CSIA,

Congressional foreign affairs leaders

suggested the Commission's oversight role would help to maintain the

broad bipartisan support and national consensus that will be essentia~to its success. 1

The Commission has met twice

with the President of the Endowment

and members of its board of directors during the past year. We are

pleased it has established itself as a

viable organization. It has hired a

staff, developed a sound statement of

principles and operating policies,

and begun to do some useful work

through grants to its affiliated labor,

business and political patty institutes.

While it is too soon for a considered assessment of the Endowment's

programs, a good start has been

made. TIle Commission believes that

private, voluntary initiatives can contribute to the achievement of public

policy objectives. TIle Endowment

holds promise for doing what government action alone cannot-bringing the energies of private groups in

the U.S. together with those abroad

who wish to build democratic institutions and values, while avoidine

interference in political party acti~rities and elections.

The Commission shares the concerns of many within the Congress

and throughout the country that, as

a privately incorporated body dispensing appropriated funds, the Endowment must be subject to adequate public oversight. If confidence

in this Arnericar; experiment is to be

developed and maintained, there is

need for continuing assessment of

both the Endowment's programs and

its accountability-including review

of appointments to its board of

directors.

IColloquy between Rep. Dante B. Fasccll and Rep.

Benjamin A. Gilman, Congressional Record,

Xovcmbcr 17, 1983. Pl" II 10331-2.

31
EDUCATIONALANDCUL~PROGRAMS

Exchanges

and International

Visitors

T

his Commission has repeatedly expressed the conviction that exchange of persons programs are among

the most effective and important

tools of public diplomacy. There is,

after all, no substitute for firsthand

observation and experience.

President Eisenhower expressed

his belief that exchange programs

are among the most effective ways of

ensuring the long-term security of

our country, These programs provide, he said, "the opportunity to

create friendships, and friendships

have defended more borders than .

arms and cannon ever have." I The

results may be difficult to measure.

The seeds thus planted mature over

lifetimes, and the impact made on

people's minds is usually invisible.

But there can be little doubt that the

friendships and attitudes formed by

these exchanges will be serving the

national interest long after the newest generation of military hardware

has become obsolete.

1The LVn,. York: Times. October 3. 1984.

Fonner Senate Majority Leader Howard Baker greets participants in USIA's

International Visitors program.

32

It is heartening to report that these

programs whose resources had seriously declined have been materially

strengthened during the past three

years. The most important reason

has been the Pell Amendment to

USIA's FY 1983 authorization legislation, which required the Agency to

double the funding for exchange of

persons programs between 1982 and

1986. A total of S 130 million has

been provided in FY 1985 for exchange programs, £30 million more

than last year and 90 percent greater

than the FY 1981 level. 111is includes funds for the enhanced exchange programs in Central America.

111e increase in the number of educational exchanges and intemational visitors is also a matter of

considerable satisfaction to the Commission.

Academic Programs

In the budget presented to the Congress last spring, the number of

Americans studying abroad on Fulbright scholarships in FY 1984 was

1,617, while 2,744 foreigners were

studying in the U.S. on Fulbright

grants. In the current fiscal year the

number of American Fulbright grantees is estimated to be 1,997, and

the number of foreign Fulbright

grantees has risen to 2,918.

In addition to the traditional Fulblight program, USIA administers a

number of other academic programs.

The Hubert H. Humphrey NorthSouth Fellowship program awarded

133 grants in FY 1984 to mid-career professionals in public service

from developing countries for one

year of non-degree study and practical courses. This past year the

Agency also took back direct administrative responsibility for the

Teacher Exchange and Intemational

Educational Development programs

from the Department of Education

which had administered them on

USIA's behalf for many years.

The University Affiliation program

which began in 1983 has proven to

be effective. It seeks to bring closer

ties between American and foreign

colleges and universities through exchanges of faculty for as short a period as three weeks and as long as a

year. Grants of $50,000 or less were
International Visitor Mbuy-Mbiye, President of the Zarian YoungLawyers Association, compares legalproblems with lawyers in Washington, D.C.

awarded to 29 university partnerships to be spent over the next two

to three years. These faculty exchanges focus on the social sciences,

humanities, communications and education, and build long-term relationships between American and foreign universities.

The Commission has a statutory

obligation to assess the degree to

which "the scholarly integrity and

non-political character" of the educational and cultural exchange programs of USIA have been mainrained." In light of the public

scrutiny and criticism of certain

Agency activities and programs early

last year, we examined this subject

with care. Both individually and collectively, members of the Commission have talked with Fulbright

scholars, members of Fulbright commissions abroad, USIA Cultural Affairs Officers, and members and stair

of the Board of Foreign Scholarships,

who are responsible for monitoring

the administration of the academic

exchange programs. From our inquiries, we are satisfied that the

scholarly integrity and non-political

'Section 8. Reorganization Plan Xo, 2 of 1977.

character of the peer review process

by which the exchange grants are

awarded is being respected and

maintained.

International Visitors

The International Visitors (IV) program, which brings young foreign

leaders to the U.S. for visits for a

few weeks, continues to be one of

the most successful and popular

public diplomacy programs. More

than 40 current or recent heads of

government or chief's of state worldwide are IV alumni. They join more

than 3,000 exchange program

alumni who hold prestigious positions in government, academia, media and other fields in their countries, Nearly 500 hold cabinet-level

posts.

Like academic exchanges, the IV

program went through a period of

shrinking resources. At the su'ong

urging of American ambassadors,

USIA's posts overseas and the Commission, this situation was reversed

and during the past three years

funds have increased. In FY 1983,

more than 1,900 young leaders received grants to visit the U.S.; in FY

1985 the Agency expects to award

about 2,800 grants. In addition,

USIA will arrange programs for and

otherwise assist about 1,500 socalled voluntary visitors who pay

their own way.

