BACKGROUNDER No. 2659 | MARCH 5, 2012

Why America Has Trouble Reaching : VOA’s Persian News Network in Dire Need of Reform Helle C. Dale

Abstract eeping U.S. international broad- The regime that controls Iran is the Kcasting a priority in an age of Talking Points world’s leading sponsor of terrorism, budget constraints is a challenging the world’s fourth-largest oil producer, task. Topping the list of countries ■■ Keeping U.S. international and close to acquiring a nuclear to which to expand communica- broadcasting a priority in an age weapon. Controlled by this regime tion, according to of budget constraints is a chal- are 74 million Iranians, 60 percent of Director David Ensor, are four clear lenging task. Broadcasting to Iran which are under age 30, multitudes targets: Pakistan, North Korea, presents a particular challenge. of whom reject the fanatic theocracy China, and, not least, Iran. Iran rep- ■■ The leading sponsor of global that tries to separate them from resents a unique challenge for the terrorism and an aspiring nuclear outside ideas. Millions of Iranians Broadcasting Board of Governors power, Iran has 74 million people, 60 percent of whom are under hunger not only for news, but for (BBG), the independent government age 30—many of which are democracy—as evidenced by the Green agency in charge of the U.S. govern- opposed to the regime in Tehran Movement protests of 2009. For ment’s non-military international and hunger for news of the out- the U.S. government’s international broadcasting and communication side world. broadcasting complex, Iran is a assets. ■■ Tragically, America’s principal place where a good communication The stakes are high. Iran is the instrument for communicating strategy is a necessity; it is also a leading sponsor of global terror- with Iranians, Voice of America’s place of great opportunity. Tragically, ism, an aspiring nuclear power, a Persian News Network (PNN), is America’s principal instrument, Voice threat to Middle Eastern stability, not up to the task. of America’s Persian News Network and the world’s fourth-largest oil ■■ PNN is riddled with problems— (PNN), has simply not been up to the producer. Iran is a nation of 74 mil- inadequate language proficiency task. lion people, 60 percent of which are among staff members; poor under age 30. Many in the under-30 morale; focus on Internet com- cohort are thoroughly fed up with munications, which reach far life under a fanatic theocracy, and fewer Iranians than do TV and This paper, in its entirety, can be found at radio; and anti-American and pro- http://report.heritage.org/bg2659 hunger for news of the outside world. Tehran reporting. Produced by the Douglas and Sarah Allison For the U.S. government’s interna- ■■ Center for Foreign Policy Studies tional broadcasting complex and It is incumbent on the Broadcast- ing Board of Governors and the The Heritage Foundation other Western broadcasters, Iran is 214 Massachusetts Avenue, NE leadership of Voice of America Washington, DC 20002–4999 a place where a good communica- to implement reforms that will (202) 546-4400 | heritage.org tion strategy is a necessity; it is also a improve performance and morale Nothing written here is to be construed as necessarily place of great opportunity. Tragically, at PNN. reflecting the views of The Heritage Foundation or as an attempt to aid or hinder the passage of any bill America’s principal instrument, before Congress. Voice of America’s (VOA) Persian BACKGROUNDER | NO. 2659 MARCH 5, 2012

