Digital Television Transition: Preliminary Information on Initial
Consumer Education Efforts (19-SEP-07, GAO-07-1248T).		 
                                                                 
On February 17, 2009, federal law requires all full-power	 
television stations in the United States to cease analog	 
broadcasting and broadcast digital-only transmissions, often	 
referred to as the digital television (DTV) transition. Federal  
law also requires the National Telecommunications and Information
Administration (NTIA) to create a program that subsidizes	 
consumers' purchases of digital-to-analog converter boxes. After 
the transition, households with analog sets that rely on	 
over-the-air broadcast signals must take action or they will lose
television service, but some households might not be aware of	 
this potential disruption. This testimony provides preliminary	 
information on (1) the consumer education efforts currently	 
underway, (2) education efforts being planned, (3) difficulties  
with the implementation of consumer education programs, and (4)  
ongoing GAO work on consumer education and awareness regarding	 
the transition. GAO interviewed officials with the Federal	 
Communications Commission (FCC) and NTIA. Further, GAO met with a
wide variety of industry and other stakeholders involved with the
transition, including members of the DTV Transition Coalition--a 
group of public and private stakeholders, and experts on	 
strategic communications. GAO discussed this testimony with FCC  
and NTIA officials and incorporated their comments.		 
-------------------------Indexing Terms------------------------- 
REPORTNUM:   GAO-07-1248T					        
    ACCNO:   A76487						        
  TITLE:     Digital Television Transition: Preliminary Information on
Initial Consumer Education Efforts				 
     DATE:   09/19/2007 
  SUBJECT:   Consumer education 				 
	     Digital television 				 
	     Government information dissemination		 
	     Private sector					 
	     Public television					 
	     Television 					 
	     Television broadcasting				 
	     DTV Transition Coalition				 

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GAO-07-1248T

   

     * [1]In Summary:
     * [2]Background
     * [3]Federal Government and Private Stakeholder Consumer Educatio
     * [4]Many Consumer Education Efforts Are Still in the Planning St
     * [5]Difficulties Remain in the Implementation of Consumer Educat
     * [6]Our Future Work Will Focus on Consumer Awareness of the DTV
     * [7]Contacts and Acknowledgements
     * [8]GAO's Mission
     * [9]Obtaining Copies of GAO Reports and Testimony

          * [10]Order by Mail or Phone

     * [11]To Report Fraud, Waste, and Abuse in Federal Programs
     * [12]Congressional Relations
     * [13]Public Affairs

Testimony

Before the Senate Special Committee on Aging

United States Government Accountability Office

GAO

For Release on Delivery
Expected at 10:30 a.m. EDT
Wednesday, September 19, 2007

DIGITAL TELEVISION TRANSITION

Preliminary Information on Initial Consumer Education Efforts
Statement of Mark L. Goldstein, Director
Physical Infrastructure Issues

GAO-07-1248T

Mr. Chairman and Members of the Committee:

I am pleased to be here today to report on our work for the House Energy
and Commerce committee and this committee on the progress made in consumer
education efforts for the digital television (DTV) transition. We are
currently finalizing a report on initial public and private sector efforts
underway to implement the transition; as such, the findings that I am
reporting to the Committee today are preliminary in nature and principally
related to consumer education and outreach programs.

A primary goal of the DTV transition is for the federal government to
reclaim spectrum1 that broadcasters currently use to provide analog
television signals. The spectrum that the federal government will reclaim
at the end of the transition is considered highly valuable because of its
particular technical properties. In all, the DTV transition will free up
108 megahertz (MHz) of spectrum. The Federal Communications Commission
(FCC) has reallocated 24 MHz of the spectrum that will be recovered for
public safety purposes, which became a higher priority following the
terrorist attacks of September 11, 2001. FCC will auction the remaining
spectrum for commercial purposes, with the resulting proceeds allocated
for, among other things, reducing the federal deficit.

