Foreign Assistance: Actions Needed to Better Assess the Impact of
Agencies' Marking and Publicizing Efforts (12-MAR-07,		 
GAO-07-277).							 
                                                                 
The negative perceptions of the United States associated with	 
U.S. foreign policy initiatives have underscored the importance  
of the United States presenting a complete portrayal of the	 
benefits that many in the world derive from U.S. foreign	 
assistance efforts. Congress has expressed concerns that the	 
United States has frequently understated or not publicized	 
information about its foreign assistance programs. As requested, 
this report (1) describes the policies, regulations, and	 
guidelines that agencies have established to mark and publicize  
foreign assistance; (2) describes how State, USAID, and other	 
agencies mark and publicize foreign assistance; and (3) 	 
identifies key challenges that agencies face in marking and	 
publicizing foreign assistance. 				 
-------------------------Indexing Terms------------------------- 
REPORTNUM:   GAO-07-277 					        
    ACCNO:   A66704						        
  TITLE:     Foreign Assistance: Actions Needed to Better Assess the  
Impact of Agencies' Marking and Publicizing Efforts		 
     DATE:   03/12/2007 
  SUBJECT:   Federal aid to foreign countries			 
	     Foreign aid programs				 
	     Foreign financial assistance			 
	     Foreign governments				 
	     Foreign policies					 
	     Interagency relations				 
	     International agreements				 
	     International food programs			 
	     International organizations			 
	     International relations				 
	     Policy evaluation					 
	     Program evaluation 				 
	     Public assistance programs 			 
	     Reporting requirements				 
	     Strategic planning 				 
	     Policies and procedures				 

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GAO-07-277

   

     * [1]Results in Brief
     * [2]Background
     * [3]Most Agencies Have Marking and Publicizing Policies, Regulat

          * [4]USAID Has Established Detailed Policies, Regulations, and Gu
          * [5]State Policy Allows Program Managers and Ambassadors Discret
          * [6]Most Agencies Have Established Some Requirements or Guidanc

     * [7]Foreign Assistance Marking Efforts and Publicity Have Varied

          * [8]Agencies Marking Efforts Vary

               * [9]USAID Using New Brand to Mark Its Foreign Assistance
                 Activit

          * [10]Other Agencies' Marking Efforts Vary

               * [11]State Department Marking Efforts

          * [12]USDA, DOD, and HHS Marking Efforts

               * [13]Agencies Exercise Flexibility in Making Decisions on
                 When to

          * [14]Embassies' Public Affairs Offices Generally Publicize Most U
          * [15]U.S. Embassy Public Affairs Foreign Assistance Publicity Eff

               * [16]USAID Foreign Assistance Publicity Efforts

     * [17]Challenges to Marking and Publicizing May Result in Missed O

          * [18]Agencies Conduct Some Research on Impact of U.S. Foreign Ass
          * [19]The United States Lacks Governmentwide Guidance for Marking

               * [20]DFA Faces Key Challenges in Coordinating Marking and
                 Publici

     * [21]Conclusions
     * [22]Recommendations for Executive Action
     * [23]Agency Comments and Our Evaluation

          * [24]Other Governments' Donor Organizations and the GTZ Use Marki
          * [25]Other Governments' Donor Organizations and the GTZ, to Varyi
          * [26]Other Donors' and the GTZ Publicizing Efforts Generally Targ
          * [27]Other Donors' and the GTZ Generally Do Not Formally Monitor

     * [28]GAO Contact
     * [29]Staff Acknowledgments
     * [30]GAO's Mission
     * [31]Obtaining Copies of GAO Reports and Testimony

          * [32]Order by Mail or Phone

     * [33]To Report Fraud, Waste, and Abuse in Federal Programs
     * [34]Congressional Relations
     * [35]Public Affairs

Report to the Ranking Minority Member, Committee on Foreign Affairs, House
of Representatives

United States Government Accountability Office

GAO

March 2007

FOREIGN ASSISTANCE

Actions Needed to Better Assess the Impact of Agencies' Marking and
Publicizing Efforts

GAO-07-277

Contents

Letter 1

Results in Brief 3
Background 5
Most Agencies Have Marking and Publicizing Policies, Regulations, and
Guidelines 7
Foreign Assistance Marking Efforts and Publicity Have Varied 12
Challenges to Marking and Publicizing May Result in Missed Opportunities
to Increase Public Awareness of U.S. Foreign Assistance 26
Conclusions 30
Recommendations for Executive Action 31
Agency Comments and Our Evaluation 31
Appendix I Scope and Methodology 33
Appendix II Key Marking and Publicity Practices Used in the Public Sector
36
Appendix III Other Governments' Donor Organizations and the GTZ Marking
and Publicity Practices 37
Appendix IV Statutes, Policies, Regulations, and Guidance for Marking or
Publicizing Foreign Assistance 41
Appendix V Comments from the Department of State 43
Appendix VI GAO Contact and Staff Acknowledgments 46

Table

Table 1: Key Agencies That Provide and Manage the Majority of Foreign
Assistance 6

Figures

Figure 1: Changes of USAID's Brand 13
Figure 2: USAID Sign with New USAID Brand at a Health Clinic in Indonesia
14
Figure 3: MEPI Logos 15
Figure 4: State Marking at Peruvian Police Training Academy 16
Figure 5: U.S. Embassy/Serbia-Developed Flag Logo Marks an Environmental
Project 17
Figure 6: USDA Food Aid Marking 18
Figure 7: DOD Marking of Humanitarian Daily Rations 19
Figure 8: DOD Marking of School Constructed in South Africa 20
Figure 9: HHS Marking of Talking Book in Afghanistan 21
Figure 10: Logos of Other Governments' Donor Organizations and the GTZ 38

Abbreviations

AusAID Australian Government's Overseas Aid Program
CIDA Canadian International Development Agency
DFA Director of Foreign Assistance
DFID Department for International Development
DOD Department of Defense
EU European Union
FAA Foreign Assistance Act
GTZ German Agency for Technical Cooperation
HHS Department of Health and Human Services
ICEIDA Icelandic International Development Agency
JICA Japan International CooperationAgency
MCC Millennium Challenge Corporation
MEPI Middle East Partnership Initiative
NGO Nongovernmental Organization
OTA Office of Technical Assistance
PEPFAR President's Emergency Plan for AIDS Relief
USAID U.S. Agency for International Development
USDA U.S. Department of Agriculture

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separately.

United States Government Accountability Office

Washington, DC 20548

March 12, 2007

The Honorable Ileana Ros-Lehtinen
Ranking Minority Member
Committee on Foreign Affairs
House of Representatives

Dear Mrs. Ros-Lehtinen:

The negative perceptions of the United States, associated with U.S.
foreign policy initiatives, have underscored the importance of the United
States presenting a complete portrayal of the benefits that many countries
in the world derive from U.S. foreign assistance efforts. A recent
worldwide survey by the Pew Research Center^1 and our reports have noted
that negative perceptions of the United States increased^2 in recent years
in response to U.S. foreign policy initiatives, particularly in the Middle
East.

The United States is one of the largest donors of foreign assistance to
countries around the world; however, many of the recipients of this aid
are unaware that it is provided by the United States. In fiscal year 2005,
the United States provided about $20 billion in humanitarian and
development assistance throughout the world to, among other things,
relieve suffering, educate children, feed the hungry, promote economic
opportunity, and support democracy and human rights. Congress has
expressed concerns that the United States has frequently understated or
not publicized information about its foreign assistance programs and, as a
result, the generosity of the people of the United States has not been
fully understood abroad.

^1The Pew Research Center for the People and the Press, America's Image
Slips, but Allies Share U.S. Concerns Over Iran, Hamas, Pew Global
Attitudes Project (June 13, 2006). Pew interviewed 16,710 people in Great
Britain, China, Egypt, France, Germany, India, Indonesia, Japan, Jordan,
Nigeria, Pakistan, Russia, Spain, Turkey, and the United States from March
31 through May 14, 2006.

^2GAO, U.S. Public Diplomacy: State Department Efforts Lack Certain
Communication Elements and Face Persistent Challenges, [36]GAO-06-707T
(Washington, D.C.: May 3, 2006). GAO, U.S. Public Diplomacy: State
Department Efforts to Engage Muslim Audiences Lack Certain Communication
Elements and Face Significant Challenges, [37]GAO-06-535 (Washington,
D.C.: May 3, 2006).

According to the United States Agency for International Development
(USAID), marking of foreign assistance refers to using methods such as
applying graphic identities or logos to program materials or project
signage to visibly acknowledge contributors and identify organizations
supporting the work. Publicity of assistance is the dissemination of
information about assistance to generate interest and create positive
perceptions in citizens of foreign countries. Marking and publicity are
complementary communication tools, but with different goals. Marking can
raise the awareness about the source of assistance with individuals who
come in contact with the assistance sites or materials, whereas publicity
can potentially communicate more detailed information about assistance to
broader audiences.