These foreign guests are specialists

in many fields, including government, media, arts, education, science and labor relations. While in

the U.S., they have the opportunity

to exchange ideas with their American colleagues whose methods and

institutions they observe. These

meetings often lead to joint projects

and long-term professional relationships.

TIle Agency cooperates with several organizations to operate its International Visitors program. The Institute of International Education,

the African-American Institute, and

the Visitor Program Service of Meridian House International, all under

contract to USIA, help the Agency

carry out these activities.

Indispensable to the entire IV program is the cooperation of the National Council for International Visitors (NCIV). This is a voluntary

citizens' group with 92 regional offices throughout the U.S. whose

services are invaluable. Its members

generously arrange appointments

and provide home hospitality for

these distinguished guests of the

United States. More than 700,000

American volunteers contribute to

improved international relations

through their involvement in the

NCIV.

The strengthened budget and the

growing number of visitors is most

encouraging. But these numbers

strain every link in the long chain

from the USIA staff's overseas,

through the national program agencies, to the volunteers who deal with

the visitors in Denver, Little Rock

and elsewhere outside Washington.

The burden of more visitors eventually falls hardest on the volunteers of

the NCIV affiliates throughout the

country. The situation is so serious,

both for the understaffed USIA posts

abroad and the NCIV volunteers,

that the Agency now is wisely giving

priority to strengthening the infrastructure of the IV system rather

than to increasing the number of

visitors.

33
AFRICA

Botswana

Distinguished Fonner Participants

in USIA's International Visitors Program

The following current foreign chiefs of state or heads of government came to

the United States earlier in their careers as participants in

USIA's International Visitors Program.

President Quett K. J. Masire,

1975

Central African Republic President General AndreDieudonne Kolingba, 1966

Kenya

Madagascar

Mauritius

Seychelles

Tanzania

President Daniel T. arap Moi,

1969

President Didier Ratsiraka, 1973

Prime Minister Anerood Jugnauth,

1981

Govemor General Dayendranath

Burrenchobay, 1969

President France Albert Rene,

1967

President Julius K. Nyerere, 1960

AMERICAN REPUBLICS

Argentina

Barbados

Colombia

Dominican Republic

Guyana

Montserrat

Peru

St. Vincent

President Raul Alfonsin, 1981

Prime Minister Tom Adams, 1973

President Belisario Betancur, 1952

President Salvador Jorge Blanco,

1979

Prime Minister Ptolemy Reid,

1966

Chief Minister John Osborne,

1981

Prime Minister Louis Percovich,

1968

Prime Minister James Fitzallen

Mitchell, 1973

EAST ASIA AND PACIFIC

Fiji

French Polynesia

Malaysia

Govemor General Ratu Sir Penaia

Ganilau, 1963

Prime Minister Ratu Sir Kamisese

Mara, 1964

President, Territorial Assembly,

Gaston Flosse, 1969

Prime Minister Mahathir bin

Mohamad, 1973

Papua New Guinea

Singapore

Solomon Islands

Tonga

Trust Territorv of the

Pacific Island~

Vanuatu

EUROPE

Austria

Belgium

Canada

Federal Republic of

Germany

Greece

Luxembourg

Norway

Portugal

United Kingdom

Prime Minister Michael Somare,

1981

President Devan Nair, 1969

Govemor General Baddeley

Devesi, 1977

King Taufa'ahau Tupou IV, 1964

Prime Minister Prince Fatafehi

Tu'ipelehake, 1968

President Tosiwo Nakavama,

1961 -

Prime Minister Father Walter Lini,

1976

Chancellor Dr. Fred Sinowatz,

1963

Prime Minister Wilfried Martens,

1971

Govemor General Edward R.

Schreyer, 1978

President Richard von Weizaecker,

1976

President Constantine Karamanlis,

1951

Prime Minister & Minister of

Finance Jacques Santer, 1973

Prime Minister Kare Willoch,

1978

Prime Minister Mario Soares,

1967

Prime Minister Margaret Thatcher,

1963

NORTH AFRICA, NEAR EAST AND

SOUTH ASIA

Lebanon

SIi Lanka

Tunisia

President Amin Gemayel, 1972/79

Prime Minister Ranasinghe

Premadasa, 1966

Prime Minister Mohamed Mzali,

1964

34
The Central

American

Initiative

Central Americans in International Education 1977-1982:

V.S./Soviet Comparison

Findings &

Recommendations

D The Commission fully endorses

the recommendation of the Kissinger Commission that govemmentsponsored scholarships to bring

Central American students to the

U.S. be greatly increased to

counter expanded Soviet bloc

scholarship programs.

T

·he Central American Working Group, a forerunner of

the Central American Initiative, was established more

than a year and a half ago to provide

coordinated support for U.S. public

diplomacy in the countries of that region. It is an interagency group composed of representatives of the Departments of State and Defense,

USIA and the National Security

Council. Chaired by USIA, the

Group meets every two weeks to set

policy guidelines and coordinate the

production of programs and material

for USIA's posts in Central America.

Under the guidance of the Group,

an increasing flow of relevant programs and supporting material has

been delivered to the area. Articles

in the Wireless File, speakers,

Agency magazines and publications,

books, seminars, special VOA programs, television satellite feeds and

VfRs for placement on local TV stations are among the kinds of coordinated support posts have received.