The Digital Television Transition and Public Safety Act of 2005 mandates
the cessation of analog television broadcast signals on February 17, 2009.
After that date, households that had previously viewed television on
analog sets solely through the reception of over-the-air signals must take
action to ensure that they have the necessary equipment, such as a
digital-to-analog converter box, or subscription video service to be able
to view the digital broadcast signals. If they do not take such action,
they will lose the ability to view the digital signals on their analog
sets. The act also directed the National Telecommunications and
Information Administration (NTIA) to establish a $1.5 billion program
through which households can obtain coupons for the purchase of
digital-to-analog converter boxes. NTIA issued a final rule that adopted
regulations to implement the converter box subsidy program, and in August
2007, selected IBM Corporation (IBM) to administer the program. Beginning
January 1, 2008, households can request up to two $40 coupons toward the
purchase of eligible2 digital-to-analog converter boxes.

1The radiofrequency spectrum is the part of the natural spectrum of
electromagnetic radiation lying below 300 gigahertz. It is the medium that
makes possible wireless communications, including cellular and paging
services, radio and television broadcasting, radar, and satellite-based
services.

Three private sector groups have asserted various estimates of the number
of households that rely solely on over-the-air television. While one group
estimates that 11 percent of households rely on over-the-air broadcasts,
another group's estimate is 16 percent of households, and a third group's
estimate is 20 percent of households. Further, private sector estimates
claim an additional 5 percent to 27 percent of households that subscribe
to cable or satellite television have at least one television set that
receives an over-the-air signal. One group asserted that households that
rely on over-the-air broadcasts are disproportionately comprised of older
citizens than other households. Although it is unclear what percentage of
households that rely exclusively on over-the-air broadcasts use analog
rather than digital television sets, millions of those households
potentially stand to be left without any television service unless they
take action. To help the public understand the DTV transition and the
various options they have, consumer education and awareness programs are
underway and additional programs are being planned.

While there are many steps necessary to successfully complete the DTV
transition, my testimony today will focus on consumer education and
awareness. In particular, I will discuss (1) consumer education efforts
currently underway, (2) education efforts and programs being planned, (3)
the difficulties that may arise in the implementation of such programs,
and (4) ongoing work on DTV consumer education and awareness that we will
undertake.

To meet these objectives, we interviewed officials with FCC and NTIA, as
well as a wide variety of industry and other private stakeholders, such as
broadcasters, manufacturers, retailers, and consumer advocacy groups.
Further, we consulted strategic communications experts representing
public, private, and academic organizations to identify potential
challenges that might obstruct consumer education efforts. We performed
our review from January 2007 through August 2007 in accordance with
generally accepted government auditing standards. We discussed this
testimony with FCC and NTIA officials to obtain their comments. FCC and
NTIA provided additional information that we incorporated where
appropriate.

2NTIA established technical and performance specifications that converter
boxes must meet to be eligible for the coupon program.

In Summary:

           o Several federal and private stakeholders have begun consumer
           education campaigns, with both independent and coordinated efforts
           underway. FCC and NTIA have been involved in consumer education
           and awareness programs and some private sector organizations are
           voluntarily taking the lead on outreach efforts. For example, FCC
           has launched a Web site (DTV.gov) and NTIA has begun outreach
           efforts to groups most likely to lose all television service as a
           result of the transition--including at-risk groups such as the
           elderly--with "information sheets" and brochures. Private, public,
           and nonprofit groups have joined together to form the DTV
           Transition Coalition to coordinate on consumer education efforts
           and messages.

           o Widespread and comprehensive consumer education efforts have yet
           to be implemented, but additional efforts are currently being
           planned both for the general population and at-risk groups. FCC,
           NTIA, and private sector stakeholders have plans to further
           educate consumers as the transition nears. FCC solicited comments
           on proposed consumer education programs, including potentially
           requiring television broadcasters to conduct on-air consumer
           education efforts. The proposals also include potential
           requirements for industry to report on the status of their
           specific consumer outreach efforts, including those efforts
           targeted to at-risk groups. Included in NTIA's converter box
           subsidy program is a consumer education component--the details of
           which have not been made public. Some organizations, such as the
           DTV Transition Coalition and various industry trade associations,
           are planning information and education campaigns and some groups
           are planning to broadcast public service announcements.