As requested, this report focuses on the efforts of key U.S. agencies^3 to
mark or publicize U.S. foreign assistance. It (1) describes the policies,
regulations, and guidelines that agencies have established to mark and
publicize foreign assistance; (2) describes how the Department of State
(State), USAID, and other agencies mark and publicize foreign assistance;
and (3) identifies key challenges that agencies face in marking and
publicizing foreign assistance. In addition, as requested, we describe
selected public sector and foreign government organizations' marking and
publicity practices.

To meet these objectives, we reviewed legislation forming the statutory
basis for marking and publicizing assistance, and obtained and analyzed
related agency documents. We also met with representatives from USAID, the
Departments of State, Agriculture (USDA), Defense (DOD), Health and Human
Services (HHS), Justice, the Treasury, and Millennium Challenge
Corporation (MCC). In addition, we met with representatives of
nongovernmental organizations, host governments, international assistance
organizations, and with executives working in the advertising industry. We
conducted fieldwork in Washington, D.C.; New York City; Indonesia;
Liberia; Montenegro;^4 Peru; Serbia; and South Africa. In this review, we
excluded the following foreign assistance: contributions to multilateral
organizations, military assistance that is related to acquisition of U.S.
military equipment and training, programs related to peacekeeping
operations, antiterrorism programs, and programs related to weapons
proliferation. We also excluded foreign assistance programs that provide
economic support payments to Middle East countries.

^3Key executive branch agencies that administer foreign assistance are
USAID and the Departments of State, Agriculture, Defense, Health and Human
Services, Justice, and the Treasury, as well as the Millennium Challenge
Corporation.

^4Our fieldwork in Montenegro and Serbia occurred shortly after the May
21, 2006, Montenegro referendum on independence from Serbia that resulted
in Montenegro's separation from Serbia. However, since this event was so
recent, the conditions we reviewed essentially reflected prereferendum
conditions.

We conducted our work from December 2005 through January 2007 in
accordance with generally accepted government auditing standards. Appendix
I contains a more detailed description on our scope and methodology.
Appendixes II and III contain information on public sector and other donor
key marking and publicizing practices.

Results in Brief

Most agencies we reviewed that are involved in foreign assistance
activities have established some marking and publicity requirements in
policies, regulations, or guidelines. USAID, which has the most detailed
policies and regulations, requires that the agency and its implementers
ensure that all programs, projects, activities, public communications, and
commodities be marked, except where waivers or presumptive exceptions are
granted. USAID also has established a network of communications
specialists at USAID missions worldwide to publicize the agency's
assistance efforts and has issued communications guidelines to promote
that assistance. State has not established agencywide assistance marking
or publicity requirements; but, according to State officials, the
department's policy is to allow its program managers and ambassadors to
use their discretion when determining which programs and activities should
be marked or publicized. USDA, DOD, HHS, Treasury, and MCC also have
established some policies for marking and publicizing foreign assistance,
though these policies vary in their level of formality and detail.

To increase awareness of U.S. assistance abroad, key agencies that we
reviewed used various methods to mark and to publicize some of their
activities and exercised flexibility in deciding when it was appropriate
to do so. These agencies used different methods of marking, or visibly
acknowledging, their assistance, including applying graphic identities or
logos on such things as publications and project signage. In addition,
agencies generally used embassy public affairs offices for publicizing or
disseminating information about the source of their assistance and, in
some cases, augmented these efforts with their own publicity methods.
USAID has developed the most extensive and formalized requirements for
marking its assistance, and its identifying mark communicates that the
agency is a U.S. entity and identifies the American people as the source
of the foreign assistance. Other agencies' marking efforts are not as
extensive or as formalized as those of USAID. For example, State's Middle
East Partnership Initiative (MEPI) developed two versions of a logo;
however, State did not specify which logo implementing organizations
should use--which, at times, created confusion with project implementers
regarding the appropriate use of the MEPI logo. Further, in the countries
we visited, we saw various marks used by agencies to identify U.S. foreign
assistance--such as the use of the U.S. flag in combination with host
country flags as well as program logos. Only USAID and Treasury's Office
of Technical Assistance (OTA) have established a process for determining
when marking requirements can be modified or suspended to allow for
differences in the nature of foreign assistance projects and special
circumstances that could include safety and security concerns. Embassy
public affairs offices are responsible for publicizing activities of all
U.S. agencies, through press releases, Web sites, speeches by U.S.
officials, and other means. These efforts are augmented by other agencies
efforts, such as USAID--which has established a global network of
communications specialists to publicize its programs, while DOD public
affairs staff publicize information about some DOD activities, such as
tsunami relief assistance.

We identified some challenges to marking and publicizing U.S. foreign
assistance, including the lack of (1) a strategy for assessing the impact
of marking and publicity efforts on increasing the awareness of U.S.
foreign assistance and (2) governmentwide guidance for marking and
publicizing U.S. foreign assistance. First, although some agencies conduct
surveys in recipient countries that primarily capture information on
public opinion of the United States, little reliable work has been done to
assess the impact of U.S. assistance on foreign citizens' awareness
concerning the source of the assistance. For example, although State's
Bureau of Intelligence and Research conducts approximately 120 surveys per
year in about 80 countries, according to a State official, these surveys
focus on tracking trends in the foreign public's perception of the United
States to serve U.S. public diplomacy efforts and do not assess public
awareness of U.S. foreign assistance activities or the effectiveness of
those activities. Second, we found that USAID missions, federal agencies,
and presidential initiatives providing assistance overseas have not
received clear and consistent direction on marking and publicizing U.S.
foreign assistance. For example, of the five countries we visited, the
embassy strategic planning document of three countries--the Mission
Performance Plan--did not identify increasing awareness of U.S. assistance
as part of the country strategy, nor did any of the embassies receive
specific guidance on this issue. While the newly appointed Director of
Foreign Assistance (DFA) has begun to address the issue of developing a
governmentwide policy for marking and publicizing all U.S. foreign
assistance, it is unclear to what extent this policy will be implemented
by agencies whose foreign assistance programs are not under DFA's direct
authority.

We are making two recommendations to the Secretary of State to enhance
efforts to mark and publicize U.S. assistance. Specifically, we recommend
that the Secretary of State work in conjunction with other executive
agencies to (1) develop a strategy, which appropriately utilizes
techniques such as surveys and focus groups, to better assess the impact
of U.S. marking and publicity programs and activities on public awareness
and (2) establish interagency agreements to facilitate implementation of
State's planned governmentwide guidance for marking and publicizing U.S.
foreign assistance.

We received written comments on a draft of this report from State (see
app. V) indicating that it concurred with our recommendations. We also
received technical comments on this draft from USAID, State, DOD, and MCC,
which we incorporated where appropriate.

Background

For the purposes of this report, foreign assistance is any tangible or
intangible item provided by the U.S. government to a foreign country or
international organization, including but not limited to any training,
service, or technical advice; any item of real, personal, or mixed
property; any agricultural commodity, U.S. dollars, and any currencies of
any foreign country that are owned by the U.S. government. Foreign
assistance has grown in complexity in recent years as the United States,
through the efforts of a wide spectrum of U.S. agencies, has used foreign
aid to address transforming events such as the end of the Cold War; the
terrorist attacks of September 11, 2001; and the HIV/AIDS pandemic. This
report focuses on bilateral foreign assistance^5 that includes development
foreign assistance programs to promote sustainable economic progress and
stability; economic foreign assistance in support of U.S. political and
security goals; and humanitarian foreign assistance, which primarily
addresses immediate humanitarian emergencies.

^5In this review, we excluded contributions to multilateral organizations,
military assistance that is related to acquisition of U.S. military
equipment and training, programs related to peacekeeping operations,
antiterrorism programs, and programs related to weapons proliferation. We
also excluded foreign assistance programs that provide economic support
payments to Middle East countries.

