The DTV transition will enable the government to allocate valuable spectrum from analog broadcast to public safety and other purposes. Further, digital transmission of television signals provides several advantages compared to analog transmission, such as enabling better quality picture and sound reception as well as using the radiofrequency spectrum more efficiently than analog transmission. With traditional analog technology, pictures and sounds are converted into “waveform” electrical signals for transmission through the radiofrequency spectrum, while digital technology converts these pictures and sounds into a stream of digits consisting of zeros and ones for transmission. The Digital Television Transition and Public Safety Act of 2005 addresses the responsibilities of two federal agencies—FCC and NTIA—related to the DTV transition. The act directs FCC to require full-power television stations to cease analog broadcasting on February 17, 2009. While full- power television stations are required to terminate their analog signals, this deadline does not apply to translator television stations. Translator stations receive a signal from a television station and simultaneously retransmit the signal on another channel. These stations are intended to provide service to areas where direct reception of full-service broadcast stations is unsatisfactory because of distance or terrain obstructions, such as in mountainous regions. As we have previously reported, households with analog televisions that rely solely on over-the-air television signals received through a rooftop antenna or indoor antenna must take action to be able to view digital broadcast signals after the termination of analog broadcasts. Options available to these households include (1) purchasing a digital television set that includes a tuner capable of receiving, processing, and displaying a digital signal; (2) purchasing a digital-to-analog converter box, which converts the digital broadcast signals to analog so they can be viewed on an existing analog set; or (3) subscribing to a cable, satellite, or other service to eliminate the need to acquire a digital-to-analog converter box. The act also directed NTIA to establish a $1.5 billion subsidy program through which households can obtain coupons toward the purchase of digital-to-analog converter boxes. The last day for consumers to request coupons is March 31, 2009, and coupons will be redeemed through July 9, 2009. As required by law, all coupons expire 90 days after issuance. Consumers can redeem their coupons at participating retailers (both “brick and mortar” and online) for eligible converter boxes. To help inform consumers about the transition, in February 2007, eight private sector organizations launched the Digital Television Transition Coalition. These eight organizations are the Association for Maximum Service Television, Association of Public Television Stations, Consumer Electronics Association, Consumer Electronic Retailers Coalition, Leadership Conference on Civil Rights, LG Electronics, National Association of Broadcasters, and the National Cable and Telecommunications Association. These founding organizations comprise the Coalition’s steering committee and make decisions on behalf of the Coalition. To better represent the interests of at risk or underserved populations—such as the elderly—AARP later joined the steering committee. The Coalition’s mission is to ensure that no consumer is left without broadcast television due to a lack of information about the transition. Currently, the Coalition has over 160 member organizations comprised of business, trade and industry groups, as well as FCC. Recent surveys conducted by industry trade associations indicate that consumer awareness of the digital transition is low. The Association for Public Television Stations reported in January 2007 that 61 percent of participants surveyed had “no idea” that the transition was taking place. Another study conducted by the National Association of Broadcasters focused on households that primarily receive their analog television signals over-the-air—and will therefore be most affected by the transition—and reported that 57 percent of those surveyed were not aware of the transition. Both surveys found that almost all people with some awareness of the transition had limited awareness of the date the transition will take place. FCC and NTIA, in conjunction with other stakeholders, have taken steps to facilitate the DTV transition. FCC has primary responsibility to regulate the television broadcast industry for the federal government and has taken a number of actions regarding the transition. For example, FCC has proposed and set deadlines to upgrade station equipment to send digital signals. In addition, FCC has conducted periodic reviews to report on transition progress and held a workshop for interested parties to discuss transition challenges and issues. NTIA has statutory responsibility for the converter box subsidy program, and it has issued a contract in preparation for that program’s development. Private sector industries, including broadcasters, manufacturers, and retailers have also begun preparing for the transition. Despite public-private sector interaction designed to help facilitate the transition, we found that no comprehensive plan exists for the DTV transition. Among other things, a comprehensive plan can detail milestones and key goals, which provide meaningful guidance for assigning and coordinating responsibilities and deadlines and measuring progress. Such planning also includes assessing, managing, and mitigating risks, which can help organizations to identify potential problems before they occur and target limited resources. We have