PUBLI~ 

IPI~OMA(;Y 

PUBLIC DIPLOMACY FOR THE 21ST CENTURY 

Mission and Structure 

Tne 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, 

1he spread of democracy and OJleO markets, and the end of the Cold War. 

Moreover, we must meet 21st century chc:Jlenges with few« resources. 

SOl'ne 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 

l>..15i<.: 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 ...,iII 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 pubtic diplomacy's mission: winning the 

support of foreign publics to further U.S. political, economic and security interests. 

U is not about business as usual. It is about the need for change. 
Rethinking Public Diplomacy 

Restructuring proposals should meet twu tests. Do they acknowledge the centrality 

of public diplomacy in foreign affairs? 00 they ~nable missions to be pursued more 

effectively at less cost? 

In public diplomacy, ((>Structuring is happening now. Congress last yeal mandated 

fundarr,N'llal thange in international broadcasting. The Vice President's National 

Performance Review is .seeking to streamline administrative services, make better use of 

communications technolngies, and consolidate exchange and demoaatization prOl7'ams. 

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 o"t 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 Represer.tative. 

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 Sf'I'Vice of the President and a wider government and 

NCO community. 
What Needs to be Done 

o Recognize thdt the United States will be successful in foreign policy only if it 

understands, informs, and influences foreign publics. 

o Make clear that what foreign publics think and do can help and harm 

Americans - their lives, their livelihoods, their well being. 

o Keep the U.S. Information Agency an independent public dipiomacy agency 

under the foreign policy direction of the President and the Secretary of State. 

Q Encourage restructuring through wKJespread interagency assignments, 

r~igned public diplomacy trainin& "real time" public affairs coordination, 

and other approaches tilat put USIA's expertise at the service of a wider 

government and NGO community. 

o Expand use of the Internet, other digital information technologies, and 

television at U.S. missions abroad. 

o Increase foreign public opinion pollin& media studies, and program 

evaluation. 

o Inaease evaluation of exchanges; address duplication in programs now 

carried out by more than 23 federal agencies. 

o Make the hard decisions in international broadcasting on issues posed by 

television, new technologies, and changing media environments. 
DEI'INING PUBLIC DIPLOMACY 

Public dipklmac:y is the communication 01 

U.s. inllftSb n ideals beyond aowmments 

10 inp pubUa. . 

People all film the world now have mere 

power' 10 shape events n Ike actions 01 

pernments than at any time in history, 

making public diplomacy as essential 10 U.S. 

il'lb!restsasdiplomacy between ~ts. 

Gove1unents inaeasingly understand OW 

publics have.-ear power 10 influence events 

and decisions. They realize that communication with foreign publja often has much more 

irnlMCf Chan the exchanp d diplom~ic notes. 

Public dip~ has not replaced 

pwennlellt..fo.tOYemmentdtplomq. SuI 

traditional diplomacy has been changed 

decisively by the communications revolution. 

Today, aowmments must win the support 

01 people in other countries, as weft as leaders, 

if policies are 10 sua::eed. They mUll rope 

with mnstituent pre5SU'eS if home and wirh 

the consequenc:es of public presswl!S on ocher 

penvnents. They must mobilize c::wIitions 

and supportfo- policies in multi\.m!ral arpnialiens. Because wNf: rhey say at home will 

be instantlyreported atroad, policy elq)Ian. 

tions must beconsl5lenl and penuasIve to 

domestic and foreign ~ alike. 

Communication with foreign publics goes 

well beyond CNN telecasts. Publicdiplomacy 

I, not just .. aa:identaI ~ of what is 

reported in the commercial media. 

Nor is It public atfain aimed at the 

AmeriCM people. US. poUcym*" should 

and do promote their policies In the United 

States. PUblic diplomacy, however, is 

directed at publics abroad. 