News Network (PNN) is simply not challenging—and dangerous—foreign of problems along with it, includ- up to the task. PNN is riddled with policy issues in the world. ing questions of program mix and problems that prevent the service quality and a lingering atmosphere from being an effective tool of pub- How the U.S. Got Here of discontent among employees. lic diplomacy. Necessary steps to Voice of America first began radio Ameliorating them will be a neces- improve U.S. broadcasting to the broadcasts to Iran in the early 1940s. sary step in the consolidation of Iranian people include: This program, originally called Farsi VOA’s gains in an important broad- Service, functioned intermittently casting area,” noted the report.3 ■■ Thorough vetting of PNN person- until 1979, when the Iranian hostage- Two years later, many of these nel and management hired during taking of U.S. diplomats and capture problems persist. PNN continues the expansion period of 2005 to of the U.S. embassy placed bilateral to be a workplace where contrac- 2011 to ensure staff professional- relations on a hostile footing. Since tors complain about unequal treat- ism and fluency in Farsi; 1979, U.S. broadcasting to Iran has ment, human resource procedures been on the air continuously in some fail the test of transparency (even ■■ New rules governing contract form or another. In 2001, the service as articulated in President Barack employees at PNN to ensure equi- was renamed Persian Service, and in Obama’s January 21, 2009, memo- table treatment in order to raise 2007, VOA renamed it again—as the randum on “Transparency and overall employee morale; current Persian News Network—and Open Government”), and potential established it as a round-the-clock whistle-blowers are terrified of air- ■■ Creation of a board of advisors news network,1 making PNN the first ing complaints for fear of manage- drawn from Iran’s exile commu- network of its kind in VOA. As part ment reprisals. In 2010, a new BBG nity, with the purpose of monitor- of VOA, PNN is under the auspices appointed by President Obama cre- ing PNN broadcasts and providing of the BBG. PNN is thus part of a ated a committee led by BBG mem- feedback on program content; government agency that is entirely ber Enders Wimbush to investigate supported by taxpayer dollars, run- the root of the problems at PNN. ■■ Routine congressional oversight ning on an annual budget of over Complaints about the network have hearings of PNN to air questions $20 million.2 This amount reflects been flooding Capitol Hill from the about programming and manage- several years of rapid growth. From a Iranian exile community for several ment; and staff of 30 and one hour of program- years now. One such compliant was ming a day in 2007, PNN went to 83 that the executive leadership of the ■■ PNN editors and producers must full-time employees, 120 contractors, service neither spoke nor under- use U.S. taxpayer resources to and six hours of original television stood Farsi and did not have any provide programming that is programming a day (and one hour of understanding of Iranian politics. anchored in American values, radio) two years later. PNN currently In March of last year, a letter from aligned with U.S. national inter- has about 140 full-time employees, Representative Trent Franks (R–AZ) ests, and of the highest profes- more than 60 contract employees, to President Obama (co-signed by 69 sional quality. and offers 24 hours of TV and radio other Representatives) complained programming. about the network’s lack of over- Fixing PNN ought to be a prior- PNN’s rapid expansion has been sight, staffing, mission, and content. ity for the Administration and the a major contributing factor to the It “may have harmed the plight of Congress. Taking these steps now problems that beset the network, those seeking human rights, rather as part of a comprehensive strategy concluded a report of the Office of than helped it,” Franks wrote. As a for dealing with Tehran is essen- the Inspector General (OIG) in 2009. consequence, VOA removed the net- tial for addressing one of the most “Rapid growth brought a number work’s director, Alex Belida, in May

1. U.S. State Department and BBG Office of Inspector General, “Report of Inspection: Voice of America’s Persian News Network,” Report No. ISP-IB-09-27, March 2009, p. 1, at http://oig.state.gov/documents/organization/126688.pdf (February 6, 2012). 2. Mehdi Khalaji, “Waste of Dollars: Persian Broadcasting Service in Its Present Form,” Iranian.com, December 13, 2011, at http://www.iranian.com/main/2011/ dec/waste-dollars. 3. U.S. State Department and BBG Office of Inspector General, “Report of Inspection,” p. 1.