           o Despite the efforts currently underway and those being planned,
           difficulties remain in the implementation of consumer education
           programs. While private sector organizations are conducting
           outreach efforts, these actions are voluntary and therefore the
           government cannot be assured of the extent of private sector
           efforts. Strategic communications experts from industry,
           government, and academia identified potential challenges to a
           consumer education campaign, including (1) prioritizing limited
           resources to target the right audience for an adequate period of
           time, (2) educating consumers who do not necessarily need to take
           action, (3) reaching underserved populations, such as the elderly
           and disabled, and (4) aligning stakeholders to form a consistent,
           coordinated effort.

           o In our ongoing work for the House Energy and Commerce committee
           and this committee, we plan on reporting on the progress of
           consumer education and awareness about the DTV transition
           throughout the upcoming transition period. For example, we will
           continue to monitor consumer education programs and plan to
           conduct a series of consumer surveys throughout the year prior to
           the transition date. These surveys will be aimed at estimating the
           population that will be affected by the DTV transition and the
           public awareness of the transition. We will estimate the percent
           of the population relying on over-the-air broadcasts, as well as
           demographic characteristics of the affected population to
           determine what groups might be most disrupted by the transition.
           We will report on changes in consumer awareness over time based on
           surveys we plan to conduct throughout the transition process. In
           addition, throughout the transition process, we will continue to
           assess government and industry consumer education efforts and
           analyze the efforts compared with key practices for consumer
           outreach.
			  
			  Background

           The United States is currently undergoing a transition from analog
           to digital broadcast television, often referred to as the DTV
           transition. The 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 and to broadcast solely digital transmissions after
           February 17, 2009. 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 can 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, eight private
           sector organizations launched the DTV Transition Coalition in
           February 2007. 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.3

           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 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 most people with some awareness of the
           transition had limited awareness of the date the transition will
           take place.

3While NTIA is not an official Coalition member, the agency has been
participating in Coalition activities since its inception. The Coalition,
as well as FCC and NTIA, have created Web sites providing information on
the DTV transition and converter box subsidy program. These Web sites are
available for viewing at the following addresses:
[20]www.dtvtransition.org , [21]www.dtv.gov ,
[22]www.ntia.doc.gov/dtvcoupon /index.html.

           Federal Government and Private Stakeholder Consumer Education
			  Efforts Are Underway

           Federal and private stakeholders are making progress in educating
           consumers about the DTV transition, with both independent and
           coordinated efforts underway. FCC and NTIA have been involved in
           consumer education and awareness programs and some private sector
           organizations are voluntarily taking the lead on outreach efforts.

           FCC has taken several steps toward educating consumers about the
           transition. For example, FCC has launched a Web site (DTV.gov),
           which, among other things, provides background information on the
           DTV transition and answers common consumer questions. In addition,
           FCC has met with some industry groups, consumer groups, and other
           government agencies and participated in public events intended to
           educate audiences about the transition. Moreover, in April 2007,
           FCC adopted a rule requiring all sellers of television-receiving
           equipment that does not include a digital tuner to prominently
           display a consumer alert that such devices will require a
           converter box to receive over-the-air broadcast television after
           February 17, 2009. To ensure that retailers are in compliance, FCC
           staff have inspected over 1,000 retail stores and Web sites and
           issued over 250 citations with potential fines exceeding $3
           million. In addition, FCC has issued notices to television
           manufacturers with potential fines over $2.5 million for importing
           televisions without digital tuners. In June 2007, FCC announced
           that it had re-chartered an intergovernmental advisory committee
           comprised of 15 representatives from local, state, and tribal
           governments to help it address, among other things, consumer
           education about the DTV transition. Similarly, it re-chartered a
           consumer advisory committee that will also make recommendations to
           FCC about the transition on behalf of consumers, with specific
           representation for people with disabilities and other underserved
           or at-risk populations.

           NTIA has also taken initial steps towards educating consumers
           about the transition. NTIA has statutory responsibility for the
           converter box subsidy program, for which Congress appropriated up
           to $5 million for education efforts. According to NTIA, its
           education efforts are focused on the subsidy program and more
           specifically on five groups most likely to lose all television
           service as a result of the transition: (1) senior citizens, (2)
           the economically disadvantaged, (3) rural residents, (4) people
           with disabilities, and (5) minorities. According to NTIA, it has
           begun outreach efforts to these groups through partnerships with
           private organizations as well as other federal agencies. Also, it
           has created "information sheets" for consumers, retailers, and
           manufacturers that outline the subsidy program and are available
           on its Web site. NTIA said it has provided informational brochures
           in English and Spanish to the public and provided a copy to every
           member of Congress and federal agencies that serve some of the
           populations noted above. The agency also created a consumer
           hotline that provides information about the transition in English
           and Spanish, and TTY numbers that provide information in English
           and Spanish to the hearing impaired. In addition, in August 2007,
           NTIA contracted with IBM to implement the broad consumer education
           component about the program.