Essential ~ements of U.S. Plo-bllc diplomacy.eo: 

o Press and public idfaIrs activities 01 the 

l~ancI 1",,10 poIicymakers, 

o InIonnationaI and cultural actfyjtles at 

U. S. ml.IQfII abroad, 

o ll'llemaflona! exc::hanIe rI penons, 

o U.s. radloancl tetevlsIon bfoadcastins, 

o GowmmenI-Iunded activities rI nonpwnmentaI orpnIZIIIions (NGOs), and 

o F ..... publlcopl.Ion_. 

It is public diplomacy when President 

Clinlon's stllementl qJpOSing Iraqi troop 

moomnenIs.e arried by media worldwide, 

whEn the US. ambassador in Moscow appR'S 

on Russian television, when a Fulbritfrt 

scholar leaches law in Poland and the Voice 01 

America broadcasts 10 China. 

Other countries en .. ectmsivety in 

public diplomacy: when South Africa's 

President gives a newsmaIcer interview on 

AmeriQR television, when the British Foreip 

Seaecary meets with the editorial board 01 .. American daily, when the Japanese aowmment creates ., exchange foundation to 

support trade and pol icy pis. 

V ALlIE FOR TAXPAYEitS 

Public diplomacy is more than Just public 

relations or ptling illCJ'Od press. It is a 

po!itical .lnd economic necessity. 

Public diplomacy will help determine: 

o Whether Russia and DIher emer&ing 

democracies ~op 5IilbIe gowmments 

that iI'e better nding partners, better 

neW-bars, and less inclined 10 Wil and 

h!rTorism. 

o Whether U.s. Interests in such rouble 

spoh as Iraq, Iran, Bosnia.. North Korea 

and the Middle Em iII'e undtntood by 

allies and ad\oersaries. 

o Whether market economies take root in 

enrreprenewial QlItwes that will expand 

U.S. exporrs, aeate American jobs, and 

lead to better inve!hnent climales (or 

AmeriCM business. 

o Whether ChiRil, f~ becominslhre 

worid's largest economy, will prO"ie 10 be 

a durable trading partner and 

responsibleweat power. 

These.e not just theoretical concepts. 

Rule of law P'OIVams in Central AsIa 

inaease respect for contract law, imprO"ie 

opportunilies for U.S. business, and CTeiIIe 

jobs for Amsican workers. 

USIA's polls showing widespread 

senliment by the Russi .. people to end the 

conflid in Chechnya lIret'8lhened the hand 01 

American diplomats in YOi.:inB CXJnCe hS 10 the 

Russian gowmment. 

Prior 10 Ihe Gulf War, USIA's pglis n 

reports from Public AffaIrs Offlcers showed 

dillerences omona AI" publla In _ """" 
of Sadaam Hussein. This information gave the 

United States added leverage in seeking 

support from Anb governments for the allied 

coalition. 

NEW 1lEALrm:s 

CiobMzed CoIwnunications We live in 

a world of information abundance, instant 

communication, a' j porous borders. The 

Information Age ha:.. ,'eplaced the Industrial 

"-,,. 

Television is the prim¥y source of news 

and information in most of the world. Satellite 

tetevision is within reach of lMf'Iy even in d~opingcounlries. 

Oigital telecommunications, fiber optics, 

and high capaci", satellite systems are transforming the speed and scope of communication. The Intemel is becoming the backbone of 

the Global Information InfrastructU'e. The 

results.: 

o Increasing quantity, diversity, and speed 

of information. 

o Increasing inh!l'connectivity, with control 

shifting from a few producers to many 

...... o Increasing efficiencies and decreasing per 

message costs. 

o Multiple. specialized publics replacing 

l-se, easily defir"Ed national audiences. 

Democratization. From 191" to 1994 

more than 40 countries made thE' Iransilion to 

some form of democracy, an unprecedented 

~on in lhe power of people 10 influence 

governments. 

This traJ1Sfer of power also brings Ion .. 

Slandingethnic, :wion:~!, religiOlb, and 

factional dJ5pUIes to the surface. 

