U.S. International Broadcasting: Background and Issues for Reform (name redacted) Analyst in Foreign Policy Legislation May 2, 2014 Congressional Research Service 7-.... www.crs.gov R43521 U.S. International Broadcasting: Background and Issues for Reform Summary Since the beginning of modern U.S. international broadcasting during World War II, debates over the effectiveness, strategic direction, and necessity of broadcasting activities have persisted. Since the creation of the Broadcasting Board of Governors (BBG), arguments over its structure have only added to these debates, producing a number of reform efforts. Many Members of Congress have consistently shown concerted interest in U.S. international broadcasting, conducting oversight over the BBG and its individual broadcasters, and calling for increased resources and programming for certain regions, countries, and language services. On April 28, 2014, House Foreign Affairs Committee Chairman Edward Royce introduced the United States International Communications Reform Act of 2014 (H.R. 4490), which would change the structure of U.S. international broadcasting, suggesting that this issue might receive increased congressional attention during the second session of the 113th Congress. With the enactment of the United States International Broadcasting Act of 1994 (USIB Act), all existing U.S. international broadcasting services were consolidated under the BBG within the United States Information Agency (USIA). In 1998, Congress passed legislation establishing the BBG as an independent entity within the executive branch at the same time that it incorporated USIA’s functions into the State Department. The BBG is composed of eight presidentially appointed, Senate-confirmed members, with the Secretary of State serving as ninth member ex officio and providing foreign policy information and guidance to the Board. By ensuring broadcasting independence while at the same time institutionalizing guidance from the Secretary of State, the USIB Act aims to produce U.S. international broadcasting that is both credible and supportive of U.S. foreign policy objectives. The BBG has responsibility for supervising, directing, and overseeing the operations of the International Broadcasting Bureau (IBB), the Voice of America (VOA), and the Office of Cuba Broadcasting (OCB, operating the Radio and TV Martí services to Cuba), as well as funding and oversight of the grantee broadcasters Radio Free Europe/Radio Liberty (RFE/RL), Radio Free Asia (RFA), and the Middle East Broadcasting Networks (MBN). Current Issues Facing the BBG and U.S. International Broadcasting Many observers perceive the BBG as a flawed structure that is inefficient, duplicative in its activities, and ineffective. A number of issues concerning the BBG and U.S. international broadcasting continue to spark debate, including • problems with Board operations and the possible need to create a new position for executive leadership; • recommendations for the strategic direction and allocation of resources in U.S. international broadcasting; • the effect of shifts in information communication technologies, especially the importance of the Internet and digital media, on U.S. international broadcasters; • proposals for improving the efficiency of U.S. international broadcasting, including possible consolidation of the several U.S. international broadcast entities; • continuing disagreements over the role of U.S. international broadcasting in advancing U.S. foreign policy goals and promoting democracy; and Congressional Research Service U.S. International Broadcasting: Background and Issues for Reform • assessment and improvement of U.S. international broadcasting effectiveness. H.R. 4490 addresses many of these issues through a significant restructuring of the BBG and U.S. international broadcasting. Congressional Research Service U.S. International Broadcasting: Background and Issues for Reform Contents Introduction ...................................................................................................................................... 1 History of U.S. International Broadcasting...................................................................................... 2 Beginnings of U.S. International Broadcasting ......................................................................... 2 Post-War Broadcasting to Europe .............................................................................................. 2 Bringing the Surrogates Under Greater Oversight .................................................................... 3 Satellite Television Broadcasting Begins .................................................................................. 3 New Broadcasting Services for Cuba ........................................................................................ 3 Creating a Bipartisan Firewall for International Broadcasting .................................................. 4 A New Surrogate for East Asia .................................................................................................. 4 BBG Becomes an Independent Agency ..................................................................................... 4 New Middle East Broadcasting After 9/11 ................................................................................ 5 U.S. International Broadcasting Structure ....................................................................................... 5 Broadcasting Board of Governors ............................................................................................. 6 U.S. International Broadcasting Standards and Principles ........................................................ 6 International Broadcasting Bureau ............................................................................................ 7 Federal Government Broadcasters ............................................................................................. 8 Voice of America ................................................................................................................. 8 Cuba Broadcasting (Radio and TV Martí) .......................................................................... 8 Grantee Broadcasters ................................................................................................................. 9 Radio Free Europe/Radio Liberty (RFE/RL) ...................................................................... 9 Radio Free Asia ................................................................................................................... 9 Middle East Broadcasting Networks ................................................................................... 9 Performance Measuring and Evaluating Language Services .................................................. 10 BBG Funding Information and Trends .................................................................................... 11 Key Policy Issues ........................................................................................................................... 12 Board Operations and Creating a New Position for Executive Leadership ............................. 13 Strategic Direction and Resource Allocation ........................................................................... 14 Shifts in Information Communication Technology ................................................................. 15 Possible Consolidation of U.S. International Broadcasters ..................................................... 16 Role of U.S. International Broadcasting in Advancing U.S. Foreign Policy Goals and Promoting Democracy .......................................................................................................... 16 Broadcasting Effectiveness ...................................................................................................... 18 United States International Communications Reform Act of 2014 ............................................... 18 Creation of the U.S. International Communications Agency .................................................. 19 Mandating Coordination .......................................................................................................... 19 Voice of America ..................................................................................................................... 19 Creation of the Freedom News Network ................................................................................. 19 Eligible Broadcast Areas ......................................................................................................... 20 Administration and Personnel Provisions ................................................................................ 20 Figures Figure 1. Map of Worldwide U.S. International Broadcasting Facilities ......................................... 5 Congressional Research Service U.S. International Broadcasting: Background and Issues for Reform Tables Table 1. Audience for U.S. International Broadcasters, FY2011-FY2013 .................................... 10 Table 2. BBG Programming Performance Indicators .................................................................... 11 Table 3. Broadcasting Board of Governors Budget Information, FY2013–FY2015 ..................... 12 Contacts Author Contact Information........................................................................................................... 20 Congressional Research Service U.S. International Broadcasting: Background and Issues for Reform Introduction