Table 1: Key Agencies That Provide and Manage the Majority of Foreign
Assistance

Agency      Description of foreign assistance related activities           
USAID       Implements the largest portion of bilateral development and,   
               with State, economic foreign assistance programs, including    
               technical assistance and capacity building, training and       
               scholarships, food aid and disaster relief, infrastructure     
               construction, and small enterprise loans.                      
State       Administers economic and humanitarian foreign assistance       
               programs such as narcotics control, international law          
               enforcement, and refugee relief. State implements some of its  
               foreign assistance programs through other agencies such as     
               USAID, HHS, and Justice. Further, the U.S. ambassador, as      
               chief of mission, has authority over all U.S. government       
               activities in a foreign country.                               
Agriculture USDA's Foreign Agricultural Service provides U.S. agricultural 
               commodities to assist millions of people in needy countries    
               through direct donations and concessional programs.            
DOD         Provides deployments of U.S. military personnel to plan,       
               oversee, and conduct specific humanitarian projects and        
               activities including assistance to host nation civilian        
               authorities in disaster preparedness, mitigation and response, 
               such as search and rescue and provision of humanitarian daily  
               rations. Also provides training in identification, removal     
               techniques, safety, and education in awareness and risk of     
               explosive remnants of war. Additional assistance includes the  
               donation of nonlethal excess DOD property and other relief     
               supplies to nations in need, transportation of privately       
               donated relief materials, and training and material assistance 
               to host nations' HIV/AIDS and Avian Influenza prevention       
               programs.                                                      
HHS         Several offices conduct assistance programs and activities     
               abroad supporting activities such as the President's Emergency 
               Plan for AIDS Relief (PEPFAR) and promotes global health in    
               many areas, including providing training to health specialists 
               in epidemiology, surveillance, U.S. regulatory requirements,   
               and management.                                                
Justice     Implements training and technical assistance programs, funded  
               primarily by State, that include law enforcement,              
               prosecutorial development, international narcotics control,    
               and financial crimes.                                          
Treasury    OTA provides financial advice around the world, primarily      
               through advisors who work directly with foreign government     
               officials to support their efforts to improve their financial  
               systems.                                                       
MCC         Provides foreign assistance to developing nations with a       
               demonstrated commitment to political, economic, and social     
               reforms.                                                       

Sources: The Departments of Agriculture, Defense, HHS, Justice, State, and
the Treasury; USAID and MCC.

Provisions in the Foreign Assistance Act of 1961, as amended (FAA), and
Public Law 480 (P. L. 480), are the statutory basis for existing
regulations and policies for marking and publicizing most U.S. foreign
assistance. Specifically, Section 641 of the FAA provides that "programs
under this Act shall be identified appropriately overseas as `American
Aid.' " Section 202 of P.L. 480 requires that, to the extent practicable,
commodities provided under that act be clearly identified with appropriate
markings in the local language as being furnished by "the people of the
United States." In addition, section 403(f) of P.L. 480 requires that
foreign countries and private entities receiving P.L. 480 commodities will
widely publicize "to the extent practicable" in the media that the
commodities are provided "through the friendship of the American people as
food for peace." However, a major foreign assistance agency, the
Millennium Challenge Corporation, which is authorized and funded under
legislation other than the FAA or P.L. 480, is not subject to explicit
statutory marking or publicity requirements. The 2004 Intelligence Reform
Act, in establishing broad public diplomacy responsibilities for the
Department of State, assigned State a coordination role regarding marking
and publicizing U.S. foreign assistance and called for closer cooperation
between State and USAID in these efforts. Appendix IV provides more
detailed information on the statutory provisions and agencies' policies,
regulations, and guidelines for marking and publicizing U.S. foreign
assistance.

To better coordinate U.S. foreign assistance activities, the Secretary of
State appointed a DFA in January 2006, who is charged with directing the
transformation of the U.S. government approach to foreign assistance. The
DFA serves concurrently as USAID Administrator, ensuring that foreign
assistance is used as effectively as possible to meet broad foreign policy
objectives. The DFA:

           o Has authority over all USAID and most State foreign assistance
           funding and programs, with continued participation in program
           planning, implementation, and oversight conducted by the various
           bureaus and offices within State and USAID, as part of the
           integrated interagency planning, coordination, and implementation
           mechanisms;
           o Develops a coordinated U.S. government foreign assistance
           strategy, including multiyear country specific assistance
           strategies and annual country-specific assistance operational
           plans;
           o Creates and directs consolidated policy, planning, budget, and
           implementation mechanisms and staff functions required to provide
           overarching leadership to foreign assistance; and
           o Provides guidance to foreign assistance delivered through other
           agencies and entities of the U.S. government, including the MCC
           and the Office of the U.S. Global AIDS Coordinator.
			  
			  Most Agencies Have Marking and Publicizing Policies, Regulations,
			  and Guidelines

           Most of the agencies we reviewed involved in foreign assistance
           activities have established some marking policies, regulations,
           and guidelines. USAID has established the most detailed policies,
           regulations, and guidelines for marking and publicizing its
           assistance. State has also established marking and publicity
           policies for two presidential initiatives, MEPI and PEPFAR.
           However, USDA, DOD, HHS, Treasury, and MCC efforts in this area
           have been more limited. Since Justice does not have independent
           authority to conduct foreign assistance but implements politically
           sensitive programs for State and USAID, it has not established
           departmentwide marking or publicity policies, but allows its
           component agencies to determine when it is appropriate to mark and
           publicize their activities. Appendix IV provides the statutory
           provisions and agencies' policies, regulations, and guidelines for
           marking or publicizing U.S. foreign assistance.
			  
			  USAID Has Established Detailed Policies, Regulations, and
			  Guidelines

           To ensure that U.S. taxpayers receive full credit for the foreign
           assistance they provide, USAID in 2004 undertook a campaign to
           clearly communicate that USAID foreign assistance is from the
           American people. This campaign included publication of a Graphic
           Standards Manual containing new marking guidelines and the
           development of a new Graphic Identity.^6 In January 2006, USAID
           revised its foreign assistance awards regulations to include new
           marking requirements for USAID staff and all nongovernmental
           organizations (NGO) receiving funding under grants and cooperative
           agreements.^7 The regulations require that all programs, projects,
           activities, public communications, and commodities partially or
           fully funded by a USAID grant or cooperative agreement be marked
           appropriately overseas with the Graphic Standards Manual's Graphic
           Identity of a size and prominence equal to or greater than the
           recipient's or other donors' logos or identities. The regulations
           provide for presumptive exceptions and waivers to the marking
           requirements.^8 USAID's final guidance for contractors, ADS 320,
           issued January 8, 2007, includes more comprehensive information on
           the process for preparing and approving marking plans and branding
           strategies in contracts and also eliminates the use of the USAID
           brand on NGO's and contractors' business cards.

           Also, USAID's Food for Peace program regulations^9 prescribe the
           terms and conditions governing activities under Title II of P.L.
           480, including provisions for implementing the marking
           requirements of section 202 of that law. The regulations require
           that, to the maximum extent practical, public recognition be given
           in the media that Title II-funded commodities or foreign
           assistance have been "provided through the friendship of the
           American people as food for peace"; cooperating sponsors, to the
           extent feasible, display banners, posters, and similar items at
           project sites containing similar identifying information; and,
           unless otherwise specified, bags or other containers of
           commodities packaged for shipment be similarly marked. The
           regulations also require that containers of donated commodities
           packaged or repackaged by cooperating sponsors prior to
           distribution be plainly labeled with the USAID emblem, and, where
           practicable, with the legend, "Provided through the friendship of
           the American people as food for peace."

           In addition, USAID has established regulations prescribing rules
           and procedures for the marking of shipping containers and
           commodities under commodity transactions financed by USAID. These
           regulations require that suppliers of such commodities be
           responsible for ensuring that all export packaging and the
           commodities carry the official USAID emblem, except where USAID
           prescribes otherwise in the case of commodities. The regulations
           also prescribe the manner in which the export shipping containers,
           cartons, or boxes are to be marked; how the USAID emblem is to be
           affixed to the containers; the size, design, and color of the
           emblem; exceptions to the requirement to affix the emblem; and
           waivers to the marking requirement where it is found to be
           impracticable.

           To publicize its foreign assistance, in 2004, USAID established
           communications guidelines and a network of over 100 communications
           specialists located at USAID missions around the world to promote
           the agency's foreign assistance abroad. The guidelines for
           communications specialists delineate their role, which is to be a
           comprehensive resource for information regarding USAID's work and
           its impact on the citizens of the host country, and provide
           guidance on the activities the communication specialists may
           undertake to fulfill this role. These outreach functions include
           responding to inquiries about USAID programs, collaborating with
           the embassy public affairs office on strategies, speech writing
           for the USAID mission director and others, preparing press
           releases, and coordinating Web site updates.
			  
			  State Policy Allows Program Managers and Ambassadors Discretion
			  for Marking and Publicizing Assistance

           According to State officials, State's policy provides that
           department program managers and country ambassadors use their
           discretion to determine when it is appropriate to mark and
           publicize U.S. foreign assistance. As a result, some programs mark
           and publicize activities while others do not. For example, State
           has established guidelines for project implementers to acknowledge
           State's support for two presidential initiatives that State
           manages: MEPI and PEPFAR. The MEPI guidelines require NGOs that
           implement MEPI programs to include, in all public programs and
           publications, standard language acknowledging the support of MEPI
           and State. For PEPFAR, the Office of the U.S. Global AIDS
           Coordinator has instructed its implementing agencies to place the
           PEPFAR logo on all materials procured as part of the PEPFAR
           initiative. However, more sensitive Department of State activities
           are generally not marked or publicized. For example, according to
           State officials, in Peru, it is embassy policy to decide on a
           case-by-case basis, in close consultation with the host
           government, the appropriate type and extent of publicity to give
           counter-narcotics foreign assistance activities done in
           partnership with the host government. In addition, State officials
           noted that other assistance programs, such as those focusing on
           counter-terrorism and weapons proliferation, are not generally
           marked, but these efforts may be publicized.
			  