In addition, USIA's Foreign Press

Centers in the U.S. have given special attention to Central America, organizing a number of press briefings

by administration officials and area

experts, and providing information

and assistance to journalists working

on the subject. Several U.S. Government agencies and virtually all the

program elements of USIA contribute

to this effort.

The Central American Working

Group and the activities stemming

from it are part of the larger program

now known as the Central American

Initiative. This grew out of the recommendations by the National Bipartisan Commission on Central

America, headed by former Secretary

of State Henry Kissinger. This Commission fully endorses the recommendation of the Kissinger Commission that government-sponsored

scholarships to bring Central American students to study in the United

States be greatly increased to counter

expanded Soviet bloc scholarship

programs. I

The extent to which the Soviet

Union, the Warsaw Pact countries

and Cuba have increased their scholarship aid for students from Central

America and the Caribbean was

strikingly shown in a study by the

'''Report of the National Bipartisan Commission on

Central America," January 1984, pp. 72-73.

o In U.S. Higher Education

D In U.S. Govt, Sponsored Exchange Programs/All Kinds

• University-Level Students in USSR/Eastern Europe

• In Soviet-Bloc Train/Educ. Exchanges of All Kinds 9165

11,000

10,000

9,000

8,000

7,000

6,000

5,000

4,000

3,000

2,000

1,000

o

Source: "Kissinger Commission Report Recommendations for USIA Programmmg and Supplemental Authonzatlons

for Migration and Refugee ASSistance. Department of State." Hearing Before Ihe Subcommittee on International Operauons, House of Representatives. February 27, 1984.

5150

1977 1982

35
36

General Accounting Office." From

1972 to 1982, the GAO found, the

Soviet bloc increased its all-expense

scholarships for students from that

region by 205 percent. At the same

time C.S. Government-sponsored

scholarships declined by 52 percent.

In 1982, the GAO study reported

the Soviet bloc financially sponsored

9,080 students, compared with

2,197 sponsored by various agencies

of the U.S. Government. However,

more than 44,000 students from

Latin America and the Caribbean are

currently enrolled in U.S. colleges.

and universities without federal

scholarships-down from 50,000 in

1980. Most of the latter group are

privately financed. It is clear that

there isa strong incentive to study in

the United States.

The GAO report indicated that the

Soviets are reaching out to the less

affluent young who, for lack of

money, are denied the opportunity to

study in the United States. The concern is that these students who receive Soviet scholarships may eventually form the nucleus of Marxist or

revolutionary movements.

Until this year, USIA's meager

scholarship program stressed graduate level training and sought academically qualified students proficient in English. Only 35 grants

were available to bring Central

American scholars to the U.S. in FY

1984. Such students come mostly

from the middle and upper classes.

The Soviet bloc countries, on the

other hand, seek technically oriented

undergraduates and are less concemed about academic qualifications.

Major changes in the Agency's

programs are under way. Fulbright

exchanges with the countries of Central America will be vastly expanded

in FY 1985, anda new undergraduate scholarship program for talented,

upwardly-mobile students with leadership potential will begin. There will

also bea significant increase in the

number of International Visitors.A

few numbers illustrate the changes

taking place. 2 ••C.S. and Soviet Bloc Training of Latin American

and Caribbean Students: Considerations in

Developing FutureC.S. Programs," General

Accounting Office, August 16. 1984.

In FY 1985 the Fulbright program, including the exchange of

U.S. and Central American researchers and lecturers, graduate scholarships and faculty training grants, will

total 254 scholarships and grants,

contrasted with approximately 50

last year. The new undergraduate

program will permit approximately

143 students to spend up to two

years in American universities, and

there will be five university affiliations (linkages between U.S. and

Central American universities) involving the exchange of approximately 60 persons. Last year there

was only one university affiliation.

The budget for these and other exchange programs rose from $1 million in FY 1984 to $10.5 million in

FY 1985.'

To support these activities, the

Agency plans to strengthen its English teaching, book and library programs, provide additional counseling

services to foreign students in the

United States and expand the reach

of its American studies activities

overseas.

One of the goals of this ambitious

initiative is to prevent American

higher education from becoming the

exclusive privilege of affluent youths

from areas so vital to U.S. security,

This admirable effort is long overdue, but with the new opportunities

there are unresolved problems. For

several years the resources for Central American exchanges were cut to a fickle and their important role

largely ignored. Now the funds for

these programs have greatly increased. These are small posts with

small staffs. The same number of already overworked people cannot be

expected to carry out additional and

vastly expanded programs efficiently

no matter how important or worthwhile. The Commission recommends

that the Agency provide additional

personnel to these posts.

-'We understand thata similar buildup is occurring

in AID's training programs, although the number of

AID training grants will be substantially larger than

the USIA exchange program. \Vhilc AID can sponsor

only trainees in fields related to development,

excluding the humanities and rnanv of the social

scicnces,- hoth agencies arc aware ;)f the need for

close coordination of their policies and practices so

that their programs will be mutually supportive.
Youth Exchange

A Nebraska high school student and his Japanese host family participate in

the International Youth Exchange Initiative.

T

e President's Intemational

'outh Exchange Initiative

'as begun in 1982 to inrease exchanges of young

people between the United States

and its Economic Summit partners,

Canada, France, the Federal Republic of Germany, Italy, Japan and the

United Kingdom. Utilizing federal

funds and contributions from the

private sector, more than 6,000

young people participated in 1984.

USIA has received more than $4.2

million in pledges from the private

sector, of which approximately $3

million has actually been received.

Responding to Congressional interest, the program was expanded to an

additional ten countries from the developing world. Further expansion is

planned for the coming year.

