DOCUMENT RESUME AUTHOR Nelson, Bernadette; and Others Assessment of the ESAA-TV Program
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DOCUMENT RESUME SD' 213 395 r IR,010 017 AUTHOR Nelson, Bernadette; And Others TITLE Assessment of the ESAA-TV Program; An ExaMination of, Its Production, Distribution, and Financing. INSTITUTION Abt Associates, Inc., Cambridge, Mass. SPONS AGENCY Office of Prbgram Evaluation (ED), Washington, D.C, REPORT NO AAI No. 80A-146 PUB DATE 480 CONTRACT 300-77-0468 NOTE 328p.; For related document, see ED 199 341. Various tables throughout the document may not reproduce due to type size. EDRS PRICE MF01/PC14 Plus Postage. DESCRIPTORS *Childrens Television; Desegregation Methods; Educational Television'; Elementary Secondary Education; Federal Aid; Integiation Studies; Program Evaluation; *Programing (Broadcast); *Public Schools; Intdgration; Television Research IDENTIFIERS *Emergency School Aid Act 1972 ABSTRACT This study evaluates; the Emergency Schobl Assistance ACt Television Program (ESAA-TV), which provides grants-add/or federal contracts to school districts for the production, duplication, promotion, and distribution of'racially integrated' children's programming. A review of the origins and intpnts of the legislation is followed by a descriPtiqn of the contextand designof this study and an overview of federal policies and practices related to the program. The evaluation includes en analysis of production objectives and techniques 'n'light of audimnce needs;a discussion of minority group employment i the production of ESAA -TV; procedures used for promoting and di b ing ESAA programs to home and commereial audiences; anda financial assessment of.thecost and effectiveness of ESAA-TV Series aw4ds. Also providedare a broadcaster survey commbnting on ttle goals and procedures of the program, and a summary of conclusions and recommendations for future improvembnts in E$AA -TV programs. Appendices include a listing of people who provided Information for, the evaluation,as well As background on the data sources and measures ustd for the financial analysis. (MER) 0 ********************************************.*****e********************* Reproductions supplied by EDRS are the best thatcan be made, from the original document. A ****************A****************************************************** ABT ASSOCIATES INC. 55 WHEELER STREET. CAMBRIDGE. MASSACHUSETTS 02138 TELEPHONE AREA W17-492.7100 Twx:710-3 013E12 f. U.& DEPARTMENT OF EDUCATION NATIONAL INSTITUTE OF EDUCATION EDUCATIONAL RESOURCES INFORMATION CENTER (ERIC) X TPA document has been rovocIlEced as rttivo:1 froth the L.:revn o. organsmon of.a-nahn9 4 Moot chartgES heve been fne'de to .rnorove. reM(h4t,041gytality Pont .s of wee, or otereohs stated en thrs docv men, do not neCessaf4y ,p01.9:..nt off reW NIE Povuon 4r W,.".