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2011. A new director, Ramin Asmus, Iran Broadcaster (IRIB), a huge gov- of America’s mission, which includes a Persian speaker, was brought ernment corporation that controls explaining and reflecting American over from the State Department the country’s radio and television values and culture as well as U.S. in January 2011. In May 2011, the broadcasts. policy. This is important: U.S. inter- leadership of Voice of America Front and center of the U.S. national broadcasting is a funda- announced changes at PNN stream- government’s attempt to reach the mental part of the U.S. foreign policy lining the production process.4 Iranian people with independent and public diplomacy tool kit, and These changes have not been suffi- credible news about the world and has to encompass information about cient. In an unprecedented statement information about U.S. policy, is the American society, culture, values and, released before Christmas 2011, BBG Persian News Network, the U.S. gov- not least, policies and point of view. member Victor Ashe detailed persis- ernment’s only platform for reach- In the absence of this dimension, edi- tent problems at VOA and PNN.5 ing an Iranian audience directly. torial direction and focus is only too The United States has not had an easily lost. Where the U.S. Is Today embassy in Tehran for more than 35 Since its inception as a 24-hour Reaching the Iranian people years, making VOA the official voice network in 2007, PNN has been at is not easy. The regime of Iranian of the United States in Iran. (The the center of controversy. PNN is President Mahmoud Ahmadinejad U.S. government also funds Radio clearly a strategic asset for the U.S. has earned its reputation as one of Farda, which broadcasts 24-hour government; yet bad management, the world’s most repressive, and is local Iranian news to Iran. Radio controversial programming and clearly aware of the danger to its Farda is a part of Radio Free Europe/ insufficient congressional oversight power presented by the informa- Radio Liberty, which is a grantee have made it one of the U.S. interna- tion revolution. It ranks as one of organization.) tional broadcasting complex’s most the world’s most adept at censoring Thus PNN is extraordinarily troubled organizations. Personnel the Internet and at scrambling radio important to, and receives a great morale is extremely low. At the same and satellite television transmis- deal of attention within, the U.S. time, Iranians both inside and out- sions. The protests that followed international broadcasting complex. side Iran follow every move of PNN the flawed presidential election of Yet, PNN’s mission has not necessari- with intense interest, placing it at the June 12, 2009, spurred the Iranian ly been clear—even to the people who center of much gossip and conspir- government to slow down Internet work there. Is it a news organization? acy theories. Iranian websites with speed at critical times. An increas- An asset to U.S. foreign policy? The access to leaks from sources within ing number of Iranian bloggers have answer has to be that it is both, yet PNN—one of the many problems been threatened, arrested, tortured, this hybrid status sits awkwardly that need to be addressed—relish or kept in solitary confinement, and with many PNN employees (as it does reporting on gossip and scandals. at least one has died in prison.6 As with many other VOA staffers). Until Iranian opposition leaders in exile the Middle East uprisings toppled amended by a new management team follow its work with intense inter- regime after regime in 2011, Iran in 2011, PNN’s mission statement est. When asked about the most stepped up its jamming of the BBC, asserted that the network’s only duty important thing the U.S. government Voice of America, and other Western was to report the news. Today, the could do to support political change networks with Persian-language mission statement remains focused in Iran, Amir Abbas Fakhravar, an news channels.7 At the same time on reporting the news, but a refer- exiled Iranian student leader, former Iran has launched its own media ence to the VOA charter has been political prisoner, and secretary gen- offensive with its Islamic Republic of added, stating that PNN shares Voice eral of the Confederation of Iranian

4. Helle Dale, “VOA Broadcasting to Iran: A Long-Overdue Housecleaning,” Heritage Foundation, The Foundry blog, May 5, 2011, at http://blog.heritage.org/2011/05/05/voa-broadcasting-to-iran-a-long-overdue-housecleaning/. 5. Victor Ashe, statement to the Broadcasting Board of Governors, December 20, 2011. 6. Freedom House, “Freedom on the Net 2011,” pp. 187–194, at http://www.freedomhouse.org/report/freedom-net/freedom-net-2011 (February 10, 2012). 7. Paul Sonne and Farnaz Fassihi, “In Skies Over Iran, a Battle for Control of Satellite TV,” The Wall Street Journal, December 27, 2011, at http://online.wsj.com/ article_email/SB100014240529702035013045770 88380199787036-lMyQjAxMTAxMDIwNzEyNDcyWj.html#ixzz1hlyllsnz (February 6, 2012).