The Agency's Youth Exchange

staff administers a competitive grant

program for private, not-for-profit organizations to conduct the exchanges. Organizations are invited to

submit proposals in response to

priorities identified by participating

posts. DUling the past year, 64

grants were awarded, totalling

$5,216,637.

Youth exchanges may take various

forms and involve a wide range of

activities. Among the more successful projects over the past year are the

follOwing:

o The Congress-Bundestag Program

for the exchange of German and

American high school students was

established by the U.S. Congress

and the Gelman Bundestag in 1983.

Full scholarships awarded competitively provide for a year of high

school level study and travel, orientation and language training. Students are housed with host families.

The cost is approximately $5 million per year, divided equally between the U.S. and the FRG. The

number of exchangees, based on the

number of Congressional/Bundestag

districts, is 536 Americans and 520

Germans. By providing young Americans and Germans an opportunity

to experience each other's country in

depth, 'the Congress-Bundestag Program is a direct response to the felt

need to increase contacts among

members of the "successor generation. "

o The first U.S.-Japan youth exchange involved a group of 47 outstanding Japanese high school students representing the 47 Japanese

prefectures, or states, on a year-long

academic home stay visit to the

37
Sixty young people from eleven countries helped restore the Statue of Liberty,

Ellis Island and other historic sites in the U.s. under the International Youth

Exchange Initiative.

38

United States. This program was

funded by a grant of S213,380 to

Youth For Understanding.

o The first American work-study

project developed by the Council on

International Educational Exchange

(CIEE) focused on the restoration of

the Statue of Liberty and Ellis Island. With grant support, 120

youths, half from the U.S. and half

from eleven countries that sent immigrants to our shores, spent four

weeks in New York City working un

der supervision of the National Park

Service to restore the Statue of Liberty and Ellis Island. They also participated in discussions with university professors and representatives oj

New York's ethnic communities on

the historical and human dimension.

of the American immigrant experience. CIEE plans to continue the

project through increased support

from private sector sponsors.

o Four hundred Italian students anc

their teachers representing secondary

schools from all 20 provinces of Italj

spent three weeks in the U.S. under

a program arranged by the National

Association of Secondary School

Principals and CIEE. An equal number of American students will return

this visit during the current school

year.

o There have also been many successful small projects. To mention

just one example: eight young people

from Illinois farm families last summer exchanged places with eight

youths from rural districts of France.

Each lived and worked with a volunteer host family for three weeks and

spent a week on a travel and learning trip-the French to Chicago and

the Americans to Paris and the Loire

Valley. USIA arranged the contact

between the two sponsoring organizations, Illinois State University and

the Association Culturelle Inter-exchanges, and provided a partial support grant.

The Youth Exchange program is a

striking example of what can be accomplished with the cooperation of

the private sector, community involvement and the hospitality of

hundreds of American families. Together, with the help of the Youth

Exchange staff, they have made this

laudable program possible.
Book and Library

Programs

both the Soviet bloc and Western

democracies.

Shortly thereafter, USIA's Research Office issued a major report

on Soviet book exports." The report

concluded that in 1982 the Soviet

Union exported more than 70 million books-33 million in translation. Soviet book exports increased

2.5 times during the past decade, an

average growth rate of 25 percent a

year. The variety and number of Soviet books published in Third World

languages increased substantially.

In contrast, USIA supports publication of approximately 600,000

books per year in English and translation worldwide.

Recommendations of this Commission, the Benjamin report, and

research on Soviet book exports led

the National Security Council to

call for a major conunitment to

strengthen programs supporting the

dissemination of books abroad. As

National Security Advisor Robert C.

McFarlane has accurately observed:

"The problem is not simply the

weakness of current federal programs. Donation programs by private American publishers have been

reduced. Funds handled by quasipublic/private organizations have

been cut back. We need to renovate

our total approach.' ,3

The NSC directed USIA to establish a task force to bring together

public and private expertise to develop a comprehensive strategy for

dealing with the problem and to

make specific legislative and administrative recommendations. The task

force is to complete its work early in

1985, and the Commission awaits

its report with great interest.

The Commission also welcomes

the interim steps being taken by

USIA to reinvigorate its book and

library programs:

Findings &

Recommendations

o The Commission is deeply concerned that the U.S. is not competitive in intemational book and

library activities. Needed increases

in resources for overseas American

libraries and for USIA's book

translation and donated book programs will require the sustained

cooperation of USIA, the Congress

and the private sector.

A1

ear ago, this Commission

eported on the long-term

decline in USIA's programs

upporting the dissemination of American books abroad. We

reported also on the significant disparity between U.S. book activities

and those of the Soviet Union.

Since then, several developments

suggest a renewed commitment to

U.S. international book programs is

emerging.

The Benjamin report, published by

the Center for the Book at the Library of Congress with substantial

input from USIA, focused public attention on the consequences of years

of neglect in overseas book programs.' The report documented the

steady erosion of U.S. book distribution activities, particularly in the

Third World, and the gap between

U.S. book programs and those of

'Curtis G. Benjamin. C.S. Hooks Abroad: Neglected

Ambassadors, Lihrary of Congress, Washington.

1984.

o In Fiscal Years 1984 and 1985,

USIA budgeted increases of $2.5

million for additions to library book

collections, new equipment and regionallibrary positions.

2"SOl'ict Book Exports 1973-82." March 1984.

.1Memorandum trom National Security Advisor

Robcn C. McFarlane to USIA Direct~r Charles Z.

Wick. "U.S. Books Abroad." April 4, 1984.