`Y 4 ASSESSMENT OF THE ESAA-TV PROGRAM AN EXAMINATION OF ITS PRODUCTION,DISTRIBUTION AND FINANCING Bernadette Nelso44 with Danlel Sullivan Joseph Zelan Susan Brightsn Prepared for: U.S. Office of Education Washington, D. C. Alo AN EQUAL OPPORTUNITY EMPLOY ER ti 9 Cr ti Quality Control Reviewer Mangement Reviewer This material was produced pursuary to Contract Number 300-77-0468 between Abt Associates Inc. and the Office, of Program Evaluation, Department of Education. Points of view oz opinions stated here do not necessarily represent official posi Ions or policy of the Department of Education. AAI No.: 80-146 Table of Contents Page CHAPTER ONE: INTRODUCTION 1 1.1 Origins and Intent of theESAA-TV Legislation 1 1.2 Renewal of ESAA Legislation: "The EduCatLon Amendments Act of 1978" 6 1.3Overview of Program Output 7 1.4 Internal and External Constraints 14 CHAPTER MD: The CONTEXT)AND DESIGN pp' THE PRESENT STUDY `17 2.1 Study Objectives andMethods 20 2.1.1Management /Administration Objectives. 20 2.1.2 Production Objectives 21 2.1.3Distribution Objectives 21. 2.1.4Financial PSialysisObjectives 21. 2.1.5 Carriage and Viewership Analysis 22 2.2 The Design of the Study 22 2.2.1 Review of USOE Policy and Practice 23 2.2,2 ReView of USOE's Inventory of ESAA-TV Series. 24 2.2.3 Survey of ES4A-TV Producers 25 2.2.4, Survey of Broadcasters 25 2.2.5. Carriage and Viewership Anal 'rsis 26 2.3 Organizaticii: of the Remainderof this Report 27 CHAPTER THREE: REVIEW OF USOE POLICY AND PRACTICE 31 3.1 Adminiftrative Locus of the ESAA-TVProgram 31 3.1.1 Location in the'Officeof EqualOpportunities Programs (USOE/BEEO) 31, 3.14Location in'the Division Of Educational Technology (USCE/OLLF9 33 3.2 Administrative Regulations and Guidelines 36 3.2.1 The Basic Documents, 3g 3.2.2 Proposed 1980 Regulations GoverningESAA-TX 0.end Radio 4P 40- 47 4 fr Table of Contents (continued) Page 3.3 Procurement of ESAA -TV Series 50 3.3.1 Determination oflazogram Content Areas 50 3.3.2 Proposal 'solicitation.' 55 Evaluati and Award Procedure: . d ,w56 3.3.4 Issues Surrounding thd Previoui Procurement and Award Process 60 3.4 Accountability of ProdUcing Organizations 62 3.4,1 ProieCt Monitoring 62 3.4.2 Project Advisory Committees 64 3.4.3 Issues Surrounding Monitoring 64 3.4.4 Deliverables 66 3.4.5 Go/No-Go Check Points 68 3.4.6 Scope Reductions and "Implicit Overruns" 69 0 3.4.7 In-Kind Funding 69 3.5 Summa y 70 A CHAPTER FOUR: PRODUCTION ANALYSIS 75 4.1 Origins of Involvement: Proposal Development 77 4.1.1 Target Audience Involvement 80 4.1.2 USOE Involvement in Proposal Development 85. 4.2 Series Design 86 4.3 Target Audience Needs 89 4.3.1 Means by Which Target Audience Needs were Defed 91 4.3.2 PrograwAing Objectives 93 Serfes Formats 95 4.4 Factor in Production Affecting,the laality, Carr'age, and Potential Impact of the Sekies 96 44.1. Contract Negotiations . 96 /4.4.2 Producers' Evaluation of the Negotiation Process 100 i .5 Formative, and Pilot Evaluatkon of Inpvidual Series. 101 4.5.1 Overview of Pilot Evaluation Samples,,Design, and Methodologies 103 5 ii r *4' Table of Contents (continued) Page 4 iiII . .4.5.2 . Impact Evaluation of Individual Series 109 4.6." Problems or Difficties 4 in Production 110 4.6.1 Staffing 4 111 4.6.2 Problems with Content Development 112 A.6.3 Script Development 116 4.6.4Casting 117 4.6.5 Production and Post-Production 118 A.66 ''Management and OrganizationalInterface Problems 119 4.6.7 Union Involvethent 122 A.7Project Advisory Committee Participation 124 4.8 S plementary Nonbroadcast Matdrials 126 4.4 S Ullary OV 129 CHApTERIFIVE: MINORITY GROUP EMPLOYMENT IN PRODUCTION OF ESAA-TV SERIES 139 5.1 The Legislative Mandate and Administrative Regulations Cqncerning Minority Group Employment and Participation 139 5.2 Minorlity Staffing on ESAA -TV Series Production 142 5.3 The Impact of ESAA -TV Employmenton Subsequdnt Career Advance 142 5.4 Roles and Mobility of the On-the-Job Trainees. 