previously reported on the benefits of managing risks, including assisting other organizations involved in high stakes efforts similar to the DTV transition. For example, we credited one federal agency’s success in weathering the potential for critical computer system failures during the Year 2000 Computer Conversion (Y2K), in part, due to reducing risks to facilities, systems, programs, and services during the critical rollover period. FCC and NTIA, along with industry and other private stakeholders, have made progress in educating consumers about the DTV transition. For example, FCC and NTIA have developed informational materials on the transition and begun outreaching directly to consumer and stakeholder groups. Both agencies are also involved with the Digital Television Transition Coalition, a group representing over 160 business, trade, grass roots, and other organizations whose purpose is to provide consumers with information about the transition. Private industry stakeholders are voluntarily taking the lead on planning public service announcements, developing Web sites, and garnering media coverage on the transition. While federal and private stakeholders have taken these initial steps, the initiative is still largely in the planning stages and widespread efforts have yet to be implemented. Further, because of the number of public and private sector entities involved in consumer education efforts for the transition and the timing, coordination and content of the messages they produce, consumers might become confused over what steps, if any, are necessary to avoid disruptions to their television viewing after the transition date. To identify the difficulties and challenges to consumer education and outreach, we convened an expert panel to discuss consumer education issues applicable to the DTV transition, including potential challenges that may obstruct efforts and the key planning components of a consumer education campaign that will help to overcome some of those challenges. Expert panel members as well as other private and public sector officials highlighted several challenges, as follows: Prioritizing limited resources. With limited time and financial resources, it is likely to be a challenge for stakeholders to determine how best to allocate those resources within the campaign—for example, whether to target a smaller audience over a set period of time, versus targeting a broader audience over a shorter period of time. Educating consumers who do not necessarily need to take action. Many of the outreach efforts will be focused on educating consumers on what to do to keep their television sets from going dark after the termination of analog broadcasts. However, a large proportion of U.S. households will not need to do anything—for example, because they have cable or satellite television service that will enable their analog set to continue to display programming. Because many messages focus on the actions that households that rely on over-the-air analog broadcasting need to take, consumers unaffected by the transition may become confused and purchase equipment they do not need. In our past work looking at a similar digital transition in Germany, we have described this potential confusion to cable and satellite households as a challenge of educating consumers about the transition. Reaching underserved populations. Conveying the message to underserved populations—for example, senior citizens, disabled, those residing in rural areas, or non-English speaking households will provide an added challenge. For example, many groups outreaching to consumers about the transition are doing so on Web sites, which may not be available to people who lack Internet access or are less technically savvy. Another challenge is providing information in a wide variety of formats, such as in different languages for non-English speaking consumers and in text, video, voice, and Braille for the disabled. Overall, a challenge of consumer education is that those households in need of taking action may be the least likely to be aware of the transition. Aligning stakeholders. Panel members and other industry representatives also noted the challenge of aligning stakeholders—some who are natural competitors—to work together. In our past work, we have reported that federal agencies engaged in collaborative efforts—such as the transition— need to create the means to monitor and evaluate their efforts to enable them to identify areas for improvement. Reporting on these activities can help key decision makers within the agencies, as well as clients and stakeholders, to obtain feedback for improving both policy and operational effectiveness. In addition to highlighting potential challenges, the expert panelists identified the following key practices as important to planning a consumer education campaign that will motivate consumers to take the steps needed to avoid television viewing disruptions, as well as help to alleviate identified challenges along the way: While still too early to evaluate the Coalition’s consumer education efforts, the Coalition has employed strategies consistent with the key practices identified by the expert panel. For example, the Coalition has identified stakeholders and conducted focus groups to test and refine its consumer messages. However, at the time of our report, it remains unclear whether public-private sector interaction can ensure a consistent message to prevent confusion or unnecessary purchases on the part of consumers. Moreover, the absence of comprehensive planning to assess and mitigate risks associated with the transition, including outreach efforts, may increase the potential for at risk populations not adequately preparing for the transition.