39
Books donated by American publishers through USIA ill Freetown are presented to the Milton Margai Teachers College.

o Following a long period of virtual

nonparticipation, USIA began to enter major book fairs in Frankfurt,

Cairo, Calcutta and other cities.

reprogram approximately S600,000

for enhanced book programs in Central America.

o The decline in the Agency's donated books program was reversed

with one donation of 60,000 books

to Tanzania, obtained under special

circumstances, exceeding the total

o A new Regional Book Office was

established in Barcelona.

o In FY 1985, USIA is seeking to

The Diminished Role ofD.S. Books Abroad

o In 1965, USIA's book publishing and translation programs totalled 12.7 million copies. Today, they total less than 1 million.

o In 1963, USIA administered 254 overseas libraries and reading

rooms. Today there are 131.

o In 1963, 24 million foreign nationals used USIA's libraries and

reading rooms. In 1983, there were 4 million.

o The Soviet Union exports more than 70 million books annually

with substantial increases in Third World languages during the last

decade.

o The Soviet Union participates in 1,500 intemational book exhibits annually, the United Kingdom in 270. USIA participated in

less than 100 in 1984, only several of which were major exhibits.

o Soviet books are heavily subsidized and affordable to Third World

students. U.S. books are not.

Sources: The C.S. Information Agency. The Library of Congress and The Helen Dwight Reid

Educational Foundation.

40

donated book distribution worldwid

for the previous year.

The Commission welcomes these

developments, but a great deal mor.

needs to be done.

The Commission is deeply concerncd that the U.S. is still not com

petitive in international book and Ii

brary activities. Cheap Soviet book!'

flood the markets of the Third

World, while most American commercial book exports go to a few d(

veloped countries, USIA must increase its book translation program

the training of its book officers, anc

resources for its overseas librariesboth the institutions themselves ant

their collections. And donated bool

programs must return to the annua

multi-million volume level of decad

past.

Books are essential to the condu

of public diplomacy. USIA's librari

are unique in their ability to provid

in-depth information to foreign peo

ples about American values and cu

ture and the policies of our government.

Bringing these programs to a lev.

consonant with what national need

require is not the job of USIA alon

It will require the sustained cooper

tion of the executive branch, the

Congress and the private sector.
English Teaching

and Binational

Centers

I

itsn last report, this Commission noted that declining funds

over a period of years had seriously weakened two impOliant

and closely related programs-English teaching and Binational Centers

(BNCs). We recommended that

USIA strengthen its English-teaching

programs and give increased support

to BNCs.

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. They

Students at work in the reference section of USIA's Benjamin Franklin Library in Mexico City.

are concerned with teacher training,

curricula development and counseling English-teaching institutes and

ministries of education. The Agency

also prepares and disuibutes a variety of English-teaching and teacher

training material.

The direct teaching of English

supported by USIA is largely done

through BNCs, local binational institutions of private citizens which are

largely self-supporting. These centers, with their English classes, libralies and cultural programs are

one of the Agency's most impOliant

resources for reaching successor generations in developing countries.

They are particularly important in

Latin America although there are active centers in Asia, Europe, North

Mica and the Middle East. Approximately 400,000 students attended

classes last year in the more than

100 BNCs that received some type

of Agency support.

The rapid expansion of USIA's academic exchange programs, especially in Central America, makes the

work of the BNCs even more important. For without proficiency in English, students will find it difficult to

compete for exchange scholarships

or gain admission to American universities.

We are pleased that resources for

these two programs, while still modest, have increased. Funds allocated

to BNCs in the Agency's FY 1985

budget are 83.8 million, an increase

of 81.1 million over the previous

year. The budget for English teaching for FY 1985 is 84.3 million, an

increase of 8841,000 over FY 1984.

The strengthening of the BNCs

made possible by the new budget

will focus on professional in-service

training for some center administrators, librarians, student counselors

and English teachers. A small number of English teachers will be given

experience in U.S. universities. And

there is under way a much needed

upgrading of book collections, equipment and physical facilities; While

this improvement plan is modest, it

represents the essential first step in

what the Commission hopes will be

a continuing program to enhance the

effectiveness of this valuable and

sometimes neglected program.

41
MANAGEMENT

Senior

Vacancies Findings &

Recommendations

U The Commission recommends

that the Director and the 'White

House move quickly to fill longstanding vacancies in the positions

of USIA Deputy Director, USIA

Associate Director for Programs,

and Director of the Voice of

America.

T

he dynamism and creativity

of USIA Director Charles Z.

Wick and his non-career colleagues, combined with the

professional skills of the Agency's

career officers, have substantially

heightened the effectiveness of America's public diplomacy. At the same

time, the Commission is deeply concerned by prolonged senior level vacancies in USIA and their potential

impact on the Agency's ability to implement new program initiatives anc

to manage ongoing programs well.

As of February 1985, USIA had

, been operating for 18 months without a permanent Deputy Director.

TIle position of Associate Director

for Programs had been filled on an

acting basis for over a year. And the

Voice of America had been without

confirmed Director for seven month:

The Commission recognizes that ,

variety of circumstances, including

the elections and the convening of a

new Congress, have contributed to

delays in the appointment and confirmation of these senior Agency olf

cials. Nevertheless, continued delay

will adversely affect the conduct of

public diplomacy. The Commission

recommends that the 'White House

move quickly to appoint a USIA

Deputy Director and that the Congress confirm the President's nominees for USIA Associate Director Io

Programs and Director of the Voice

of America.

Under USIA's Artistic Ambassadors program, gifted pianists selected through

rigorous auditions represent the United States abroad. Artistic Ambassadors

perform in large and small concert halls, give lectures and masters classes and

speak about American musical life.