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Students, stated that two things were so, which occasionally shows up in PNN contract employees. They did critical: (1) tougher oil sanctions and the programming.9 What is more, it not understand why federal employ- (2) reform of PNN.8 is clear that there are well-informed ees were offered free flu shots while pro-regime individuals currently they were not, even though they were Management Structure working at PNN and providing sensi- all working in the same office and PNN is overseen by a direc- tive internal information to Iranian presumably had the same opportuni- tor, currently Ramin Asgard, who authorities. This has compromised ty to infect each other. As a matter of reports to the director of VOA, PNN’s ability to serve its mission. symbolism, the issue had great emo- currently David Ensor, as well as Furthermore, Iranian employees tional impact. Following BBG inter- to VOA’s executive editor and the often cite a low level of job satisfac- vention, free flu shots were offered to director for language programming. tion due to hiring and retaining all staffers at PNN. They all report to the director of the practices based on family or social Suspicions of favoritism also run International Broadcasting Bureau affiliation rather than professional rampant. The belief that network (IBB), headed by Richard Lobo, and qualifications. stars are treated with kid gloves is a the BBG itself. The combination of full-time cause of deep resentment among the Below the position of PNN direc- employees and contract staff has cre- rank and file. A very recent incident, tor is a level of middle management, ated a persistent atmosphere of dis- taking place on November 25, 2011, and at production level, individual content and sense of unfairness. The is a case in point, of abusive behavior television shows have an executive Office of the Inspector General found by a star of one of PNN’s most suc- producer working with a managing that there is no difference between cessful shows. The talent in question editor. A persistent problem is that the type of work done by contract had a reputation for abusiveness, and those in positions of authority at employees, also known as “purchase verbally attacked a female con- PNN include very few Farsi speakers. order vendors” and that done by tract employee with a rant replete At the same time, many of the Farsi- full-time employees. Nor is there any with four letter words and sexu- speaking staff members (e.g., script- consistent pattern or ratio reflect- ally explicit language, and he either writers, copyeditors, producers, and ing the ways the contract workers pushed or threw a chair through the production assistants) cannot com- are employed on various shows. In news room. Even though there were municate effectively in English. As a addition, they are presently required several eyewitnesses to the incident, result, bilingual members of mid- to spend the same number of hours one witness said that the victim of level management, such as managing on the job as are full-time employees. the attack was initially reluctant to editors and executive producers, are Yet, the two categories of employees complain to PNN’s human resources often the only point of communica- are treated differently and have dif- department for fear of reprisals. tion between the director and the ferent benefits. This is of course the Initial disciplinary action against employees. Although there is a rela- nature of contract work, yet it has a the celebrity abuser was a two-week tively senior contingent of Iranian- major detrimental effect of person- suspension with full pay as a cooling born employees, they are stretched nel morale and satisfaction. off period, essentially a vacation. The too thin to be able to provide the Any issue, small or great, can final outcome is pending. level of oversight necessary for better cause outbreaks of high emotion. Bloggers and websites in Iran performance. Take, for instance, the issue of flu were discussing this incident within Among the Iranian employees, shots, referred to in the December a week of its occurrence, before PNN moreover, there are persistent divi- 2011 statement by BBG member management had taken any action. sions. Ideologically, most could be Victor Ashe, who raised the issue at Very little happens at PNN that is described as pro-Western, but there the BBG meeting on October 13, 2011, not noted with eager interest in Iran. undoubtedly are some who are less after hearing from highly distressed Indeed, an argument frequently

8. Helle Dale, “VOA Must Do a Better Job at Depicting American Life,” Heritage Foundation, The Foundry blog, October 25, 2010, at http://blog.heritage.org/2010/10/25/voa-must-do-a-better-job-at-depicting-american-life/. 9. Amir A. Fakhravar, “Is America’s Overseas Broadcasting Undermining our National Interest and the Fight against Tyrannical Regimes?” testimony before the Foreign Affairs Committee, U.S. House of Representatives, April 6, 2011.