IdNs and p-adical information.e .. itally 

importanC 10 emrrging detnocrades IhaIladt 

democratic and enlrcpteneUtial traditions. 

ldNs.e pjyotaI as well in resion' divided by 

conflict. 

Free""""" Today there.e fewer 

command eoonomies. People have concludecl 

from experlenee thai m.tcet economies are the 

moq effective way to ~ :\Ild expand 

pel'ioOnaloppOO\lnity. IU ldeol~QI rivalries 

fade, trade and Investment competition lie at 

the center d inlematklnal poIlllcs. 

NoflolOWflnen&ll 0rpMuti0nL Int«. 

natIonIl relations we n'IQI'e i.mnedlate Md 

pertONIl - ~ continuous I"",,actfon amona 

people across borders. There h a WOWing !lOll--

governmental sector in business, education, 

humanitarian, leisure, and voluntary adivilies d 

all kinds. 

• •• 

The con~ of these realities for 

foreign policy and public diplomacy are p-ofound. 

o Government communication faces more 

competition. 

o Instant coanmunication sharply reduces 

delibP.ralion lime for policymakers. 

o Shortwa\.'C radio audiences IIededining. 

o MQre NGOs cwry out exchange and 

democratization activities previously the 

pwvlew of government; foreign affairs 

agencies are reappraising their roles. 

o USIA's expertise arod programs serve many 

more U.5. government departments - not 

jUSIIhe ~enl of State. 

AMERICA'S STRENG11ISFOR 

PUBLIC DIPLOMACY 

AmeriQ's strengths, drawn !Tom 200 years of 

history, are uniquely useful fot poblicdiplomac:y. 

The United Slates is the only remaining superpower; worldwide attention focuses on its 

poIl~ and culture. It Is the WO'ld's most 

eo:palenced demoaacy. It has the WOI'ld's 

largest free market and most powerful economy. 

II has ~milated people from different countries, 

raa:s, and religions. 

The UnlteJ States also has many specialized 

skills and assets. American higher education 

draWJ 4511.000 foreign students annually. U.S. 

media dominate the world marbt f .. f' film xxi 

televi!io:l. Its commooications technologies are 

UlVtnled. American tastes. fashions, and 

liftstyles Influence millions worldwide. 

U.S. rtiplomalic missions abroad have a long 

history of penonal contac:ts and networks of 

institutional relationships based on trust and 

aedibllity. 

Finally, the tradition of American 

voluntarism is an enc'f1~S asset. U.S. citizens 

organize IhE:mtelves to sotve problems rather 

than lcaving them to JO'Vt'I'flfnent. This experience makes NCOs Invaluable abroad, partfculilly In former totalitarian counb~es. 

WHAT NElWSTOIlEDONE 

_fly. Todoy'._ ...... far 

public; dlpIomocy ... the ocaIer.Una $flO«! 01 
dw1se iIInd ill kaleidoscope d events d\;r,t fit no 

clmr p;r,ttem: the implosion of the Sovid 

Union, !he independencedEastem Europe, 

the demoailotiZ4ltion dSouth Atria. the 

disinllegr;r,tion ofYuplavi;r" the Middle EiIo5t 

peiIC2 process, and revolutionary economio: 

d1anges in China. 

In such ill world, U.s. public diplomi!ocy 

requires much weater f1ecibility. Separillte 

appropriations for exchanges and brOildc:;rstitl& 

plus 17 budget ea'marb for exchange and 

other ;r,aivities, create rigidities and give some programs special treatmect. Appropriating 

funds to the U.S. Agency for Intelnational 

Development for transfer to USIA causes 

delays and inefflciMlCies. 

The United Slates must communicate 

quickly and effeai\ody anywhere in the world. 

America's leaders must redirect assets NSiIy 

from marginalia more effective activities and 

tedmologics. They must shift funds and move 

personnella oountries in a aisis and iI!I needs 

and interests mange. 