42
Headquarters

Controversies

Findings &

Reconunendations

o The Commission finds that interest abroad in recent USIA headquarters controversies was marginal and that there was no

discernible adverse impact on

USIA's overseas programs and

activities.

o The Commission recommends

that USIA provide clearer operational guidance on speaker selec-

. tion criteria and the relationship

between advocacy and education

in its speaker programming

policies.

o The Commission recommends

that USIA encourage responsible

internal discussion of professional

public diplomacy issues and provide an appropriate forum for

doing so.

T

he program accomplishments discussed in this report provide an appropriate

context in which to consider

two publicly controversial issues that

have affected USIA's headquarters

operations: Director Wick's past

practice of tape-recording telephone

conversations and the existence of a

so-called "blacklist" in USIA's overseas speakers program.

Visitors view a USIA exhibit in Prague. The Agency produces an average of 13

major exhibits a year, which sometimes draw audiences of more than one million. USIA is also responsible for official U.S. national exhibitions at International Expositions held abroad.

Both were serious matters. They

were the subject of extensive

Congressional inquiry and considerable media attention in Washington

during the period covered by this report. The Commission was deeply

and unanimously concerned that

they not adversely affect USIA's ability to carry out its mission, and we

examined them with care. J

In doing so, members of the Commission:

o Met privately with the Republican

and Democratic leadership of

USIA's oversight committees in the

Congress; 2

o Held extensive conversations with

ambassadors and Public Affairs Officers in Europe, Asia and Latin

Arnerica;

o Met with USIA's General Counsel,

Chief Inspector, geographic area directors, and a number ofsenior career professionals in Washington;

o Met with leaders of'the American

Federation of Government Employees, USIA's employee union, and the

American Foreign Service Association;

o Examined all Congressional committee reports and hearings, inspection reports and other public documents relating to these issues; and

o Testified in USIA oversight hearings held by the House Subcommittee on International Operations.

The Commission found that interest

in these controversies overseas was

marginal. Without exception, we were

infonned there was no discernible adverse impact on USIA's regularprograms and activities.

The issues themselves were investigated thoroughly by competent auj'nlC Conunission's role is advisorv onlv. It has a

limited budget and it small staff. ;rhe Commission

dol'S not ha\'l' regulatory powers or the resources

and authority to act as an investigatory body.

2Commission members met with Senate Forcizn

Relauons Committee Chairman Charles Percy and

Ranking Minority Member Claiborne Pcll, II;'lIse

Jmcrnauonal Operations SlIbcommillee Chainnan

Dan Mica and Rep. William S. Broomfield, Ranking

Minorirv Member of the I louse Forcum Affairs

Committee. ..

43
thority, and the Commission does

not intend a detailed reexamination

of them. They were management defects in the Agency's headquarters

operations, and corrective measures

have been taken.

The public disclosure late in 1983

that Director Wick tape-recorded his

telephone conversations, often without the permission of others, was examined by staffs of the Senate Foreign Relations Committee, the House

Foreign Affairs Committee and the

General Services Administration. 3

Neither Congressional staff found

evidence that the tape-recordings

were made for purposes other than

the Director's stated intent of achieving managerial efficiency. In response to General Services Administration findings, USIA and the

Director have taken steps to ensure

compliance with telecommunications

management regulations governing

listening-in and'recording of telephone conversations.

The practice itself clearly was

wrong and not a wise choice of managerial tools. Director Wick has

apologized publicly and privately to

those whose calls were recorded.

Media reports of a so-called

"blacklist" in USIA's overseas

speakers program also concerned the

Commission. Early in 1984, USIA's

Inspectors found that lists had been

compiled of potential Agency-sponsored speakers who had been rejected by a high-level Agency screening group. The Inspectors found the

lists contained a cumulative total of

95 names, some of whom were apparently rejected for partisan or ideological reasons.

USIA's speaker selection and

screening process was subsequently

investigated by staffs of the Agency's

Senate and House oversight committees and by the Agency's own Office

of Inspections. Hearings were held

by both committees, and two separate Senate Foreign Relations Committee staff reports were issued. A

report was also issued by USIA's Offlee of Inspections."

Each of these inquiries was thorough. The practice was terminated

by the Agency immediately following

its disclosure, and a number of administrative improvements were

made in the speakers program. The

impact was confined to Washington,

and the Commission's own observations were borne out by the Agency's

Inspectors who found the "screening

process had no discernible impact

on the quality of speaker programs

overseas, according to field officers."

Blacklists are wrong. A partisanship test per se is wrong in any USIA

program. Director 'Nick has stated

that "exclusionary lists are repugnant to the very foundations of our

democracy," and the Commission

agrees.

At the same time, a selection process is inevitable in USIA's speakers

program. During the two-and-a-half

year period reviewed by USIA's Inspectors, some 5,000 individuals

were considered as possible speakers

by program officers. The Agency has

resources to program only about 500

speakers a year. l11Us, by definition,

there must be a screening process

based on such criteria as speaker

quality, program relevance, congruence of speaker availability and post

program needs, the availability of

funds and other non-ideological considerations.

There is strong historical precedent and good reason to select some

speakers who can explain, defend

and vigorously advocate U.S. Government policies. Indeed, on foreign

policy issues experience shows that

"Senate Foreign Relations Committee staff report on

CSINs "Blacklist." forwarded to Director Charles

Z. Wick by Committee Staff Director Scott Cohen.

March 19, 1984; Senate Foreign Relations

Commiueo staff report on the "Blacklist,"

forwarded to Director Charles Z. Wick bv Senator

Jesse Helms, ,\u~'l1st7, 1984; "Oversight of the

C.S. Inf(lrmation~Agency." hearings bel,)re the

House Subcommittee on International Operations.