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advanced on Iranian political web- radio and TV broadcasts to Iran, was highlighted by the Parazit example, sites is that the U.S. government has becoming an alternative, going on whose 30-something creators are of no business preaching to Iranians the air in 2008. the same generation as their audi- about democracy and human rights PNN’s flagship production is ence, considerably below the average when its own agencies allow abusive News and Views, a two-hour televi- age of PNN employees.12 This suc- and harassing behavior. Siahmast. sion program that airs at 8 p.m. local cess has dropped off precipitously in wordpress.com (currently hacked) time in Iran (11.30 a.m. Eastern the last year because PNN has not and RadioKoocheh.com are two such Standard time), which features live invested enough resources in the websites. The disarray in the PNN coverage from Capitol Hill and the show. (Parazit’s Hosseini and Arbabi staff and management can only be a State Department. PNN’s longest- had literally stumbled into their suc- source of great satisfaction in Tehran, running TV program, Roundtable cess: With reluctant permission from and undermines the mission of the with You, is in the format of a talk PNN superiors, they were able to network. show, hosting popular guests and perform a 10-minute skit on another devoted to current events, pop cul- PNN program.) PNN Programming— ture, and politics. Viewers are able to PNN also has a Facebook page, and Pro-Iranian Bias? participate by phone and e-mails.11 dedicated YouTube channels, and Not surprisingly the internal divi- PNN’s newest addition to its lineup blogs.13 According to the BBG’s sions are reflected in PNN program- is Ofogh (“Horizon” in English), strategic plan, expansion of PNN’s ming. Accusations of pro-Iranian which provides in-depth analysis of Internet presence and the creation of bias and favoritism in the production U.S.–Iranian relations. Other news Farsi online news are priorities. Yet, of shows are commonly heard from programming consists of Today given Iran’s continued and often suc- employees and those who follow PNN in Washington, a brief overview of cessful attempts to censor Internet closely, such as the Iranian Freedom top headlines; Newsbriefs; Today’s communication, digital media at this Institute’s “VOA PNN Watchdog.”10 Woman, a contemporary news pro- point do not present a viable alter- PNN’s programming includes gram with a pool of regular partici- native to traditional broadcasting, coverage of American, Iranian, and pants who discuss global women’s particularly shortwave and satellite international news. In 2007, PNN issues; Late Edition and New Talk, television. expanded to six hours of original both of which air late in the evening. Persistent accusations of pro- programming and one hour of cul- The show that has recently Iranian bias among PNN manag- tural programming from American received the most attention at PNN ing editors have been coming from television’s History Channel. This has been Parazit (“Static” in English), Iranian exiles and some PNN staff rapid expansion resulted in lower a weekly half-hour satirical news itself. In one notable instance, the quality, and on the recommenda- show comparable in tone and content Iranian Revolutionary Guard tion of the OIG, in November 2010, to Jon Stewart’s “The Daily Show.” In attacked Iranian exiled student the network cut back to four hours 2011, Parazit became the most popu- leader Amir Abbas Fakhravar for of original broadcasting, which is lar Iranian page on Facebook with criticizing PNN’s own program- repeated throughout each 24-hour over 725,000 fans. The show’s cre- ming. Fakhravar had presented a period. The drop in quality was, not ators, Kambiz Hosseini and Saman critical view of PNN at a public event surprisingly, accompanied by a drop Arbabi, are Iranian-born American hosted by The Heritage Foundation in audience share, particularly as citizens, both in their 30s. Many on October 25, 2010.14 Subsequently, BBC Persian, the BBC’s station for of PNN’s internal dynamics are the Iranian Revolutionary Guard

10. Iranian Freedom Institute, VOA PNN Watchdog, at [email protected] (February 6, 2012). 11. U.S. State Department and BBG Office of Inspector General, “Report of Inspection,” p. 11. 12. Khalaji, “Waste of Dollars.” 13. Mary Beth Sheridan, “Persian News Network Finds New Life in Contested Iranian Election,” , June 18, 2009, at http://www.washingtonpost.com/wp-dyn/content/article/2009/06/17/AR2009061703853.html?referrer=emailarticle (February 6, 2012). 14. Dale, “VOA Must Do a Better Job at Depicting American Life.”

