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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