			  Most Agencies Have Established Some Requirements or Guidance for
			  Marking and Publicizing Foreign Assistance

           Agencies' efforts in establishing requirements or guidance for
           marking and publicizing their foreign assistance include the
           following:

           o USDA has issued regulations^10 for its Foreign Agricultural
           Service that establish labeling requirements for commodities
           donated under its program for international food for education and
           child nutrition. The regulations require containers of commodities
           packaged or repackaged by a cooperating sponsor to indicate that
           the commodities are furnished by the people of the United States
           of America; if the commodities are not packaged, the cooperating
           sponsor must display such items as banners or posters with similar
           information. The Foreign Agricultural Service also has included
           standard language in all its food aid agreements with its
           implementing partners requiring them to highlight their programs
           in local media in the recipient country, identify USDA as the
           funding source in the media and to program participants, and to
           recognize USDA in all USDA-funded printed material.
           o DOD has established policy and program guidance for publicizing
           overseas humanitarian activities to ensure their maximum
           visibility and publicity. The policy and guidance provides that
           project planners and implementers will coordinate appropriate
           public affairs activities with embassy and combatant command
           public affairs officers, and, where appropriate, provide some
           tangible or visible marker of DOD involvement at the site of the
           activity.
           o HHS has established its own policies related to marking and
           publicizing HHS activities. HHS officials told us that the
           agency's departmentwide grants policy, as required by its annual
           appropriations acts, provides that all HHS grants recipients must
           acknowledge U.S. assistance when publicly describing a project.
           Also, HHS health projects are generally marked with the logos of
           HHS and the other HHS units such as the Centers for Disease
           Control or the National Institutes of Health that are involved in
           implementing the foreign assistance. HHS carries out foreign
           assistance programs under PEPFAR and the President's Malaria
           Initiative; HHS officials stated that the Office of the U.S.
           Global AIDS Coordinator has instructed HHS and its operating
           divisions to place the PEPFAR logo on all materials procured as
           part of the PEPFAR Initiative.
           o Treasury officials said they were not aware of agencywide policy
           on marking and publicizing foreign assistance activities. However,
           OTA issued its own marking policy, effective December 7, 2006, for
           certain types of foreign assistance provided by that office. This
           policy requires that the foreign assistance must be identified
           with the seal of the Treasury and the tagline: "From the American
           People." The policy covers any material, goods, or equipment
           provided by OTA to foreign government agencies or central banks;
           any public communications intended for distribution to foreign
           government officials; and any training courses or conferences
           sponsored and financed by OTA for the benefit of foreign
           government officials. In addition, the policy contains presumptive
           exceptions for waiving the marking requirements.

           o While MCC's organic legislation, the Millennium Challenge Act of
           2003, does not contain an explicit marking or publicity
           requirement for the foreign assistance it authorizes, MCC provides
           for such a requirement in its country compacts. MCC has
           distributed a marking and publicity policy that, according to
           agency officials, requires recipient countries and accountable
           entities to provide marking and publicity requirements to
           acknowledge the foreign assistance from MCC as being from the
           American people.

           o However, Justice officials said they rely on individual Justice
           agencies to determine when it would be appropriate to mark and
           publicize their activities. Justice officials said they have not
           issued guidance on assistance marking and publicity, and added
           that most of the agency's foreign assistance is not marked because
           of its sensitive nature. Some Justice officials said that they
           follow embassy guidance on when to mark and publicize the agency's
           foreign assistance activities. For example, Justice program
           managers in Indonesia and Serbia told us they had received no
           guidance from Justice headquarters on marking and publicizing
           agency activities, and the program manager in Indonesia said he
           follows embassy guidance in determining what to mark and how to do
           so.
			  
			  Foreign Assistance Marking Efforts and Publicity Have Varied

           To increase awareness of U.S. assistance abroad, key agencies that
           we reviewed used various methods to mark and to publicize some of
           their activities and exercised flexibility in deciding when it was
           appropriate to do so. These agencies used different methods of
           marking, or visibly acknowledging, their assistance, including
           applying graphic identities or logos on such things as
           publications and project signage. In addition, agencies generally
           used embassy public affairs offices for publicizing, or
           disseminating information about, the source of their assistance
           and, in some cases, augmented these efforts with their own
           publicity methods.
			  
			  Agencies Marking Efforts Vary

           USAID has established the most detailed processes of uniformly
           marking its assistance activities, while other key agencies either
           mark their assistance activities in some way, or they provide
           reasons for not marking some assistance. USAID has established a
           universal brand that conveys that the assistance is from USAID and
           the American people. Other agencies either use multiple logos, and
           in some cases, they use logos that do not convey that the agency
           is a U.S. entity or that the United States is the source of the
           assistance.
			  
			  USAID Using New Brand to Mark Its Foreign Assistance Activities

           After the 9/11 terrorist attacks, recognizing the connection
           between national security and the good will toward the United
           States that could be created if more accurate information about
           U.S. foreign assistance was widely known, agency officials
           determined that they should portray more complete and accurate
           information about USAID foreign assistance. To help focus its
           image abroad, USAID developed its new brand by updating a former
           USAID logo, and combining it with the agency brand name and a
           tagline, "From the American People."

           Although USAID first began marking assistance over four decades
           ago, agency officials acknowledged that it has not always
           systematically or effectively marked its foreign assistance. USAID
           had existing standards that specified that its foreign assistance
           activities were to be marked, but these standards were not
           consistently enforced; and at times, U.S. foreign assistance was
           marked with the implementer's logos and program names instead of
           the agency logo. Agency officials told us that it was often
           difficult for people to know that the foreign assistance they
           received was coming from the United States. USAID officials said
           they viewed the multiple brands used by USAID implementers as
           potentially confusing to recipients. However, in the past, some
           USAID staff believed that spending money on marking foreign
           assistance could take away funds from other foreign assistance
           activities, and therefore were reluctant to incur these costs.^11
           Also, USAID staff and implementers were concerned that
           communication about foreign assistance could potentially draw
           unwanted attention to the projects and make staff vulnerable.
           Figure 1 illustrates changes of USAID's brand over time, and
           figure 2 illustrates the use of USAID's current brand.

^6In this report, we will refer to the new USAID graphic identity as the
USAID brand.

^7The revised regulations for marking assistance provided under grants and
cooperative agreements are at 22 C.F.R. 226.91. AAPD 05-11 (Dec.13, 2005)
implements the marking requirements of 22 C.F.R. 226.91. Also, see USAID
policy at ADS 320 and its acquisition regulations at AIDAR Clause 752.7009
(Jan. 1993) regarding marking guidance for USAID contractors. Grants and
cooperative agreements are legal instruments for the transfer of money,
property, or services to the recipient to accomplish a public purpose.
Under grants substantial involvement of the granting agency is not
anticipated, whereas under cooperative agreements, the donor agency
anticipates it will have substantial involvement in the implementation of
the agreement.

^8The intent of the USAID marking requirement is that programs and
projects are marked, not people. Marking of vehicles, offices, and other
administrative items for internal use by the recipient is not required.

^922 C.F.R. 211.

^10Regulations issued at 7 C.F.R. Part 1599.

Figure 1: Changes of USAID's Brand

^11A number of representatives of assistance organizations told us that it
was not difficult or very costly to mark assistance.

Figure 2: USAID Sign with New USAID Brand at a Health Clinic in Indonesia

Other Agencies' Marking Efforts Vary

While other departments and agencies also mark the foreign assistance that
they provide, these efforts vary. In some cases, the markings used do not
convey that the donor is a U.S. entity or that the United States is the
source of the foreign assistance.

  State Department Marking Efforts

State gives discretion to its department program managers and ambassadors
to determine when and how it is appropriate to mark and publicize U.S.
foreign assistance. Marking decisions are made at each U.S. embassy to
account for the sensitive nature of the foreign assistance and the local
conditions in country. State officials told us that, because State's
foreign assistance addresses a wide range of issues--such as narcotics
control, international law enforcement, terrorism, weapons proliferation,
non-U.N. peacekeeping operations, refugee relief, the Global AIDS
Initiative, and economic support--they did not see any benefits from using
a single visual image or mark. Therefore, embassies have used a number of
symbols to mark their foreign assistance, including program logos, a
bureau seal or unit name, the Department of State seal, or an embassy
logo.

State manages MEPI, and has agreements with its project implementers on
how MEPI assistance, which can include publications, products, and
services, is to be acknowledged. State generally leaves most decisions on
when to use the program logo to its implementing organizations but
specifies that, if used with logos of other cofunding organizations, the
MEPI logo should not be smaller than the others. Additionally, State has
developed more than one version of the MEPI logo, one of which does not
include the name of either the United States or the Department of State
(see fig. 3).