Mav 10, IS, 1984; "Nomination of Leslie

Lenkowsky," hearings before the Senate Committee

on Foreign Relations, April ;). 11, May 9, 15,

1984; "The So-called 'Blacklist' of the Office of

Program Coordination and Development (P/D),"

report of the Office of Inspections, G.S. Information

Agency, :VIarch 28, 1984.

.l"\'onconsensual Recording of Certain Telephone

Conversations bv CSIA Director Charles Z. Wick,"

a staff report prepared for the Committee on

Foreign Relations. I,'..s. Senate, February 1984;

"Recording of Telephone Conversations by Charles

Z. Wick, Director, USIA," staff report to the

Committee on Foreign Affairs, G..s. House of

Rcpresemauv.«, February 3. 1984; and "1\ Report

on the Recording of Telephone Conversations at the

Lnitcd States Information Agency During the Period

of 1981 Through 1983," General Services

Administration . January 20, 1984.

44

overseas audiences often prefer senior govemment officials and others

who can speak authoritatively on behalf of those policies. In oilier subject areas, selection of' speakers who

are representative of the many responsible contrasting views in American society is appropriate and justifiable. In all cases, speakers must be

relevant to post program needs, and

an opportunity given for posts to indicate whether or not they can utilize

speakers efTectively.

The history of USIA's speakers

"program and the findings of the

Agency's Inspectors suggest there is

some ambiguity in speaker programming policies and perhaps even in

the legislative authority that underlies them. The Commission recommends that USIA seek to clarity its

policies to provide: clear operational

guidance on speaker selection criteria, a clear rationale for programming speakers who \NiJ]explain and

advocate U.S. policies, a clear understanding of the relationship between advocacy and education, and

a clear statement of the impermissibility of partisanship and political litmus tests in speaker selection.

Vigorous debate among public diplomacy professionals on methods

and priorities is not new, and in the

Commission's view it is a sign of a

healthy organization. We are convinced the recent headquarters controversies at USIA are a result, not of

malicious intent, but of' the energy,

dedication and commitment both career and non-career officers bring to

accomplishing the Agency's mission.

The Commission believes USIA's

top management should encourage

responsible internal discussion of

professional public diplomacy issues

and provide appropriate opportunities for doing so. Creation of a USIA

counterpart to the State Department's Open Forum, use of the

Agency's house organ USIA World

for this purpose, and official encouragement of a professional journal on

public diplomacy should be considered.

An Agency dedicated to the propagation and exchange of ideas will

only benefit from fostering responsible internal debate on professional

issues.
Representation

F

romthe earliest years of the

Agency, the effectiveness of

USIA's officers overseas has

been seriously limited by inadequate representation funds.

Agency management is keenly aware

of this problem, and over the past

several years Congress has gradually

increased appropriations for this

purpose. With adjustments for inflation, the Agency's representation

budget increased approximately 200

percent during the last ten years.

USIA's FY 1984 appropriation provided a total of $593,000 for overseas representation allowances, an

increase of approximately 17 percent

over the 1983 reimbursed level.

Findings &

Recommendations

o The Commission finds that personal contact with foreign opinion

leaders is one of the most important functions of' public diplomacy.

A substantial increase in USIA's

overseas representation funds

would serve the national interest.

On the face of it, this is encouraging. Yet in 1983, Agency officers

were still out of pocket S114,000.

Final figures for 1984 are not yet

available, but we were concerned to

learn that one small African post

alone has reported over S7,000 in

out-of-pocket expenses.

DUling the past year, members of

this Commission visited more than

25 US1-\ posts, and we have seen

firsthand how their programs are

hampered by inadequate representation funds.

In every geographic area, Public

Affairs Officers (PAOs) speak of

missed opportunities to carry out

their duties effectively and to advance u.S. interests. The Commission has been told repeatedly of their

inability to take full advantage of

contacts with journalists or to capitalize on visits of prominent Amelicans, speakers and performing artists. Funds are usually unavailable

for lunches or receptions to bring

these visitors together with local personalities, thereby increasing the impact of their visits.

PAOs also report they cannot often

afford to invite International Visitor

(IV) grantees to small lunches for

predeparture briefings or to lunches

upon their return to obtain "feedback" from their U.S. experiences

and to learn about the strengths and

weaknesses of their programs.

Other opportunities are routinely

missed. TIle PAO in Beijing, for example, regretted that he was not able

to have a reception for Chinese journalism students returning from training at the University of Hawaii. Most

posts report they are often not able

to include returning Fulbright scholars and other exchange participants

in representational affairs. Dar es

Salaam did not have funds to invite

local officials and media leaders to a

buffet to introduce the new PAO.

And all posts report the lack of funds

for more of the vitally important oneon-one lunches with officials, journalists, educators and other key

contacts.

Former USIA Director Edward R.

NIUlTOWobserved that USIA has no

difficulty in transmitting information

about the U.S. around the world in

seconds. What is difficult, he said, is

conveying it the last three feet. That

is precisely what makes small

lunches and dinners so important, to

enable USIA's officers to carl}'

America's message personally those

critical last three feet. It is unconscionable that USIA's officers, few of

whom are wealthy, should have to

use their own funds to cany out

their official duties.

If the United States is to have an

effective public diplomacy, USIA's

officers overseas must have the resources to do the job. A substantial

increase in the Agency's overseas

representation funds would serve the

national interest.

45
Congressional

Grant Controls

Agency to develop grant application

guidelines and grant review criteria,

This process has been helpful in developing confidence in USIA's grant

programs and in assuring that they

are consonant with the Agency's legislative mandate.