           On a voluntary basis, some private stakeholders have begun
           implementing measures to inform consumers about the DTV
           transition. As previously mentioned, one such private-sector led
           effort is the DTV Transition Coalition, which has developed and
           consumer tested various messages about the transition, using
           surveys and focus groups of the affected consumers--the general
           population, senior citizens, minority groups, and over-the-air
           analog television households--to understand what messages are most
           effective in informing them about the transition. Subsequently,
           the Coalition said it agreed upon one concise message that
           includes information about the transition itself, the rationale
           for the transition, and the ways consumers can effectively switch
           to DTV. In particular, the Coalition suggests consumers can
           prepare for the transition by purchasing a DTV converter box,
           purchasing a new television set with a built in digital tuner, or
           subscribing to a pay television service such as cable, satellite,
           or telephone company video service provider. The Coalition said
           its member organizations will distribute this information to their
           constituents, including senior citizens, the disabled, and
           minority groups. The Coalition message will also be delivered to
           media outlets.

           In addition to coordinated efforts within the Coalition, private
           sector organizations also have independent education efforts
           underway. For example, a number of industry associations host Web
           sites that inform consumers of, among other things, common
           consumer questions about the transition, how to check if the
           television they own is digital-ready, and how to dispose of analog
           television sets. One national retailer told us that it added a
           feature to its registers so that when a consumer purchases an
           analog television, a message about the transition is printed on
           the bottom of the receipt.
			  
			  Many Consumer Education Efforts Are Still in the Planning Stages
			  and Have Not Been Widely Implemented

           Widespread and comprehensive consumer education efforts have yet
           to be implemented, but additional efforts are currently being
           planned. FCC, NTIA, and private sector stakeholders have plans to
           further educate consumers as the digital transition nears. The
           converter box subsidy program, to be administered by NTIA, will
           also have a consumer education component implemented by its
           contractor, IBM. Because many education efforts are in the
           planning or initial stages of implementation, it is too early to
           tell how effective these efforts will be.

           FCC has solicited input on proposed consumer education programs.
           In August 2007, in response to a letter containing proposals on
           advancing consumer education submitted by members of Congress, FCC
           released a notice of proposed rulemaking soliciting public
           comments. These proposals include requiring television
           broadcasters to conduct on-air consumer education efforts and
           regularly report on the status of these efforts, requiring cable
           and satellite providers to insert periodic notices in customers'
           bills about the transition and their future viewing options, and
           requiring manufacturers to include information on the transition
           with any television set or related device they import or
           distribute in the United States. Each of the requirements mentions
           civil penalties for noncompliance. Another proposal on which FCC
           sought comment would have FCC work with NTIA to require that
           retailers participating in the converter box subsidy program
           detail their employee training and consumer information plans, as
           well as have FCC staff spot check the retailers for compliance.
           Also, FCC sought comments on a proposal requiring partners
           identified on FCC's DTV.gov Web site to report their specific
           consumer outreach efforts. The comment period on the notice of
           proposed rulemaking is scheduled to close on September 19, 2007;
           the period to file any rebuttal closes October 1, 2007.

           NTIA also has not fully implemented education efforts about its
           subsidy program in large part because it is contracting out the
           consumer education component of its program. The contract was
           recently awarded in the middle of August 2007 to IBM and plans are
           in the development stage.