Figure 3: MEPI Logos

The lack of clear marking requirements has at times created confusion with
project implementers regarding the appropriate use of the MEPI logo. For
example, in one instance a project implementer copied the logo without the
U.S. tagline--"U.S.-Middle East Partnership Initiative"--from the MEPI Web
site and used it on promotional materials, when the logo with the tagline
would have been more appropriate, according to MEPI officials. In
addition, a small portion of MEPI projects are implemented by USAID, and
these projects follow USAID branding policy, according to an agreement
between State and USAID.

In other State marking efforts that clearly identified the U.S. government
as the source of foreign assistance, there were differences in appearance
from one mark to another. For example:

           o In a Peruvian police training academy that prepared recruits to
           support narcotics eradication teams, a computer room provided by
           State's Narcotics Affairs Section was marked with the unit's
           initials and the U.S. and Peruvian flags (see fig. 4).

           Figure 4: State Marking at Peruvian Police Training Academy

           o In Montenegro, a U.S. foreign assistance site was marked with a
           sign that included the Department of State emblem and the emblem
           of Serbia-Montenegro with a description of the project in English
           and the local language.
           o In Serbia, State foreign assistance was marked with an
           embassy-developed logo in which the U.S. and Serbian flags were
           joined to form a bridge (see fig. 5).

           Figure 5: U.S. Embassy/Serbia-Developed Flag Logo Marks an
           Environmental Project
			  
			  USDA, DOD, and HHS Marking Efforts

           Other agencies generally determine how to mark their foreign
           assistance on a program-by-program basis. For example:

           o USDA specifies marking requirements in the programs' grants and
           cooperative agreements. USDA's food aid agreements require that
           the U.S. government is identified as the sources of the foreign
           assistance, while USDA grants and cooperative agreements that
           provide technical foreign assistance specify that printed
           materials include an acknowledgement that the United States is the
           source of the foreign assistance (see fig. 6). For Title II food
           programs managed by USAID, the USAID mark is used.

           Figure 6: USDA Food Aid Marking

           o DOD marks its humanitarian foreign assistance products and
           sites. For example, DOD's humanitarian daily ration packages were
           marked with a U.S. flag and a statement that the food gift was
           from the people of the United States. In South Africa, a sign for
           a DOD humanitarian foreign assistance project was marked with the
           U.S. and South African flags (see figs. 7 and 8).

           Figure 7: DOD Marking of Humanitarian Daily Rations

           Figure 8: DOD Marking of School Constructed in South Africa

           o HHS' health projects are generally marked with the HHS logo and
           those of other HHS units involved in implementing the foreign
           assistance. For example, an HHS-developed book--which was written
           for use in Afghanistan and provided information on HIV/AIDS--used
           U.S. and Afghani flags to mark the material. It also included a
           recorded message in two local languages stating that the book was
           being provided by U.S. taxpayers (see fig. 9).

           Figure 9: HHS Marking of Talking Book in Afghanistan
			  
			  Agencies Exercise Flexibility in Making Decisions on When to Mark 
			  Foreign Assistance

           The agencies we reviewed stated that when making decisions on
           whether or how to mark foreign assistance, they exercise
           flexibility to allow for variations in the nature of foreign
           assistance, risks to implementers, or other special circumstances
           that foreign assistance activities may entail. Some of these
           activities are more readily marked than others. Moreover,
           circumstances may occur when U.S. foreign assistance marking may
           need to be modified or withheld due to safety, political, or other
           concerns, such as concerns associated with advising high-level
           government officials or providing foreign assistance in volatile
           issue areas such as narcotics control. Also, at certain times,
           such as before elections, marking of foreign assistance activities
           may be suspended to remove any association of U.S. foreign
           assistance with certain issues--such as the connection between
           funding a health clinic and the issue of reproductive health. In
           other cases, marking may be withheld to ensure the local
           government's ownership of the programs is not called into
           question.

           USAID and OTA have established a process for determining when to
           modify its marking requirements to allow for the differences in
           the nature of foreign assistance projects and special
           circumstances that may be related to foreign assistance
           implementation. USAID's marking regulations identify a number of
           conditions under which the agreement officer can consider
           approving exceptions to marking requirements.^12 For example, in
           Serbia, in order to not compromise the perceived neutrality of
           program activities and diminish the credibility of materials
           produced during the course of the project, USAID approved
           exceptions to marking requirements for certain activities
           associated with a civil society project in public policy advocacy
           and reform. USAID regulations also allow for the possibility that,
           political, safety, or security conditions could warrant a request
           to the mission director or the most senior USAID officer at the
           mission for a full or partial waiver of the marking requirements.
           For example, in Indonesia, the mission director approved a waiver
           of the marking requirements for a project designed to demonstrate
           democracy's compatibility with Islam because of threats from
           religious fundamentalists to the safety of the individuals
           involved in the project. In December 2006, OTA had formalized its
           guidance on determining when marking requirements for a particular
           project should be modified or suspended. While this guidance
           states that much of OTA's work that includes oral advice or
           technical assistance provided to foreign governments and central
           banks is not marked, its rules for marking any commodities, public
           communications, or training courses provided by OTA may be waived
           in writing by the OTA Director or designee for conditions that
           include safety or security concerns, adverse political impact, and
           potential compromise of the intrinsic independence of a program or
           materials such as public service announcements.
			  
			  Embassiesâ Public Affairs Offices Generally Publicize Most U.S.
			  Assistance

           The U.S. ambassador, as chief of mission, has authority over all
           U.S. government activities in a foreign country, and the embassy
           public affairs office publicizes U.S. foreign assistance
           activities through press releases, Web sites,^13 and speeches by
           U.S. officials. To enhance publicity of its foreign assistance
           programs, USAID has also, as mentioned earlier, established a
           network of communications specialists to increase awareness of
           these programs in the host country. At the time of our field
           visits, the public affairs officers and USAID communication
           specialists were still defining their roles in publicizing U.S.
           foreign assistance. For example, the ambassador in Liberia and the
           public affairs officer in Indonesia expressed the opinion that all
           U.S. foreign assistance should be publicized by the embassy public
           affairs sections and did not see the need for separate USAID
           communications specialists.
			  
			  U.S. Embassy Public Affairs Foreign Assistance Publicity Efforts

           Following are some examples of foreign assistance publicity
           efforts conducted by the embassy in the countries we visited.

           o In Indonesia, in fiscal year 2003, the public affairs office
           developed a program to enhance media coverage of U.S. assistance
           and publicized 11 assistance projects. In February 2006, the
           embassy issued a press release on the distribution of books and
           school supplies funded by the United States to Indonesian school
           children. The distribution, done in cooperation with two leading
           Islamic organizations, supported the mutual goal of improving
           education and highlighted shared values between the two countries.
           o In Liberia, in June 2006, the embassy issued a press release on
           the launching of a USAID funded radio teacher training program.
           o In Peru, in June 2006, the public affairs office issued a press
           release on joint U.S.-Peruvian military exercises, which included
           DOD humanitarian foreign assistance to construct health clinics,
           done in conjunction with the exercises. These efforts were
           publicized to dispel citizens' anxiety over U.S. military
           exercises in that country. However, because of the sensitivity of
           some other activities in Peru, according to State officials, it is
           embassy policy to decide on a case-by-case basis, in close
           consultation with the host government, the appropriate type and
           extent of publicity to give counter-narcotics foreign assistance
           activities done in partnership with the host government.
           o In Serbia, the embassy public affairs office has issued press
           releases on U.S. foreign assistance provided by USAID, State,
           USDA, DOD, Justice and other agencies. For example, in April 2006,
           the embassy issued a press release on a Justice-implemented
           program to support the organized crime and war crimes specialized
           institutions.
           o In South Africa, the public affairs office has issued press
           releases on U.S. foreign assistance provided by USAID, State, HHS,
           MCC, and other agencies. For example, in January 2006, the embassy
           issued a press release on a HHS -implemented HIV vaccine research
           initiative.
			  
			  USAID Foreign Assistance Publicity Efforts

           In 2004, USAID established and trained a network of development
           outreach and communications specialists^14 to enhance the skills
           of officers who handle public outreach and media and improve
           coordination among USAID staff, foreign assistance implementing
           partners, and the embassy public affairs sections. An assessment
           of public diplomacy in the Muslim world, issued in 2003 by the
           Advisory Group on Public Diplomacy for the Arab and Muslim World,
           concluded that too few people knew the extent of USAID's
           activities and recommended closer integration of the public
           diplomacy activities of agencies that administer foreign
           assistance.^15 The communications specialists are responsible for
           publicizing USAID foreign assistance (1) by developing public
           outreach and media materials and strategies and (2) by providing
           general communications support through writing, media relations,
           Web site development, and review of foreign assistance proposals.
           These specialists also work with public relations staff hired by
           foreign assistance implementing organizations to support them in
           addressing community relations issues and publicizing their
           projects. USAID has now placed these specialists at most missions;
           a few large missions have been assigned more than one
           communication specialist, while at a few small missions, program
           officers have been asked to perform these tasks. The communication
           specialists' resources vary based on individual USAID missions'
           decisions on how to fund their work and whether USAID headquarters
           has provided additional funds for communication pilot activities.