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denounced Fakhravar’s Heritage ■■ August, 21, 2007: PNN reported minutes. The graphic images cre- talk, in Farsi, on the Revolutionary favorably on protests against ated an international uproar and Guard’s “Young Journalists Club” President George W. Bush’s trip to brought masses of Iranians into website. The denunciation was then Canada. the streets. PNN did not show the reprinted on Ammariyon, a website video for three days, as editors belonging to Ansar-e-Hezbollah, the ■■ March 8, 2007: PNN staff trav- refused to accept the authenticity special forces of Supreme Leader Ali eled with President Bush on Air of the video. Khamenei; it also appeared on the Force One to South America U.S.-based Sar-e-khat website.15 and compared Venezuelan dic- ■■ February 14, 2011: Iranians took One of PNN’s most outspo- tator Hugo Chávez favorably to to the streets again to show the ken critical groups, Fakhravar’s President Bush. world that the Green Movement Conference of Iranian Students, was not dead. Two young men has monitored PNN over several ■■ November 2, 2007: PNN pro- were killed during the demonstra- years. In testimony before the House gram on Hiroshima, in which tions, and PNN did not consider Foreign Affairs Subcommittee on commentators suggested that these deaths to be important Oversight and Investigations on only an American would be able to enough to be a lead news item, April 6, 2011, Fakhravar cited numer- drop an atomic bomb. placing it eight or ninth in its ous instances of anti-American bias lineup.17 at PNN: ■■ November 6, 2007: PNN broad- cast aired another report critical A contemporary look at PNN’s ■■ April 22, 2007: PNN host Luna of the U.S. bombing of Hiroshima homepage suggests that even under Shad devoted 35 minutes of air- and Nagasaki, as well as of the the new management, questions time to an anti-American band Korean War. can be asked about editorial control and its music video “Demokracy,” of the news service. For instance, which mocked U.S. troops in Iraq ■■ December 10, 2010: The night on January 3, 2012, PNN treated and democratic institutions. before one of the most important its Iranian audience to a report on protests of the Green Movement religious extremism in Israel (as ■■ August 2, 2007: News and Views in Iran, PNN aired an inter- though there was not enough reli- opposed U.S. policy in its report view with an American Marxist, gious extremism in Iran on which to on the kidnapping of South the gist of which was that the report). An audience survey asked Korean Christian missionaries by Green Movement is a creation of whether Iran’s missile program was the Taliban. “American imperialism.”16 “psychological warfare in response to international sanctions” or just ■■ August 9, 2007: News and Views Omissions or downplaying of “a natural occurrence in the world.” reported on the atomic bombs important events are equally indica- Most respondents thought it was dropped over Nagasaki and tive of anti-American bias: “psychological warfare in response to Hiroshima taking a view opposing international sanctions.”18 the United States. ■■ June 20, 2009: The brutal Allegations of anti-American murder of Neda Agha Sultan, a and pro-Iranian bias at PNN and its ■■ May 8, 9, and 10, 2007: PNN young woman demonstrating predecessor, VOA’s Persian Service, reported only the negative aspects for democracy, was captured on have, of course, not increased the of bombing in Iraq and implied a cell phone camera and circu- confidence of Members of Congress, that the war was a mistake. lated around the world within who appropriate the funding for

15. J. Michael Waller, “What Is Wrong at VOA? Iranian Revolutionary Guard Defends VOA against Critic,” November 1, 2010, at http://voapnnwatchdog.blogspot.com/search?q=waller (December 28, 2011). 16. Fakhravar, “Is America’s Overseas Broadcasting Undermining our National Interest and the Fight Against Tyrannical Regimes?” pp. 2–3. 17. Ibid., p. 3. 18. Voice of America, Persian News Network, “Poll,” January 3, 2012. Google translation from Farsi.