           Many private sector consumer education efforts are in the planning
           stages and have yet to be fully implemented. Representatives from
           private sector organizations told us there are several reasons why
           they are waiting to fully launch their consumer education
           campaigns. In particular, some said they are trying to time their
           education efforts for maximum effectiveness and that they do not
           want to start too early and possibly lose the attention of
           consumers later on. Another reason is that they are waiting for
           key events to occur, such as the availability of converter boxes
           in retail stores, so that education efforts can contain complete
           information. A number of nonprofit organizations told us that a
           lack of dedicated funding hampers their ability to educate and
           outreach to their constituents. Through its many member
           organizations, the DTV Transition Coalition intends to disseminate
           information about the transition in a variety of formats,
           including through presenting at conferences, creating media
           attention, and distributing informational materials to
           Congressional offices. The National Cable and Telecommunications
           Association has created public service announcements about the
           transition in both Spanish and English, which will be aired by
           cable operators and networks in markets throughout the country in
           the fall of 2007. The National Association of Broadcasters also
           has plans to launch a public service announcement campaign related
           to the transition by the end of 2007, which will air on its local
           television broadcasting affiliates, independent stations, and
           broadcast networks.
			  
			  Difficulties Remain in the Implementation of Consumer Education
			  Programs

           Despite efforts currently underway and those being planned,
           difficulties remain in the implementation of consumer education
           programs. Private sector organizations are participating in
           outreach efforts, but these actions are voluntary and therefore
           the government cannot be assured of the extent of private sector
           efforts. Moreover, given the different interests represented by
           industry stakeholders, messages directed at consumers vary and
           might lead to confusion. For example, in addition to providing
           information about why the transition is occurring, some industry
           stakeholders have incentives to provide consumers with information
           on a wide host of technology equipment or services that consumers
           could purchase, at varying costs. Advocates for the elderly,
           disabled, and non-English speaking households told us that they
           are concerned that their members will become confused by the
           options and end up purchasing equipment they do not need or more
           expensive equipment than necessary to maintain their television
           viewing.

           Further, we heard from strategic communication experts from
           industry, government, and academia that potential challenges might
           obstruct consumer education efforts. In particular, the experts
           and others highlighted several challenges:

           o 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. This is applicable because, according to
           industry stakeholders, there may be specific groups that are more
           vulnerable than others to losing television service.

           o 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 might 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.

           o Reaching underserved populations. Conveying the message to
           underserved populations, such as senior citizens, the disabled,
           those residing in rural areas, or non-English speaking households,
           will provide an added challenge. Many groups reaching out 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.

           o Aligning stakeholders. Industry representatives also noted the
           challenge of aligning stakeholders--some of whom 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.
           Some progress in aligning stakeholders, such as the formation of
           the DTV Transition Coalition, has been made, but some stakeholders
           may have competing interests. For example, recent announcements
           produced by the National Cable and Telecommunications Association
           invoke the DTV transition, but ultimately promote the role of
           cable television in the transition.
			  
			  Our Future Work Will Focus on Consumer Awareness of the DTV
			  Transition

           In our ongoing work for the House Energy and Commerce committee
           and this committee, we plan to assess the progress of consumer
           education and awareness about the DTV transition. We will continue
           to monitor consumer education programs and plan to conduct a
           series of consumer surveys throughout the year prior to the
           transition date. These surveys will be aimed at determining the
           population that will be affected by the DTV transition and the
           public awareness of the transition. In determining the affected
           population, we will look at the percent of the population relying
           on over-the-air broadcasts for their primary television, as well
           as the percent of the population with non-primary televisions
           being used to watch over-the-air television. Additionally, we will
           review the demographic characteristics of the affected population
           to determine what groups might be most disrupted by the
           transition. We will survey for public awareness of the DTV
           transition, and specific knowledge of the transition, such as when
           the transition will take place. We will seek to determine the
           level of public awareness of those who will be affected by the
           transition and awareness of the converter box subsidy program and
           other options for viewing digital signals after the transition. We
           plan to report on changes in consumer awareness over time by
           conducting surveys throughout the transition process.

           Furthermore, we will continue to assess government and industry
           consumer education efforts and will analyze the efforts compared
           with key practices for consumer outreach. We will review the
           government's responsibility for consumer education, monitor the
           outcome of FCC's notices of proposed rulemaking regarding the
           transition, and collect details on IBM's consumer education plan
           as they become available.

           Mr. Chairman, this concludes my prepared statement. I would be
           happy to respond to any questions you or other Members of the
           Committee may have at this time.
			  