           Following are examples of initiatives communications specialists
           have carried out.

           o A pilot^16 communication campaign project in Indonesia, which
           was funded by USAID headquarters, involved communications officers
           overseeing the development and production of a radio, TV, and
           print advertisement campaign that focused on health care,
           education, and economic growth partnerships between American and
           Indonesian people. The purpose of this and other communication
           campaign pilots was to identify effective practices in foreign
           assistance publicity.
           o In Peru, communications specialists worked with implementing
           organizations to develop and distribute--for eventual broadcast on
           regional television stations--a video of a major U.S. alternative
           development^17foreign assistance project, which involved building
           a road in northern Peru to provide farmers with greater access to
           markets. On another project, a communication officer was contacted
           by television producers who were preparing a video about an
           ecological project that had received USAID foreign assistance
           funding. At the communications officer's suggestion, the producers
           interviewed the USAID mission director to highlight how USAID
           supported the project. The final film was shown on television.
           o In Serbia, two newly hired communication specialists redesigned
           a Web site and, subsequently, developed questions on public
           awareness of USAID's foreign assistance activities that were
           incorporated into the embassy's public opinion poll.
           o According to mission officials in South Africa, the outreach
           efforts of the communications specialist there have resulted in an
           improved perception among the local population of USAID/South
           Africa programs, which were previously hampered by negative
           comments made by high-level South African government officials in
           the late 1990s. In addition, the communications specialist
           conducted five training workshops, primarily for PEPFAR partners,
           on how to write stories of successful projects. The workshops
           resulted in more than 40 stories submitted by implementing
           partners, which were posted on various U.S. government Web sites
           and in publications. This effort was also sanctioned by the
           embassy public affairs section.
			  
			  Challenges to Marking and Publicizing May Result in Missed
			  Opportunities to Increase Public Awareness of U.S. Foreign
			  Assistance

           We identified some challenges to marking and publicizing U.S.
           foreign assistance that may result in missed opportunities to
           increase public awareness of U.S. foreign assistance. First,
           little reliable work has been done to assess the impact of U.S.
           assistance on foreign citizens' awareness of that assistance.
           Second, although the newly appointed DFA has begun to develop
           governmentwide guidance for marking and publicizing all U.S.
           foreign assistance, it is unclear to what extent this policy will
           be implemented by agencies whose foreign assistance programs are
           not under State's direct authority.
			  
			  Agencies Conduct Some Research on Impact of U.S. Foreign
			  Assistance Activities, but Lack Clear Guidance for Such Research

           State conducts some research^18 on public perceptions of the
           United States and its foreign assistance activities. State's
           Bureau of Intelligence and Research conducts approximately 120
           surveys per year in about 80 countries, according to a State
           official. However, these surveys focus on tracking trends in the
           foreign public's perception of the United States to serve U.S.
           public diplomacy efforts and do not assess public awareness of
           U.S. foreign assistance activities or the effectiveness of
           publicity activities. Some individual embassies perform surveys of
           public attitudes and awareness relating to U.S. foreign assistance
           activities. For example, the surveys commissioned by the embassy
           in Serbia and Montenegro attempt to measure public awareness of
           foreign assistance programs in addition to measuring public
           perception of the United States. However, the surveys do not
           attempt to link any foreign assistance programs to the level of
           awareness, but instead track changes in the level of awareness for
           a given period of time.

           USAID also conducts some research. The agency requires that its
           communications specialists develop a communications strategy that
           includes methods to measure impact, and USAID's communications
           manual encourages communications specialists to monitor local
           media coverage and obtain and analyze locally conducted polls as a
           means to measures results. The agency has contracted with polling
           firms to conduct eight public opinion surveys in various locations
           overseas--including one survey in Egypt, two in Indonesia, one in
           Jordan (along with a focus group), one in Colombia, and three in
           the West Bank and Gaza. According to a USAID official, these
           surveys were designed to test different methods for conducting
           broad-based public affairs campaigns. The surveys included
           questions to assess (1) the extent of awareness of USAID and U.S.
           foreign assistance; (2) attitudes toward USAID and U.S. foreign
           assistance among recipients of that foreign assistance; and (3)
           which communication sources, ranging from billboards and magazines
           to television and the Internet, may be most effective in reaching
           target audiences. Although each of the USAID surveys we reviewed
           provide information about the extent of awareness of USAID and
           U.S. assistance, the surveys in Colombia, Egypt, Jordan, and the
           West Bank and Gaza were not designed to compare pre- and
           post-campaign levels of awareness. A USAID official agreed that
           pre- and post-branding measurement of public opinion was important
           to measure the impact of USAID's branding activities, know which
           branding activities were most effective, and use the lessons
           learned to improve USAID's branding activities.

           Recently, USAID has begun to provide some guidance to
           communications specialists responsible for managing research
           programs. USAID hired a contractor to train communications
           specialists on public opinion polling. The training instructs
           communications specialists on issues such as the importance and
           benefits of polling, types of polling, the most effective ways to
           deliver messages, principles of sampling in polling, and how to
           hire a qualified agency to conduct the polls. Also, USAID
           officials said they are developing a manual to provide guidance on
           communications research instruments, primarily focused on polling.
           The manual will include key criteria for evaluating the quality of
           the research instruments and a standard set of questions to
           include in research instruments.

           Ad Council^19 executives whom we met with emphasized that
           successful quantitative research, such as surveys, to measure
           results of efforts are key practices they use in their public
           service campaigns. Also they conduct pre- and post-tracking
           studies to benchmark attitudes and behaviors. In addition, they
           examine best practices, including areas where the practice has
           worked well and learned how to emulate them. In addition, these
           executives examine cases where their efforts have yielded poor
           results and implement some policies that could alleviate the
           situation. See appendix II for additional key practices identified
           by the Ad Council executives.
			  
			  The United States Lacks Governmentwide Guidance for Marking and
			  Publicizing Its Assistance

           While some agencies have established policies, regulations, and
           guidelines on marking and publicizing U.S. foreign assistance, we
           found that USAID missions and all federal agencies and
           presidential initiatives providing assistance overseas have not
           received clear and consistent direction on marking and publicizing
           U.S. foreign assistance. During our field visits to five countries
           between May and August 2006, we found that three of the five
           embassies lacked specific guidance that addresses assistance
           publicity. Embassy Mission Performance Plans are the means by
           which an embassy aligns its plans, programs, and resources with
           the U.S. government's international affairs strategy, including
           publicizing foreign assistance. Only one Mission Performance
           Plan--for Serbia and Montenegro--listed foreign assistance
           publicity as an embassy priority and established that the embassy
           would increase its outreach activities and aggressive advertising
           of U.S. foreign assistance by (1) improving media coverage, (2)
           coordinating public diplomacy activities at the mission to improve
           synergy and publicity of foreign assistance programs, and (3)
           using polling and focus group information to help direct these
           efforts. The embassy was also planning to expand exchange programs
           that would bring individuals from Serbia and Montenegro to the
           United States. The ambassador said that he became aware that U.S.
           foreign assistance was not widely known in Serbia and Montenegro
           after he arrived at the mission and saw that implementing partners
           often used project logos that did not clearly communicate that the
           foreign assistance was from the United States. He identified a
           need to more clearly portray U.S. foreign assistance and made it a
           priority for the embassy. In addition, the Mission Performance
           Plan for Liberia called for publicizing U.S. efforts to rebuild
           security services and promote respect for human rights.

           In the five countries that we visited, we also found that
           assistance is publicized by public affairs officers on an ad hoc
           basis and, as a result, embassies may miss opportunities to
           publicize their foreign assistance activities. For example, in
           Indonesia, the USDA attache told us that an exchange program that
           brings agricultural specialists to the United States for training
           has not been publicized by the embassy because the public affairs
           officer was not aware of it. Also in Indonesia, the public affairs
           officer almost missed a publicity opportunity when the officer was
           initially opposed to issuing a press release on an event to
           promote a teacher-training program that was attended by
           representatives of an NGO and 15 Indonesian institutions, because
           communicating about the program was not an embassy priority. The
           public affairs officer later reconsidered and issued a press
           release.

           Moreover, agencies at embassies may receive conflicting guidance
           on marking their assistance activities when an agency's
           headquarters position on marking differs from an embassy's
           position. After USAID headquarters developed its logo in 2004, the
           Serbia and Montenegro embassy developed a logo (featuring the
           American and Serbian and Montenegrin flags) and encouraged all
           agencies to use it. Most agencies used the logo to mark and
           publicize their foreign assistance activities, and the logo was
           also used on the embassy Web site. Subsequently, the USAID mission
           developed and used a logo that combined the embassy logo and
           USAID's logo. Although the USAID mission's logo was different from
           the embassy logo, the ambassador agreed to the compromise, and
           USAID used that logo to mark and publicize its assistance
           activities. However, in June 2006, USAID headquarters told the
           mission that this new logo violated USAID standards and required
           the mission to discard that logo and use USAID's standard logo.
			  