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U.S. international broadcasting. discussions of policy issues, states was forced off Eutelsat’s HOT BIRD In 2007, frustration with PNN’s the report, even though inter- satellites, the most popular in Iran); lack of accountability and trans- views with American officials may significantly increased competition parency led Senator Tom Coburn be tagged on in separate recorded from both external and internal tele- (R–OK) to demand the translation interviews. As one of the report’s vision channels; programming and of Persian-language broadcasts by outside evaluators noted in refer- scheduling changes; and the use of Voice of America and . In ence to the TV talk show Straight more rigorous survey methodology. order to force release of the docu- Talk, “The program, after all, is According to the BBG itself, the ments, Senator Coburn, for months, based in Washington, and apart from precipitous decline is due to effec- placed a hold on the confirmation of (by definition) being Iran-centric, tive countermeasures by the Iranian President George W. Bush’s nomi- should represent a view of America government. That may be true, but nated Undersecretary for Public for Iranian audiences, too.”21 It is it is only part of the issue. Quality Diplomacy, James Glassman, who stunning that the obvious needs to and credibility are clearly impor- served as chairman of the BBG when be stated. tant issues. As noted, Iranian web- the broadcasts took place. Not much sites follow events at PNN with keen has changed. In March 2010, a group Reaching an Audience interest, and news spreads quickly of 70 Members of Congress, led by As recently as 2010, PNN was the in political circles. Iranians surely Representative Franks, wrote to leading international broadcaster know that PNN is rife with internal President Obama to point out that in Iran, with an estimated audience turmoil. things are not changing.19 of nearly 20 percent of the adult According to recent and reliable The management of Voice of population. PNN’s audience share, survey data, the most successful for- America is obviously aware of the however has been dropping like a eign news broadcaster to Iran is BBC problems detailed by the Members stone. According to a review pub- Persian—not PNN.23 Some estimates of Congress, as indicated by VOA’s lished in May of PNN by InterMedia, even put BBC Persian’s viewership at director, David Ensor, engaging the the Washington-based audience twice that of PNN. This, despite the entire management team in improv- research firm whose data for years fact that BBC Persian has only been ing performance. There continues have formed the basis of BBG broad- on the air since 2008. Furthermore, to be much room for improvement. cast strategy, “the combined weekly “the reach of BBC Persian TV has An internal performance review of audience of VOA across radio, TV and nearly doubled in Iran—rising by 94 PNN by BBG investigators, dated internet, declined from 20.1 percent percent from 3.1 million in 2009 to May 12, 2011, puts a favorable spin on to 6.5 percent,” over the course of a 6.0 million—despite an intensifying attempts to update and improve the year. Meanwhile, “the weekly audi- campaign of censorship and intimi- network.20 Still, the report speaks ence of VOA PNN TV went from 19.6 dation by the Iranian authorities.”24 of a lack of technical professional- percent to 6.1 percent.”22 It is worth Unlike PNN, BBC Persian is not run ism; overreliance on interviews noting that PNN radio remained sta- as a government agency; it functions often with the same group of Persian ble over the same period. InterMedia, as an independent agency that is gov- speakers; and a lack of variety in which tries to put a positive spin ernment funded. BBC Persian fields programming about American val- on this precipitous decline, cites many more on-site journalists than ues and American life. American as possible factors: satellite deliv- does PNN, which gives it news cover- perspectives tend to be lacking in ery and Iranian jamming (PNN TV age with more accuracy and vitality.

19. Amir A. Fakhravar, “A Letter Signed by Seventy Members of Congress Against VOA Persian to President Obama,” March 26, 2010, at http://voapnnwatchdog.blogspot.com/2010/03/70-congress-members-sign-letter-to.html (February 6, 2012). 20. Broadcasting Board of Governors, Performance Review: Persian New Network, 2011, May 2011, Washington, DC. 21. Broadcasting Board of Governors, “PNN Program Analysis,” May, 12, 2011, p. 6. 22. InterMedia, “VOA Persian Service Review,” May 12, 2011. 23. Ibid. 24. News release, “Audiences Double in Iran, Despite Increase in Censorship Intimidation,” BBC, February 29, 2012, at http://www.bbc.co.uk/mediacentre/latestnews/2012/bbc-persian-doubles-audience.html (February 29, 2012).