			  Contacts and Acknowledgements

           For questions regarding this testimony, please contact Mark L.
           Goldstein on (202) 512-2834 or [email protected]. Individuals
           making key contributions to this testimony included Matthew Cail,
           Colin Fallon, Simon Galed, Bert Japikse, Crystal Jones, Sally
           Moino, Andrew Stavisky, and Margaret Vo.
			  
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Highlights of [24]GAO-07-1248T , a testimony before the Senate Special
Committee on Aging

September 19, 2007

DIGITAL TELEVISION TRANSITION

Preliminary Information on Initial Consumer Education Efforts

On February 17, 2009, federal law requires all full-power television
stations in the United States to cease analog broadcasting and broadcast
digital-only transmissions, often referred to as the digital television
(DTV) transition. Federal law also requires the National
Telecommunications and Information Administration (NTIA) to create a
program that subsidizes consumers' purchases of digital-to-analog
converter boxes. After the transition, households with analog sets that
rely on over-the-air broadcast signals must take action or they will lose
television service, but some households might not be aware of this
potential disruption. This testimony provides preliminary information on
(1) the consumer education efforts currently underway, (2) education
efforts being planned, (3) difficulties with the implementation of
consumer education programs, and (4) ongoing GAO work on consumer
education and awareness regarding the transition. GAO interviewed
officials with the Federal Communications Commission (FCC) and NTIA.
Further, GAO met with a wide variety of industry and other stakeholders
involved with the transition, including members of the DTV Transition
Coalition--a group of public and private stakeholders, and experts on
strategic communications. GAO discussed this testimony with FCC and NTIA
officials and incorporated their comments.

A number of federal and private stakeholders have begun consumer education
campaigns, with both independent and coordinated efforts underway. FCC has
taken several steps to promote consumer awareness, such as launching a Web
site, participating in events intended to educate the public, and
requiring sellers of televisions to include consumer alerts on non-digital
televisions. NTIA has created brochures in English and Spanish to provide
the public information about its converter box subsidy program and is
partnering with organizations to perform outreach to disadvantaged groups.
Earlier this year, the DTV Transition Coalition was launched to help
ensure that no consumer is left without broadcast television due to a lack
of information. Over 160 private, public, and non-profit groups have
joined the Coalition to coordinate consumer education efforts.

While widespread and comprehensive consumer education efforts have yet to
be implemented, various efforts are currently being planned. FCC, NTIA,
and private sector stakeholders have plans to further educate consumers as
the DTV transition nears. For example, voluntary public service
announcements to raise awareness of the transition are planned by industry
groups and FCC is considering requiring broadcasters, manufacturers and
cable and satellite providers to insert various messages and alerts in
their products and programming. In addition, the converter box subsidy
program will have a consumer education component. Because many education
efforts are in the planning or early stages of implementation, it is too
early to tell how effective these efforts will be.

Various factors make consumer education difficult. While private sector
stakeholders are participating in outreach efforts, these actions are
voluntary and therefore the government cannot be assured of the extent of
private sector efforts. Strategic communications experts from industry,
government, and academia identified potential challenges to a consumer
education campaign, including (1) prioritizing limited resources to target
the right audience, (2) educating consumers to help protect them from
making unnecessary purchases, (3) reaching underserved populations, and
(4) aligning stakeholders to form a consistent, coordinated effort.

GAO has work planned to assess the progress of consumer awareness. In
particular, GAO plans to conduct a series of surveys to determine the
population affected by the DTV transition, levels of awareness about the
transition, and demographic information about the affected population.
Throughout the transition, GAO will continue to monitor government and
industry education efforts and analyze these efforts relative to best
practices for consumer education campaigns. GAO plans to review the
government's responsibility for consumer education, monitor the outcome of
FCC's rulemaking related to consumer education, and collect details of the
consumer education component of the converter box subsidy program.

References

Visible links
  14. http://www.gao.gov/
  15. http://www.gao.gov/
  16. http://www.gao.gov/fraudnet/fraudnet.htm
  17. mailto:[email protected]
  18. mailto:[email protected]
  19. mailto:[email protected]
  20. http://www.dtvtransition.org/
  21. http://www.dtv.gov/
  22. http://www.ntia.doc.gov/dtvcoupon
  23. http://www.gao.gov/cgi-bin/getrpt?GAO-07-1248T
  24. http://www.gao.gov/cgi-bin/getrpt?GAO-07-1248T
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