			  DFA Faces Key Challenges in Coordinating Marking and Publicizing
			  Efforts

           The DFA has acknowledged that the lack of governmentwide guidance
           on marking and publicizing foreign assistance activities limits
           agencies' ability to make recipients aware of the extent of U.S.
           assistance. In July 2006, the DFA requested that his office and
           the Bureau for Public Diplomacy and Public Affairs work together
           to ensure that U.S. embassies, USAID missions, and all government
           agencies receive clear and consistent guidance on marking and
           publicizing U.S. assistance. Also, the DFA recommended that all
           foreign assistance be unified under one agency-neutral brand that
           would ensure that the assistance is recognized and associated with
           the United States. The DFA and the Under Secretary of State for
           Public Diplomacy are currently developing a proposal to provide
           guidance to all federal agencies in 2007.

           Despite these efforts to develop governmentwide guidance for
           marking and publicizing all U.S. foreign assistance, it is unclear
           to what extent this guidance will be implemented by agencies whose
           foreign assistance programs are not under the DFA's direct
           authority. According to DFA officials, the DFA has budget
           authority over USAID, most State foreign assistance activities,
           and activities of agencies funded by State or USAID. Also, the DFA
           will have authority to coordinate the activities of some foreign
           assistance activities managed by other agencies, because,
           according to DFA officials, any activities funded by USAID or
           State that are implemented by other agencies will fall under the
           authority of the DFA. For example, the DFA will have the authority
           to coordinate some of the technical foreign assistance and
           training programs administered by the Department of Justice that
           are funded by State. However, according to DFA officials, the
           director's office will not have authority over about 20 percent of
           all U.S. foreign assistance. This includes some of State's
           programs, such as State's Office of U.S. Global AIDS Coordinator,
           which is funded separately from the Department of State
           budget--though DFA officials told us that the DFA's office has
           reached an oral agreement with the AIDS Coordinator to coordinate
           their activities. In addition, DFA has no authority over, for
           example, DOD, HHS, USDA, Treasury, and MCC activities that are
           funded by sources other than State or USAID.
			  
			  Conclusions

           Some key U.S. agencies providing foreign assistance have
           established policies, regulations, and guidelines on marking and
           publicizing U.S. foreign assistance, and some have used varied
           methods to implement these requirements. Despite these efforts,
           the United States lacks reliable information to assess the impact
           of marking and publicity on increasing awareness of U.S.
           assistance. According to U.S. public service awareness campaign
           executives with whom we met, quantitative research that includes
           pre- and post-tracking studies--as well as drawing from lessons
           learned regarding which types of approaches are working more
           effectively than others--are key practices that they use in
           measuring the impact of their awareness campaign. Although State's
           public opinion polls measure general public opinion trends, they
           do not specifically provide information on the impact of the U.S.
           government's overall efforts to increase public awareness of U.S.
           foreign assistance activities. USAID has only completed a limited
           number of surveys to measure public awareness of U.S. assistance,
           including a public opinion survey of U.S. post-tsunami efforts in
           Indonesia. According to USAID officials and USAID surveys, marking
           and publicizing the source of U.S. foreign assistance following
           the December 2004 tsunami likely contributed to increasing
           favorable public opinion about the United States in Indonesia.
           USAID has begun to develop guidance on measuring the effectiveness
           of its publicity efforts.

           In addition, the DFA acknowledges that because there is no
           governmentwide guidance on marking and publicizing assistance,
           there may have been missed opportunities to increase recipient
           awareness of the extent of U.S. foreign assistance. To address
           this issue, the DFA plans to establish marking and publicizing
           guidance for all U.S. agencies providing assistance abroad in
           2007. However, obtaining the cooperation of those agencies
           implementing foreign assistance programs not under the DFA's
           direct authority is critical to a successful U.S. governmentwide
           marking and publicizing approach and remains a challenge.
			  
			  Recommendations for Executive Action

           To help the United States ensure that recipients of its foreign
           assistance are aware that this assistance is provided by the
           United States and its taxpayers, we are making two
           recommendations.

           o To enhance U.S. marking and publicity efforts, and to improve
           the information used to measure the impact of U.S. marking and
           publicizing programs, we recommend that the Secretary of State, in
           consultation with other U.S. executive agencies, develop a
           strategy, which appropriately utilizes techniques such as surveys
           and focus groups, to better assess the impact of U.S. marking and
           publicity programs and activities on public awareness.
           o To facilitate State's effort to implement its planned
           governmentwide guidance for marking and publicizing all U.S.
           foreign assistance programs and activities, we recommend that the
           Secretary of State, in consultation with other U.S. executive
           agencies, establish interagency agreements for marking and
           publicizing all U.S. foreign assistance.
			  
			  Agency Comments and Our Evaluation

           We provided a draft of this report to USAID, State, Agriculture,
           DOD, HHS, Justice, the Treasury, and MCC. We obtained written
           comments from State (see app. V). State concurred with our
           recommendations and indicated that a Policy Coordination Committee
           formed by the Under Secretary of State for Public Diplomacy in the
           National Security Council plans to develop a governmentwide
           Strategic Communications Plan that will address assessment of
           marking and publicity programs and will develop governmentwide
           marking and publicity guidance. We also received technical
           comments on this draft from USAID, State, DOD, and MCC, which we
           incorporated where appropriate.

^12Rationales for withholding marking requirements include marking that
would compromise the intrinsic independence or neutrality of a program,
diminish credibility of assistance products, undercut country ownership of
assistance products, incur excessive cost or be impractical for marking
certain products, and violate international laws.

^13The Bureau of Public Diplomacy in Washington prepares articles on U.S.
policies, society, and assistance that are translated into seven world
languages (Arabic, Chinese, French, Persian, Russian, Spanish, and
English) and made available to embassies to include in their Web sites if
they choose to do so.

^14There were 102 communications specialists working in 73 countries as of
September 20, 2006.

^15Report of the Advisory Group on Public Diplomacy for the Arab and
Muslim World, Changing Minds, Winning Peace: A New Strategic Direction for
U.S. Public Diplomacy in the Arab & Muslim World (Washington, D.C.: Oct.
1, 2003).

^16In 2005 and 2006, USAID, Bureau for Legislative and Public Affairs
funded pilot communication campaigns in Jordan and West Bank, Gaza, in
addition to Indonesia. A more limited campaign was also implemented in
Lebanon. In Egypt, Legislative and Public Affairs has started to identify
messages and themes with a nationwide survey to define audiences and
develop strategies for future communication campaigns in the country; and
in Colombia, Legislative and Public Affairs helped develop a survey to
establish a baseline to evaluate the USAID outreach strategy.

^17The Alternative Development Program supports the reduction of illegal
coca crops in targeted areas of Peru. The program (1) helps families to
increase their income from legal crops and other income generating
activities, (2) improves access to markets for legal goods and services,
(3) improves living conditions for citizens, (4) strengthens local
governments, and (5) raises awareness of the environmental and social
damage caused by drug production and use.

^18Research instruments include surveys and focus group discussions.

^19The Ad Council is a private, nonprofit organization that marshals
volunteer talent from the advertising and communications industries, the
facilities of the media, and the resources of the business and nonprofit
communities to deliver critical messages to the American public. The Ad
Council produces, distributes, and promotes thousands of public service
campaigns on behalf of nonprofit organizations and government agencies in
issue areas such as improving the quality of life for children,
preventative health, education, community well being, environmental
preservation, and strengthening families.

           We are sending copies of this report to interested congressional
           committees, USAID, the Departments of State, Agriculture, Defense,
           Health and Human Services, Justice, the Treasury, and Millennium
           Challenge Corporation. We will also make copies available to
           others upon request. In addition, the report will be available at
           no charge on the GAO Web site at [38]http://www.gao.gov .

           If you or your staff have any questions about this report, please
           contact me at (202) 512-4268. Contact points for our Offices of
           Congressional Relations and Public Affairs may be found on the
           last page of this report. GAO staff who made major contributions
           to this report are listed in appendix VI.

           Sincerely yours,

           Jess Ford, Director
			  International Affairs and Trade
			  
			  Appendix I: Scope and Methodology

           To determine the regulations and policies that agencies have
           established to mark and publicize foreign assistance, we analyzed
           legislation establishing the statutory basis for marking and
           publicizing foreign assistance, including legislation providing
           funding for foreign assistance activities, and organic legislation
           establishing the various foreign assistance agencies. We reviewed
           major foreign assistance legislation including the Foreign
           Assistance Act of 1961 and Public Law 480. We also reviewed the
           Intelligence Reform Act of 2004, which assigns the Department of
           State (State) a coordination role in publicizing foreign
           assistance, as well as legislation that authorized foreign
           assistance programs separate from the Foreign Assistance Act, such
           as the Millennium Challenge Act of 2003 that established the
           Millennium Challenge Corporation (MCC). We discussed these laws
           with agency officials at the United States Agency for
           International Development (USAID), State, the Departments of
           Agriculture, Defense (DOD), Health and Human Services (HHS),
           Justice, the Treasury, as well as MCC who are responsible for
           their implementation as it applies to marking and publicizing
           their foreign assistance activities. In addition, we reviewed
           regulations these agencies had established to implement
           legislative marking requirements related to agencies' policies and
           other relevant documents. We also discussed the agencies'
           regulations and policies with cognizant officials at each agency.