But in the Commission's judgment, appropriate Congressional oversight does not extend to routine

prenotification by USIA of pending

grant decisions. This legislative

micro-management is not necessary:

nor is it sound public policy. It also

creates an excessive administrative

burden for the Agency. As a practical matter it means top-level scrutiny

of all proposed grants, large and

small, and a reduction in time spent

on broad Agency programs and objectives.

The Commission repeats its recommendation that the practice be

discontinued.

Findings &

Recommendations

Ll '1l1C Commission finds the requirement that Congress be notified 15 davs in advance of all

USIA program grants is neither

necessary nor sound public policy

and repeats its recommendation

that the practice be discontinued.

'l'SIA's authorization legislation provides: "In

addition, the United States Information Agencv mal'

award program W'UHS for the fiscal years 1984 an,!

1985 only if the Committee on Foreign Affairs of

the House of Representatives and the Committee on

Foreign Relations of the Senate are notified fifteen

days in advance of the proposed grant." Public Law

98-164.

F

or more than a generation,

this Commission has worked

with Congress to bring in-' -

formed and independent

judgment to bear on the programs

and activities of USIA. The Commission believes strongly in the necessity

of vigorous public oversight and the

right of Congress to inquire into any

aspect of USIA's activities, including

specific grant decisions after they

have been made. We continue to

question, however, the wisdom of

the decision by Congress in 1983 to

require 15 days advance notification

of Agency program grants. t

USIA's Congressional oversight

committees have worked with the

Advisory Commission members meet with Mexican Foreign Secretary Bernardo Sepulveda in Mexico City. Shown (from

left to right) Commissioners Herbert Schmertz, Richard Scaife, Hershey Gold, Priscilla Buckley, Chairman Edwin J.

Feulner, Jr., Secretary Sepulveda and staff.

46
Training for

Media Interviews

Recommendations &

Findings

o The Commission recommends

that USIA institute a program of

training for media interviews for

senior USIA officers, ambassadors,

and deputy chiefs of mission.

A

merican ambassadors and

USIA's Public Affairs Officers (PAOs) are routinely

called on to explain U.S.

actions and policies on foreign television programs. Some USIA officers

have had considerable experience

with this medium, many, however,

have not. And as the traditional role

of ambassadors has evolved, the

public diplomacy function has become central to their responsibilities.

Most ambassadors have had little

experience and virtually no training

in the use of television and other

media. Few are comfortable or confident in the glare of television lights.

Handling such situations, which are

an increasingly frequent and important part of their duties, requires a

skill that can only be acquired

through training and practice. Training for media interviews and television appearances has been part of

corporate professional development

in the U.S. for years.

This Commission believes that

such training would be invaluable for

our ambassadors, PAOs and other

USIA and State Department officers

who may be called on to represent

the views of the U.S. in media interviews and on television. PAOs in

particular should be thoroughly familiar with the techniques involved

so that they can assist their ambassadors to prepare for public appearances.

We recornmed that USIA institute

a program of training for media interviews for senior Agency officers,

ambassadors and deputy chiefs of

mission. We are convinced this

would enhance the effectiveness of

their television performances and improve their communications and

public diplomacy skills.

Ambassador Robert Strausz-Hupe fields questions from an audience at a USIA-sponsored program in Turkey.

47
Need for

More

Personnel

Overseas

Poet Naomi Nye speaks to the press in a USIA -sponsored press conference.

Prominent Americans in a variety of fields represent the United States to foreign audiences in lectures, seminars and media interviews.

Findings &

Recommendations

[] New communications technology and program expansion, particulary in USIA's WORLDNcl,

educational exchange and International Visitors programs, have

stretched the Agency's overseas

staffs to the breaking point. The

Commission strongly recommends

that additional personnel be assigned to USIA's overseas posts.

T

he Commission is greatly encouraged by the substantial

increases in funds appropriated for USIA over the past

three years following a long period of

decline. These much needed increases have permitted expansion of

a number of Agency activities, with

two of the principal beneficiaries

being the Television Service and the

exchange programs.

But as we noted last year, the

number of USIA employees overseas

has not kept pace with the growth of

the programs they administer. In

fact, they have declined. In 1967,

USIA had 1,495 Americans and

5,927 foreign national employees assigned to overseas missions. At the

end of FY 1984 there were 861

Americans and 2,958 foreign nation48

also A number of overseas positions

will be added in FY 1985: 19

Americans and 57 foreign nationals.

The Agency is also adding 42 junior

officer and other training positions.

Meanwhile, the budget for the Television Service increased by approximately 73 percent from FY 1984 to

FY 1985, and television programs

and other material received by the

fleld-WORLDNcl' transmissions,

video cassette recordings, etc.-have

grown accordingly. Similarly, FY

1985 funds for exchange programs

are 90 percent higher than the FY

1981 level. The number of exchange

grants to be awarded in Central

America in FY 1985 is more than

eight times larger than last year.

The Commission last year expressed its concern that USIA's overseas staffing had been reduced below the point where new programs

could be accommodated or critical

issues adequately handled. The

problem is more acute now than

ever.

In several sections of this report

we have warned that the expansion

of certain existing activities and the

addition of major new programs, as

important and worthwhile as they

are, have strained overseas staffs to

the breaking point. The Commission

strongly recommends that additional

personnel be assigned to the Agency's posts.
For additional inJorlll:tti()ll.

please \\Tite:

l 'nitcd Stall's. \c!\'isorv Conlll1i,~si()n

Oil Public' Diplolllacy .

Room (l()()

3() 14th sr., S.\v.

Washington. D.C. 20<'147

Bruce C;rl'gory. Staff Director

(202) .J.~;)-24:)7