148 5.5 Producers' Opinions about th'e On-the-Job Training Requirements 149 5.6 iUmmary 151 .4. CHAPTER SIX: VIEWERSHIP 155 6.1 .Development of an Analystical File for Broadcast Carriage 157 6.2 Carriage and Coverage ofESAA-TV Series ,163 6.2.1 Incidence of Broadcast Carriage 163 6.2.2 Distribution of ESAA,-TV Broadcasts. .,166 6.2.3Coverage of Target and Other Audiences 176 iii Table of Contents (continued) Page 1 6.3 Viewership 178 6.4 -Summary 184 CHAPTER SEVEN: FINANCIAL ANALYSIS 187 7.1 Introduction 187 7.1.1 ,Conceptual Framework 187 7.1-2 Data Sobrces andMethodology 194 7.2 Patterns of Investment in ESAA-TV Series 197 7.2.1 Distribution of'ESAA-TV Awards 197 7.2.2Patterns of Investment "Efficiency"' 200 7.3 Factors Affecting the Efficiency of ESAA-TV Investments 207 7.3.1 Production Costs and Output Changes 207 7.3.2' Viewership and Efficiency 212 7.4 Policy Implications 220 7.5 Summary * 226 CHAPTER EIGHT: PROMOTION AND DISTRIBUTION- 229 8.1 Commercial Carriage Promotion 233 I d.1.1 The Television for all Children Promotion Campaign (TvAC) 233 8.1.2 Future of Commercial Carriage Promotion 236 8.2 Home Audience Promotion 237 8.3 Promotion of In-School Use of ESAA-TV Series 239 8.3.1Problems Encountered in Implementing the In-School Use of ESAA-TV Series 1 241 8.4 Distribution 243 8.5 Summary # ...... 244 C1!APTER VINE: BROADCASTER SURVEY 249 9.1 'Programmers' Familiarity with TvAC 1255 9.2 Programmers' Awareness of ESAA -TV Series 256 9.3Programmers' Reactions to Gornment Prohibition ankRestrictions on ESAA-TV Series Usage 261 A iv Table of! Contents (continued) Page 9.4 Opinions about Government Funding of Television Programming 262 9.5 Summary 262 CHAPTER TEN:'CONCLUSIONS AND RECOMMENDATIONS 265 10.1 v Review of USOE Policy and Practice: Conclusions and Recommendations 266 10.2 Production Processes: ConclasiOns and Recommendations 270 10%3Promotion and Distribution 275 10.4 Overall Assessment 277 * Appendix A: Respondents 279 Appendix B: Glossary of Abbreviations and Acronxms 289 Appendix C: Data Sources and Measures 293 Appendix D: Analysis of Factors Affecting Incidence of Output Change in ESAA -DJ Series 301 LIST OF TABLES ,Alb FIGURES PAGE TABLE 1-1 lOverviewof ESAA-TV Series by Awii.d . d 8 ...... ' 4-1 Summlry of ESAA-TV Characteristics 88 `4-2 Setieq,Pilot Evaluation Samples,Designs, and Methodologies P 104 5:1 Professional Staff Racial/Ethnic Composition 143 5-2 Impact of ESAA-TV Employment on subsequent Employment . 145 6-1 Amount of Data on Broadcast Carvia y Source of Data . 161 . 6-2 Broadcast Carriage of ESA -TV Series by Year, 1976-1980 . 164 6-3 Distribution of ESAA-TV Broadcastsand Households Covered, By 'Type of Station, 19741 V -1980 167 6-4 Total Number of .Stations AiringESAA-TV Series and Number of States in which'Serieswas Carried, by Serlea, 1976-1980 170 6-5 Extent ofBroadcast Carriage andESAA-TV Series by State, 1976-1 +980 1 172 6-6 Geographic COncentration of ESAA-TVBroadcasts,, 1976-1980 174.