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Tralnin&. The increased importance! of 

foreign publics makes media and advocacy 

skills a necessity for all U.s. ambassdors i!.nd 

other diplomats. 

The -gcwemment-to-gOYernment" rule of 

ambassadon hasdimil'lished. Today heads of 

state convene by phone. But the Importance 

of the ambassador as the authoritative sp0kes,-

person for U.s. policies has never been 

........ Nowhere is this more apparent than in 

Washington, where other coun~ies riten 

sell!d ambassadors on the basis of their 

communications skills. Their eft'ectivenesJ in 

conwvfns their country's r,leSsa&e has IrnpacI 

on U.S. public: opinion. The U.s. snoulddo 

no ~·s abroad. 

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a In<IfM IWb/it 41'DIIIICY" ill 

.-proIIIOIioII~Ior"""" 

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Intel'Mtionalll'OildcMtlng. The Uniled 

States Intemation;r,l Broadcasting Act d 1994, 

when fully implemented, will consolidate all 

notWf'Iiliuary U.S. SOVE!I'nment radir. and 

television broadcastin" 

The Act afltes a new Intemati.ll\ilol 

!roadasting B,reau within the US. Information Agencv and ill bipartiSilof'l Presidef'lt;alty 

appoi nted BoiIord d Governors 10 provide 

direction and oversight for Che Voice d 

America. Radio Free Europe(Ridio liberty, the 

WorldrtetTelevision Service, and RaddIV 

Marti. Radio Free Asiill will beestahlished if 

determined to be feasible by the Board of 

""""'''''''' 

The Commission supports broadcasting 

consolidation. It holds promise for substantial 

budget savinss and inaNSE!' j strategic focus. 

Many difficult questions relating 10 US. 

broadCOlsting PU-p0se5, managemenl, and 

priorities were not resolved during a legislative 

process marked by turf battlc!s and preoccupation with budget Issues. 

How does i;)tematlona.l broadcasting best serve the n;r,tiona! inm-estl What ate the 

missions of the U.s. broadcasting servicesl 

What mchr.ologics and signal delivety systems 

will seNe U.S. inlCreSts in lhe21s1c:er'lMyf 

Wha.t ought 10 be U.s. ~iCY on the use of 

televisionl Wh;r,t io.nguage priorities ate 

appropriatel _nsond_ WhaI: is the optimum mix of publicd;plomacy 

activitiesf How can poIicymabn ensure !hat 

bm."'1k:astins dtdslons ate based on sound 

tech ... lcal advice and medi~ rcsNrChl 

WhaI, if any, should be the role of "NfOIIIe 

broadcasCIns" in the post.CoId W. workIl 

These i!'SUeS were left for consIdlS'ation by 

• BroadcastfnS BOiI'd of ea..e.lOB not yet --. 
New T echnolosies - IdhIM:ins field 

Services. The Internet and other new digital 

technologies offer extrarrdi I'Iafy opportunities 

for direct communication with foreign publics. 

Achieving their poIential will require more thought, coordination, and accion. 

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 me cost. 

Electronic bulletin boards designed at posts 

can organize and share government resources with overseas audiences and a burgeoning 

NCOsector'. 

AlAOmaIed subscription services can route 

information at peater ;>eed to targeted 

audiences at a fraction of me cost of traditional 

publications. 

Intanet discussions and ~ayvideu 

conferences can supplement or substitute for 

the use ofvisiting experts. 

There are valid Concc.'ns. 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 lechnologytodeliver 

information in new ways with cost savings is 

avail""'e in many countries and spreading 

rapidly. Maximizing this potential is essenlial 

to the future of public diplomacy. 

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~EqefIeJiCf'L 

a o.Mop Inf«ntttdeli",), ~in 

Mldltion tool JOpher« web~. 