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Additional competition to PNN is is its meeting on October 13, 2011.27 other countries controlled by author- brought on by dozens of Iranian Websites have fairly low overhead itarian regimes. Last year, Congress state-sponsored television stations, compared with broadcast media, and gave the BBG $10 million for this which influence millions of Iranians in tight budgetary times this factor is purpose.30 It is a cat and mouse game, despite the Iranian programs’ clear a clear allure. Yet, there are problems which Iran at present seems to be ideological bias. with this strategy. While 22 percent winning—and which is why the PNN PNN Radio. In line with exist- of Iranians report using the Internet, website can currently at best be a ing BBG strategy, shortwave radio a number that has been trending complement to the broadcasting broadcasts have been sacrificed at upwards over the past five years, the components of PNN. PNN in favor of satellite television, increase in traffic has not translated Internet, and a surrogate broad- into more hits for VOA’s websites; in How the U.S. Can Reach Iran caster (Radio Farda). Just one hour fact, quite the reverse. According to PNN presents a complex portrait: of Farsi radio programming remains the 2009 OIG report, while PNN’s On the one hand, its contribution has on PNN, despite the fact that short- website reported 6 million hits in undeniable importance in support of wave broadcasting is the medium December 2007, this was down to U.S. foreign policy and U.S. national least sensitive to Iranian govern- 3 million in January 2008, and in interests. On the other, the actual ment jamming and censorship, and, November 2008, there were only 2 implementation of PNN’s mandate is it should be noted, despite the fact million.28 According to InterMedia, clearly flawed. Communication dif- that radio remains a viable medium in 2011, just 2 percent of Iranian ficulties, internal culture, and status for reaching Iranians. According to Internet users pay weekly visits to as part of a government agency have InterMedia, 33 percent of Iranians the PNN website, less than half a mil- hindered its ability to achieve its full in 2011 reported listening to radio lion people. potential and to provide a mean- for entertainment and news. (This The Iranian targeting of the ingful and fulfilling professional compares to 99 percent for televi- Internet is well documented. In fact, environment for its employees, both sion, 37 percent for newspaper, and the Iranian Cyber Army (created Iranian and American. To make PNN 22 percent for Internet).25 Most of after the June 2009 demonstrations) an effective part of a comprehensive the assets of VOA’s Persian radio has on several occasions hacked VOA U.S. strategy toward Iran, the BBG service, however, have been trans- websites. Controlling cyberspace is should: ferred to Radio Farda (which is run one of Tehran’s highest priorities by Radio Free Europe/Radio Liberty and its sophistication is consider- ■■ Restructure the PNN work- in Munich). As noted in the 2009 able. Of the 37 countries examined place. Professional management OIG report, “VOA does not appear by Freedom House in its “Freedom training for supervisors is a must, to have a clearly delineated mission on the Net 2011” index, Iran ranked as is increased vertical commu- for Persian-language radio as part of dead last, allowing its citizens the nication within the network and PNN or to have engaged in strategic least amount of Internet access and greater transparency in hiring thinking regarding its role.”26 freedom to express themselves.29 and promotion. PNN Internet. The BBG has The BBG has in turn tasked its hitched most of its strategic planning anti-censorship office under Director ■■ Improve the hiring process to and hopes to the Internet in the new Ken Berman to find ways around the make sure that Persian-language strategic plan adopted by the BBG cyber-censorship by Iran, China, and and English-language capabilities

25. InterMedia, “VOA Persian Service Review,” May 12, 2011. 26. U.S. State Department and BBG Office of Inspector General, “Report of Inspection,” p. 15. 27. Broadcasting Board of Governors, “Impact Through Innovation and Integration: BBG Strategic Plan 2012–2016,” at http://media.voanews.com/documents/StrategicPlanNarrative_2012-20161.pdf (February 6, 2012). 28. U.S. State Department and BBG Office of Inspector General, “Report of Inspection,” p. 23. 29. Freedom House, “Freedom on the Net 2011,” pp. 187–194. 30. Helle Dale and Jessica Zuckerman, “U.S. Must Improve Internet Freedom Outreach Effort,” Heritage FoundationWebMemo No. 3303, June 28, 2011, at http://www.heritage.org/research/reports/2011/06/freedom-of-speech-on-the-internet-us-must-improve-outreach-effort.

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exist at all levels of production The Obama Administration needs and management. a consistent policy that supports the human rights and democratic aspira- ■■ Write new guidelines applying tions of Iranians—and U.S. interna- to contract employees to ensure tional broadcasting has a major part equitable treatment and account- to play in this context. When the ability for all. content of U.S. international broad- casting takes an anti-American or ■■ Create a board of Farsi- pro-Tehran slant, it can be confusing speaking advisers whose pur- for Iranian audiences and democracy pose it will be to monitor broad- activists who are looking for support casts and provide feedback on from the outside world, especially PNN program content. from the United States. It is incum- bent on the Broadcasting Board ■■ Demand that PNN editors and of Governors and the leadership producers use the resources of of Voice of America to implement U.S. taxpayers to provide more a series of reforms to improve the professional, diverse, and tech- performance and personnel morale nologically proficient program- at PNN. An essential part of the very ming, anchored in American val- mission of Voice of America depends ues and aligned with U.S. national on it. interests. —Helle C. Dale is Senior Fellow for Public Diplomacy in the Douglas Congress should: and Sarah Allison Center for Foreign Policy Studies at The Heritage ■■ Exercise its power of oversight Foundation. and request that the Foreign Relations Committees in the House and Senate hold regular hearings on issues relating to U.S. international broadcasting.

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