Wyoming Public Television January 2002 Management Audit Committee Representative Randall Luthi, Chairman Senator Hank Coe, Vice Chairman Senator April Brimmer Kunz Senator Grant Larson Senator Mike Massie Senator Caroll Miller Senator Bill Vasey Representative Ross Diercks Representative Alan Jones Representative Tom Lockhart Representative Jane Warren Program Evaluation Staff Barbara J. Rogers Program Evaluation Manager Kelley Pelissier Senior Program Evaluator Johanna Brukardt Program Evaluator Noah Miller Associate Program Evaluator Wyoming Legislative Service Office EXECUTIVE SUMMARY Wyoming Public Television Program Evaluation Division January 2002 Purpose WPTV broadcasts every day of the year for The Management Audit Committee requested eighteen hours. The majority of WPTV’s an evaluation of Wyoming Public Television broadcast is nationally-produced (WPTV), Wyoming’s only public television programming, such as Sesame Street and station. As background for larger policy Antiques Roadshow. Other programming issues, the Committee identified a number of includes college credit telecourses used by questions about WPTV that affect decision- some community colleges, non-credit making. The Committee’s interest includes instructional programming, and locally WPTV governance, its conversion to digital, produced programming focused upon its ability to fulfill the mission, and finally, Wyoming people, issues, and interests. the extent to which it coordinates WPTV is funded through state and federal infrastructure and services with other dollars, plus private donations. Historically, entities. the station has directed the $1 million per Background biennium appropriated by the state to Non-commercial television was born in 1967 operational support, not infrastructure. State with the passage of the Public Broadcasting General Fund appropriations comprise Act. Nearly sixteen years later, WPTV approximately half of WPTV’s budget. became operational when Central Wyoming In 1996, Congress determined that all College (CWC) established broadcasting broadcast television service must convert facilities on its campus. While the station’s from analog to digital, with a final deadline original purpose was to provide distance of 2006. While the state has not traditionally education services to the local area, WPTV invested in WPTV infrastructure, during the eventually grew into a statewide public 2001 Session, the Legislature appropriated television network that reaches most state $1 million to WPTV to begin its conversion. residents. WPTV is requesting additional funding for conversion in the 2002 Budget Session. This In 1991, the Legislature directed the request for increased state investment has Community College Commission brought WPTV into the spotlight. (Commission) to make a separate budget request for public television. In addition to Results in Brief requesting WPTV’s budget, the Commission WPTV is a statewide program governed by includes WPTV in its strategic plan and the CWC Board of Trustees, a local, monitors its performance. Together with independent community college board. A CWC and WPTV, the Commission has set a state-level entity, the Commission, has broad mission for the station. limited responsibilities for WPTV that do not include making policy for the station. While this governance structure has not kept WPTV To this point, WPTV has scrounged and from developing a statewide network, as traded to expand its service area on its own. additional state monies are invested in This puts WPTV in the position of having to WPTV for its digital conversion, the seek greater commitment from the Legislature may wish to consider alternative Legislature for a program it has not officially governance structures. authorized. We suggest WPTV take steps to gain this commitment by demonstrating to Although the Legislature funds WPTV’s the Legislature its value to the state. operations, it cannot otherwise guide the station’s direction. Any change in We found that the state-owned or operated governance requires careful study. If the wireless systems could potentially share Legislature desires an enhanced state role infrastructure. WPTV, as well as WYDOT with regard to WPTV guidance or and Wyoming Public Radio (WPR) operate governance, we identify several options for these systems. However, minimal consideration. On the other hand, if the infrastructure sharing occurs, and only Legislature wishes to leave the current between WPTV and WPR. Since the three governance structure in place, we suggest are independently governed, each has had the steps that would clarify governance autonomy to develop the infrastructure that relationships with WPTV. best met individual needs. No state agency has the authority to require these three On its own initiative, WPTV has stretched independent systems to coordinate. Doing so infrastructure to make its broadcast will require high-level leadership that is accessible to an estimated 86 percent of state beyond the capacity of WPTV. residents. Taking tacit legislative support from continuing minimal appropriations, as Over the years, WPTV has produced or well as perceived demand from the public, acquired programming or projects that WPTV has expanded its network through support other state-funded efforts. However, formal and informal agreements with private WPTV has not consistently coordinated its entities. The station’s expansion has resulted actions with state entities holding primary in a statewide network, but has also created a responsibilities in those areas. With limited system with fragile reliability. resources and production capability, WPTV could benefit from the assistance that With the impending digital conversion, coordinated efforts entail. The new station WPTV is at a crossroads with respect to its general manager indicates that WPTV will future. Digital conversion is necessary to increase its coordination efforts. This will maintain a statewide network. be even more critical if the station realizes WPTV has estimated digital conversion will the full potential of digital conversion. cost $3.3 million dollars, but we found that this estimate will convert only a portion of its Agency Comments statewide network. Additionally, that WPTV, the Commission and CWC agree amount will not enable WPTV to meet with the report’s proposed governance federal requirements beyond the initial 2003 options of developing a plan that allows for deadline. Without additional funding, wider participation in WPTV governance and WPTV’s network, built over the last 20 of updating the Memorandum of years, could become obsolete. The extent of Understanding that sets out how WPTV is additional funding needed is not known; governed. They are neutral about the WPTV needs to provide the Legislature cost placement of legislative intent for WPTV in estimates for the digital conversion of its statute as long as it does not interfere with entire network. editorial and programming decisions. Recommendation/Conclusion Locator Page Summary Party Agency Number Addressed Response 11 Conclusion: To clarify WPTV governance, the Legislature can consider several options: 12 • Maintain status quo with CWC taking the lead to update the MOU. CWC Agree 12 • Maintain status quo with the Legislature formally authorizing WPTV in statute. Legislature Unknown 12 • Maintain status quo with the Legislature expressing its intent for WPTV in statute. Legislature Neutral 12 • Legislature study options for WPTV governance change, including creating a state- Legislature Agree level board specifically dedicated to public television, or assign an existing state- level entity with the responsibility. 13 • Legislature request CWC to develop a plan that allows for wider participation in Legislature Agree WPTV governance. 20 Recommendation: WPTV needs to provide the Legislature cost estimates for the digital WPTV Not conversion of its entire network. Addressed 29 Recommendation: WPTV should present the Legislature with the information necessary WPTV Not for prudent decision-making regarding the future of public television in Wyoming. Addressed 37 Conclusion: Wireless telecommunication system infrastructure sharing requires high-level N/A N/A leadership. 44 Recommendation: WPTV should enhance efforts to coordinate its services with other state WPTV Not entities. Addressed Table of Contents Introduction: Scope and Acknowledgements ....................................................................... i Background ................................................................................................................... 1 Chapter 1: Local Independent Board Governs WPTV ............................................................... 7 Chapter 2: WPTV’s Digital Conversion Necessary to Maintain Statewide Network ........................ 15 Chapter 3: WPTV Turned a Station Into a Network ................................................................ 21 Chapter 4: Infrastructure Sharing Among State Wireless Systems is Minimal ............................... 31 Chapter 5: Coordination of Services Needed to Leverage WPTV Resources ................................ 39 Chapter 6: Conclusion: WPTV and Legislature at Critical Juncture............................................ 45 Agency Response ........................................................................................................... 47 Appendices (A) Selected Statutes........................................................................................... A-1 (B) WPTV Coverage Map...................................................................................