IJ _USIA_ EmpItasJzp electronic diswmiMtion in 

o I"ITwhk tJ«t«aI pvbIk KCftS ro 1M 

I,.",., .. .I prllC:fial df!momtrarion 01 

tAe_ond_tAeGIDlMI 

Infor"..tionlnlr~ 

Rnarch. Whether they ... e the views of 

the Russian electorate, the mood on the "Arab 

Street," or attitudes towird U.s. trade in E...-ope 

and Jap¥!, American poIicymakers need more 

than fNer to know whaI foreign publics thimc and 

why. 

Foreign opinions should not determine 

U.S. policy. But understanding the impfications 

of foreign public opinion is essential when 

pol icy options are oonsidered. 

USIA provides assessmenb of foreign 

public opinion and foreign media comment to 

the President Seaetary of Slate, National 

Security Council, and other senior U.S. pol icymakers. It provides survey data on now 

publiCi view a broad range of issues: democ· 

ratization and market reforms in the former 

Soviet Union; Palestinian and Israeli attitudes 

on economic and political issues; latin Ameri· can attitudes on Haiti. Cuba, and drug policies; 

and the impact of U.s. radlo ... and television 

broadcasting. 

Funding for USIA's foreign public opinion 

research is swprisingly low - about $5 million 

per year. In real terms, il has declined during 

the past decade. Yet there are many new 

opportunities to do opinion polling in emerging 

democracies and corresponding pressures tom 

poIlcymakers for morercsearch. 

The President and Conwess should assess 

foreign opinion research in the laoger context of 

the inforl'l'lition and democratic revolutions. 

Research also should be considered In terms of 

an apprcIIWiaIe balance between forei", 

InteUisence and open SOI.I'te Inrormatlon 

gathering. The need to know what forelan 

publics think about U.S. policies. as wellu 

American OJlture. has 8J'Ntiy Increased. 
~ •• lmUfion: 

Exchanps and TraiN... Tlv"c. •. :ghoutlhe 

20th c::enh.Iy, ex.chanses d people, ideas, and 

inforfNl:ion have served U.S. interests well. 

They build pe'SON;I and instiMiONI relat~ 

ships. They br~ down ~ien, prorT1QCe 

dialosue and learning. and enhance mutual 

understanding between the United states and 

the ~e of other countries. 

bchanses and hining have direct and 

multipli8' effucts that mike them among the 

most wllabIe instruments c:I Amcfica's foreign 

~ions. Today they i1fe especially valuabie in 

helping 10 develop the rule of law and the 

intellectual foundations of democracy and 

economic keedom in many countries. 

Their wive and Congressional support 

have led to a proliferation 01 federal exchange 

and training P'OIJams and numerous ~sL1tive 

ea"n\ifb. Thc5e raise import.lllt issues for 

polic:ymakers and Congress. 

The United States lacks a strategic justification for federally funded exchange" and a policy on the right mix of exchange programs. 

Some p'osrams at! duplicative. This is 

true in dcmoaatization and in forct&n Ianguase and area studies. 

The General Accounting Office found Ihat 

coordination and oversisht has been minimal, 

and Ihat most agencies -..ave not conduc:ted 

systematic, comp'ehefisive evaluations of the 

effectiveness of these prOlJams'- lepl 

requirements and buc:fBet earmarks aeate 

operational inefficiencies and inhibit flexibility 

in responding tochmgjngcirwmstances. 

USIA has attempted to list all U.S. ex- change and t'ainingprosrams. This effort is a 

Fad first step, but a full inventory has not 

been devefoped. Bya conservative estimate in 

1993, the most recent filPJl'es available, 23 

U.S. government agencies spent $1.4 billion 

on more than , 00 inttmational excbanse and 

trainingPl'owams. 

Major P'0IJam5, in orde- 01 size, are administered by the Department of Defense, 

the U.S. Agency for International lJeyeIopmem, the U.S. Information Agency, the Peace 

Corps, and the Departments of Energy and 

Health and Human Services. Other agencies 

fingC from the Bureau of the Census to the 

U.S. Fish and WildlifcScrvice. 

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