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| ******PUBLIC DIPLOMACY FOR THE 21ST CENTURY****MISSION AND STRUCTURE**
The President, Congress, and the American people are asking America s         foreign affairs agencies to rethink what they do and how they do it.

This is absolutely necessary. Organizations and functions that evolved         throughout the 20th century face new realities: the communications revolution,         the spread of democracy and open markets, and the end of the Cold War.         Moreover, we must meet 21st century challenges with fewer resources.

Some restructuring proposals assume consolidation into a "mega-agency"         will result in significant savings and increased efficiency.

 The U.S. Advisory Commission on Public Diplomacy believes examination         of basic missions should come first. Real savings will come from decisions         about what functions are most important and how those functions can best         be performed. 

 Simply merging public diplomacy into the Department of State wiill not         provide desired flexibility and efficiencies. Nor by itself will it further         the objectives of American foreign policy.

 This report is about the importance of public diplomacy's mission: winning         the support of foreign publics to further U.S. political, economic and         security interests. It is not about business as usual. It is about the         need for change.

**RETHINKING PUBLIC DIPLOMACY**

 Restructuring proposals should meet two tests. Do they acknowledge the         centrality of public diplomacy in foreign affairs? Do they enable missions         to be pursued more effectively at less cost? 

 In public diplomacy, restructuring is happening now. Congress last year         mandated fundamental change in international broadcasting. The Vice President         s National Performance Review is seeking to streamline administrative         services, make better use of communications technologies, and consolidate         exchange and democratization programs. USIA has cut staff, restructured         its information programs, and eliminated magazines and exhibits. 

 Further restructuring should focus on ways to use public diplomacy expertise         more effectively in an era when many U.S. agencies and NGOs engage foreign         publics directly and when foreign policy is made not just by the State         Department, but by the White House and an array of other departments such         as Defense, Commerce, Treasury, and the U.S. Trade Representative. 

The case has not been made for merging USIA into the Department of State.         But there is a compelling case for widespread interagency assignments,         redesigned public diplomacy training, "real time" public affairs coordination,         and other approaches that put USIA's expertise at the service of the President         and a wider government and NGO community. 

**WHAT NEEDS TO BE DONE**
- Recognize that the United States will be successful in foreign policy           only if it understands, informs, and influences foreign publics.              Make clear that what foreign publics think and do can help and harm           Americans -- their lives, their livelihoods, their well being.           Keep the U.S. Information Agency an independent public diplomacy agency           under the foreign policy direction of the President and the Secretary           of State.           
- Encourage restructuring through widespread interagency assignments,           redesigned public diplomacy training, "real time" public affairs coordination,           and other approaches that put USIA's expertise at the service of a wider           government and NGO community.             Expand use of the Internet, other digital information technologies,           and television at U.S. missions abroad.            Increase foreign public opinion polling, media studies, and program           evaluation.          
- Increase evaluation of exchanges; address duplication in programs           now carried out by more than 23 federal agencies.             Make the hard decisions in international broadcasting on issues posed           by television, new technologies, and changing media environments.           
**DEFINING PUBLIC DIPLOMACY**

 Public diplomacy is the communication of U.S. interests and ideals beyond         governments to**foreign publics.**

 People all over the world now have more power to shape events and the         actions of governments than at any time in history, making public diplomacy         as essential to U.S. interests as diplomacy between governments.

Governments increasingly understand that publics have great power to         influence events and decisions. They realize that communication with foreign         publics often has much more impact than the exchange of diplomatic notes.

Public diplomacy has not replaced government-to-government diplomacy.         But traditional diplomacy has been changed decisively by the communications         revolution. 

Today, governments must win the support of people in other countries,         as well as leaders, if policies are to succeed. They must cope with constituent         pressures at home and with the consequences of public pressures on other         governments. They must mobilize coalitions and support for policies in         multilateral organizations. Because what they say at home will be instantly         reported abroad, policy explanations must be consistent and persuasive         to domestic and foreign audiences alike.

Communication with foreign publics goes well beyond CNN telecasts. Public         diplomacy is not just an accidental by-product of what is reported in         the commercial media. 

 Nor is it public affairs aimed at the American people. U.S. policymakers         should and do promote their policies in the United States. Public diplomacy,         however, is directed at publics abroad.

 Essential elements of U.S. public diplomacy are: 
- Press and public affairs activities of the President and senior policymakers,             Informational and cultural activities at U. S. missions abroad,           International exchange of persons,           
- U.S. radio and television broadcasting,              Government-funded activities of non-governmental organizations (NGOs),           and           Foreign public opinion research.          
 It is public diplomacy when President Clinton's statements opposing         Iraqi troop movements are carried by media worldwide, when the U.S. ambassador         in Moscow appears on Russian television, when a Fulbright scholar teaches         law in Poland and the Voice of America broadcasts to China.
 Other countries engage extensively in public diplomacy: when South Africa         s President gives a newsmaker interview on American television, when the         British Foreign Secretary meets with the editorial board of an American         daily, when the Japanese government creates an exchange foundation to         support trade and policy goals. 
**VALUE FOR TAXPAYERS**
 Public diplomacy is more than just public relations or getting a good         press. It is a political and economic necessity.
 Public diplomacy will help determine: 
Whether Russia and other emerging democracies develop stable governments           that are better trading partners, better neighbors, and less inclined           to war and terrorism.          
- Whether U.S. interests in such trouble spots as Iraq, Iran, Bosnia,           North Korea and the Middle East are understood by allies and adversaries.             Whether market economies take root in entrepreneurial cultures that           will expand U.S. exports, create American jobs, and lead to better investment           climates for American business.           Whether China, fast becoming the world s largest economy, will prove           to be a durable trading partner and responsible great power.          
 These are not just theoretical concepts.       
 Rule of law programs in Central Asia increase respect for contract law,         improve opportunities for U.S. business, and create jobs for American         workers.       
 USIA's polls showing widespread sentiment by the Russian people to end         the conflict in Chechnya strengthened the hand of American diplomats in         voicing concerns to the Russian government.       
 Prior to the Gulf War, USIA's polls and reports from Public Affairs         Officers showed differences among Arab publics in their views of Sadaam         Hussein. This information gave the United States added leverage in seeking         support from Arab governments for the allied coalition. 

**NEW REALITIES**

**Globalized Communications.** We live in a world of information         abundance, instant communication, and porous borders. The Information         Age has replaced the Industrial Age. 

 Television is the primary source of news and information in most of         the world. Satellite television is within reach of many even in developing         countries.

 Digital telecommunications, fiber optics, and high capacity satellite         systems are transforming the speed and scope of communication. The Internet         is becoming the backbone of the Global Information Infrastructure. The         results:
- Increasing quantity, diversity, and speed of information.              Increasing interconnectivity, with control shifting from a few producers           to many users.           Increasing efficiencies and decreasing per message costs.          
- Multiple, specialized publics replacing large, easily defined national           audiences.               **Democratization.** From 1974 to 1994 more than 40 countries made         the transition to some form of democracy, an unprecedented expansion in         the power of people to influence governments.  This transfer of power also brings long-standing ethnic, national, religious,         and factional disputes to the surface.   Ideas and practical information are vitally important to emerging democracies         that lack democratic and entrepreneurial traditions. Ideas are pivotal         as well in regions divided by conflict.  **Free Markets.** Today there are fewer command economies. People         have concluded from experience that market economies are the most effective         way to prosper and expand personal opportunity. As ideological rivalries         fade, trade and investment competition are at the center of international         politics.   **Non-governmental Organizations.** International relations are more         immediate and personal -- a continuous interaction among people across         borders. There is a growing non-governmental sector in business, education,         humanitarian, leisure, and voluntary activities of all kinds.   *** * ***  The consequences of these realities for foreign policy and public diplomacy         are profound.    - Government communication faces more competition.               Instant communication sharply reduces deliberation time for policymakers.          Shortwave radio audiences are declining.          
- More NGOs carry out exchange and democratization activities previously           the purview of government; foreign affairs agencies are reappraising           their roles.              USIA's expertise and programs serve many more U.S. government departments           -- not just the Department of State.           
**AMERICA'S STRENGTHS FOR PUBLIC DIPLOMACY**

America' s strengths, drawn from 200 years of history, are uniquely useful         for public diplomacy. The United States is the only remaining superpower;         worldwide attention focuses on its policies and culture. It is the world         s most experienced democracy. It has the world s largest free market and         most powerful economy. It has assimilated people from different countries,         races, and religions. 

The United States also has many specialized skills and assets. American         higher education draws 450,000 foreign students annually. U.S. media dominate         the world market for film and television. Its communications technologies         are unrivaled. American tastes, fashions, and lifestyles influence millions         worldwide. 

U.S. diplomatic missions abroad have a long history of personal contacts         and networks of institutional relationships based on trust and credibility.       

Finally, the tradition of American voluntarism is an enormous asset.         U.S. citizens organize themselves to solve problems rather than leaving         them to government. This experience makes NGOs invaluable abroad, particularly         in former totalitarian countries.

**WHAT NEEDS TO BE DONE**

**Flexibility.** Today' s reference points for public diplomacy are         the accelerating speed of change and a kaleidoscope of events that fit         no clear pattern: the implosion of the Soviet Union, the independence         of Eastern Europe, the democratization of South Africa, the disintegration         of Yugoslavia, the Middle East peace process, and revolutionary economic         changes in China. 

In such a world, U.S. public diplomacy requires much greater flexibility.         Separate appropriations for exchanges and broadcasting, plus 17 budget         earmarks for exchange and other activities, create rigidities and give         some programs special treatment. Appropriating funds to the U.S. Agency         for International Development for transfer to USIA causes delays and inefficiencies.       

The United States must communicate quickly and effectively anywhere in         the world. America s leaders must redirect assets easily from marginal         to more effective activities and technologies. They must shift funds and         move personnel to countries in a crisis and as needs and interests change.       

      Recommendations:       
- Abolish budget earmarks and give USIA discretionary authority to           shift up to 25 percent of its funds within any fiscal year.   Appropriate democratization funds directly to each federal agency           carrying out democratization programs. 
**Training.** The increased importance of foreign publics makes media         and advocacy skills a necessity for all U.S. ambassadors and other diplomats.       
The "government-to-government" role of ambassadors has diminished. Today         heads of state converse by phone. But the importance of the ambassador         as the authoritative spokesperson for U.S. policies has never been greater.       
 Nowhere is this more apparent than in Washington, where other countries         often select ambassadors on the basis of their communications skills.         Their effectiveness in conveying their country s message has impact on         U.S. public opinion. The U.S. should do no less abroad. 
**Recommendations:**
 Public diplomacy skills should be essential for acceptance in           the Foreign Service. 
- Include public diplomacy skills in promotion precepts for all foreign           affairs agencies.     **Require the National Foreign Affairs Training Center to provide           media and advocacy skills training for most foreign service officers           and offer a mandatory course in public diplomacy for all foreign affairs           agencies.**Provide additional training in public diplomacy and media advocacy           to ambassadors and others whose positions make them spokespersons for           U.S. interests abroad.
**International Broadcasting.** The United States International             Broadcasting Act of 1994, when fully implemented, will consolidate             all non-military U.S. government radio and television broadcasting.           
The Act creates a new International Broadcasting Bureau within the             U.S. Information Agency and a bipartisan Presidentially appointed             Board of Governors to provide direction and oversight for the Voice             of America, Radio Free Europe/Radio Liberty, the Worldnet Television             Service, and Radio/TV Marti. Radio Free Asia will be established if             determined to be feasible by the Board of Governors. 
The Commission supports broadcasting consolidation. It holds promise             for substantial budget savings and increased strategic focus. 
 Many difficult questions relating to U.S. broadcasting purposes,             management, and priorities were not resolved during a legislative             process marked by turf battles and preoccupation with budget issues.
How does international broadcasting best serve the national interest?             What are the missions of the U.S. broadcasting services? What technologies             and signal delivery systems will serve U.S. interests in the 21st             century? What ought to be U.S. policy on the use of television? What             language priorities are appropriate? What is the optimum mix of broadcasting             and other public diplomacy activities? How can policymakers ensure             that broadcasting decisions are based on sound technical advice and             media research? What, if any, should be the role of surrogate broadcasting             in the post-Cold War world? 
These issues were left for consideration by a Broadcasting Board             of Governors not yet established.
**Recommendation:**
Appoint the Broadcasting Board of Governors to make hard decisions               on central issues posed by television, new technologies, changing               political and media environments, and increased competition.
**New Technologies -- Rethinking Field Services.** The Internet             and other new digital technologies offer extraordinary opportunities             for direct communication with foreign publics. Achieving their potential             will require more thought, coordination, and action. 
The possibilities are substantial. Many have been developed and explored             ad hoc by USIA s field posts.
Electronic Reference Centers can carry out many functions of existing             libraries, better and at a fraction of the cost. 
Electronic bulletin boards designed at posts can organize and share             government resources with overseas audiences and a burgeoning NGO             sector. 
Automated subscription services can route information at greater             speed to targeted audiences at a fraction of the cost of traditional             publications.
Internet discussions and two-way video conferences can supplement             or substitute for the use of visiting experts.
There are valid concerns. The importance of field officers in supplying             context and human interaction -- the last three feet -- and the information             needs of have-not countries should not be ignored. 
Nevertheless, the technology to deliver information in new ways with             cost savings is available in many countries and spreading rapidly.             Maximizing this potential is essential to the future of public diplomacy.           
**Recommendations:**
Create high-tech communication centers to provide up-to-the-minute               policy information through electronic bulletin boards, Internet               subscription services, fax-on-demand, compressed digital video,               electronic conferences, and other such services. 
- Develop and maintain an Internet presence that provides a central               reference point for U.S. government information, particularly in               foreign affairs.    **Publicize the possibilities of digital technologies. Knowledge               of the Internet is spotty, and there is limited sharing of headquarters/post               experiences**Develop Internet delivery services in addition to a gopher               or web page.
- Emphasize electronic dissemination in designing USIA products.                   **Provide general public access to the Internet as a practical               demonstration of the technology and promote the Global Information               Infrastructure.**
**Research.** Whether they are the views of the Russian electorate,             the mood on the Arab Street, or attitudes toward U.S. trade in Europe             and Japan, American policymakers need more than ever to know what             foreign publics think and why. 

Foreign opinions should not determine U.S. policy. But understanding             the implication of foreign public opinion is essential when policy             options are considered. 

USIA provides assessments of foreign public opinion and foreign media             comment to the President, Secretary of State, National Security Council,             and other senior U.S. policymakers. It provides survey data on how             publics view a broad range of issues: democratization and market reforms             in the former Soviet Union; Palestinian and Israeli attitudes on economic             and political issues; Latin American attitudes on Haiti, Cuba, and             drug policies; and the impact of U.S. radio and television broadcasting.           

 Funding for USIA's foreign public opinion research is surprisingly             low -- about $5 million per year. In real terms, it has declined during             the past decade. Yet there are many new opportunities to do opinion             polling in emerging democracies and corresponding pressures from policymakers             for more research. 

The President and Congress should assess foreign opinion research             in the larger context of the information and democratic revolutions.             Research also should be considered in terms of an appropriate balance             between foreign intelligence and open source information gathering.             The need to know what foreign publics think about U.S. policies, as             well as American culture, has greatly increased. 

**Recommendation:**
-  Significantly increase funding for public opinion research,               media studies, and program evaluation.      **Exchanges and Training.** Throughout the 20th century, exchanges             of people, ideas, and information have served U.S. interests well.             They build personal and institutional relationships. They break down             barriers, promote dialogue and learning, and enhance mutual understanding             between the United States and the people of other countries.   Exchanges and training have direct and multiplier effects that make             them among the most valuable instruments of America s foreign relations.             Today they are especially valuable in helping to develop the rule             of law and the intellectual foundations of democracy and economic             freedom in many countries.   Their value and Congressional support have led to a proliferation             of federal exchange and training programs and numerous legislative             earmarks. These raise important issues for policymakers and Congress.             The United States lacks a strategic justification for federally funded             exchanges and a policy on the right mix of exchange programs.   Some programs are duplicative. This is true in democratization and             in foreign language and area studies.  The General Accounting Office found that coordination and oversight             has been minimal, and that most agencies have not conducted systematic,             comprehensive evaluations of the effectiveness of these programs.             Legal requirements and budget earmarks create operational inefficiencies             and inhibit flexibility in responding to changing circumstances.   USIA has attempted to list all U.S. exchange and training programs.             This effort is a good first step, but a full inventory has not been             developed. By a conservative estimate in 1993, the most recent figures             available, 23 U.S. government agencies spent $1.4 billion on more             than 100 international exchange and training programs.    Major programs, in order of size, are administered by the Department             of Defense, the U.S. Agency for International Development, the U.S.             Information Agency, the Peace Corps, and the Departments of Energy             and Health and Human Services. Other agencies range from the Bureau             of the Census to the U.S. Fish and Wildlife Service.  **Recommendations:**    -  Develop a strategic justification for U.S. government exchanges.                   **Increase exchange program oversight and evaluation.**Address duplication in programs carried out by more than 23               f ederal agencies.
Advisory Commission:
     
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