           To determine how USAID, State, and other agencies are marking and
           publicizing their foreign assistance activities, we discussed
           their activities with cognizant officials at their headquarters in
           Washington, D.C. We also met with representatives of
           nongovernmental organizations (NGO) and contractors in the
           Washington, D.C., area--such as Food For The Hungry, National
           Democratic Institute, the American Bar Association/Central
           European and Eurasian Law Initiative, Chemonics, and Development
           Alternatives, Inc.--who implement many of the agencies' foreign
           assistance activities. In addition, we traveled to U.S. embassies
           and USAID missions in Indonesia, Peru, Serbia, Montenegro, and
           South Africa. In those countries, we (1) met with agency officials
           at the embassies and missions and representatives of NGOs and
           contractors who implement foreign assistance activities; (2)
           collected and analyzed agency documents, regarding their foreign
           assistance marking and publicizing efforts; and (3) visited
           several sites in each country to observe marking and publicizing
           activities of U.S. agencies and their implementing organizations.
           In particular, we visited various recipients of U.S. foreign
           assistance in Belgrade, Serbia; Podgorica, Montenegro; and
           Pretoria, South Africa. We also traveled to Banda Aceh, Indonesia,
           and several locations in Serbia, Montenegro, and Peru, to observe
           marking and publicizing activities and discuss those activities
           with U.S. government officials, representatives of implementing
           organizations, and recipients of foreign assistance. We also
           traveled to Liberia and met with embassy and USAID mission
           officials.

           To determine the challenges the United States faces in marking and
           publicizing foreign assistance activities, we met with cognizant
           agency officials in Washington, D.C., and the U.S. embassies and
           USAID missions in Indonesia, Peru, Serbia, Montenegro, and South
           Africa. We also analyzed agency documents, including Mission
           Performance Plans and other policy and guidance documents at
           headquarters, U.S. embassies, and USAID missions in Indonesia,
           Peru, Serbia, Montenegro, and South Africa. In addition, we
           analyzed surveys and polls conducted for USAID and State,
           communications manuals, and training materials used as part of
           USAID's and State's efforts to determine foreign audiences'
           opinions about the United States and their awareness of U.S.
           foreign assistance activities. Further, we discussed those surveys
           and polls with cognizant agency officials in USAID and State.

           To determine foreign government organizations' marking and
           publicity practices, we held discussions with representatives of
           international foreign assistance organizations, including the
           Australian Government's Overseas Aid Program (AusAID), the
           Canadian International Development Agency (CIDA), the Department
           for International Development (DFID) of the United Kingdom, the
           European Union (EU) assistance implemented through the European
           Agency for Reconstruction, German Agency for Technical Cooperation
           (GTZ), the Icelandic International Development Agency (ICEIDA),
           and the Japan International Cooperation Agency (JICA). We also
           reviewed relevant documents provided by these organizations on
           their marking and publicity practices, including guidelines on
           marking and communications.

           We included in the scope of this review foreign assistance
           programs administered or implemented by USAID, State, Agriculture,
           DOD, HHS, Justice, the Treasury, and MCC. Among these entities, we
           included programs in the following categories--bilateral
           development foreign assistance; humanitarian assistance; and
           economic assistance in support of U.S. political and security
           goals, with the exception of payments to support countries
           involved in the Middle East Peace Process, including countries of
           importance in the war on terrorism, and programs that address
           issues of weapons proliferation. We excluded from the scope of
           this review multilateral economic contributions or payments that
           are combined with funds from other donor countries to finance
           multilateral development projects of international organizations
           that include the United Nations, the World Bank, and other
           multilateral development banks. We also excluded military foreign
           assistance provided to help selected countries acquire U.S.
           military equipment and training. We conducted our work from
           December 2005 through January 2007 in accordance with generally
           accepted government auditing standards.
			  
			  Appendix II: Key Marking and Publicity Practices Used in the
			  Public Sector

           Ad Council executives with whom we met with identified key
           practices that they use to guide their public service campaigns.
           These practices relate to areas that we assessed as part of our
           examination of U.S. government efforts to mark and publicize
           foreign assistance. Specifically, the key practices identified
           include the following:

           o Determine what is appropriate to be marked. It is important to
           maintain flexibility and conduct research to ensure that efforts
           do more good than harm. Be mindful of potential unintended effects
           of branding.
           o Maintain a simple message. Conduct research regarding
           sensitivity of wording and language.
           o Articulate the universal truth or message differently, as
           appropriate for specific demographics and international backdrops.
           It is critical to separate programs from political issues to
           prevent programs and policies from being linked together.
           o Use targeting or tailoring to help create connection with
           audience. Examine best practices, identify where the practices
           have worked well, and learn how to emulate them. Also examine
           cases where branding has been ineffective and implement some
           policies that could alleviate the situation.
           o Conduct quantitative research, such as surveys, to measure
           results of efforts. Conduct pre- and post-tracking studies to
           benchmark attitudes and behaviors.
			  
			  Appendix III: Other Governmentsâ Donor Organizations and the GTZ
			  Marking and Publicity Practices

           While other governments' donor organizations and the German Agency
           for Technical Cooperation (GTZ) generally mark and publicize their
           assistance, none of these organizations have undertaken a campaign
           to develop a mark for their foreign assistance abroad on the scale
           that USAID has to date. ^1 Like the United States, other
           governments' organizations generally use marking to gain recipient
           recognition for their contributions. We found that the six donors
           and the GTZ generally had some form of marking implementing
           policies and procedures. However, unlike most U.S. foreign
           assistance publicizing efforts, other government organizations'
           efforts to communicate about foreign assistance were more targeted
           toward their own constituents rather than host country citizens.
           These organizations generally do not formally monitor or measure
           their marking or publicity efforts.
			  
			  Other Governmentsâ Donor Organizations and the GTZ Use Marking to
			  Gain Recognition for Their Contributions

           Other governments' donor organizations and the GTZ that we studied
           generally use marking to gain recognition or maintain domestic
           support for their contributions. Donor organizations and the GTZ
           that we contacted identified a number of practices for marking,
           including adapting such efforts for each host country, and
           ensuring high-level stakeholder cooperation to facilitate
           implementation of these marking efforts. Additionally, in some
           countries, to ensure marking consistency, governments require all
           organizations, including bilateral donors, to use the national
           symbol along with the organization's logo. For example, the
           Australian Government's Overseas Aid Program (AusAID) and the
           Canadian International Development Agency (CIDA) marks include the
           national symbols of Australia and Canada, respectively, and
           assistance provided by the European Union (EU) are generally
           marked with the EU logo. Other organizations, including the
           Department for International Development (DFID) of the United
           Kingdom, GTZ, the Icelandic International Development Agency
           (ICEIDA), and the Japan International Cooperation Agency (JICA)
           have their own unique organization logos. In addition, some donors
           are more flexible than others with their marking requirements. For
           example, according to representatives of ICEIDA, their marking
           procedures are not mandatory, but implementing partners often use
           their marks on publications. Conversely, AusAID requires its
           partners to mark all of its assistance. Figure 10 illustrates each
           of the selected organizations' marks.

^1The GTZ is an implementing agency that works on behalf of the Federal
Republic of Germany.

Figure 10: Logos of Other Governments' Donor Organizations and the GTZ

Other Governments' Donor Organizations and the GTZ, to Varying Degrees, Have
Marking Procedures or Guidance

The marking efforts for the six donors and the GTZ that we reviewed have
some form of procedures or guidance for implementation. The following
provides a brief description of each organization's procedures or
guidance.

           o AusAID's standard mark is used on its foreign assistance. The
           organization's written guidelines apply to all contractors and
           implementing partners to ensure marking consistency. The
           Australian government has also developed a unique mark and design
           manual for its Indonesia program.
           o CIDA has a corporate identity logo, and grant and contribution
           agreements require recipients to recognize CIDA's contribution
           with acknowledgments or use of CIDA's logo in their publications,
           advertising, and promotional products.
           o DFID has a standard mark, which is guided by its Identity
           Standards Manual. The mark is used mostly for project-based
           foreign assistance and not budgetary support programs or
           activities. Humanitarian assistance is branded with the United
           Kingdom Emergency Aid logo. This branding applies to DFID staff
           and to large nonperishable items. It will not be used
           when it may detract from humanitarian operations or increase risk
           to staff or beneficiaries.

           o The European Union has Visibility Guidelines specifying how
           technical foreign assistance, supplies and equipment, and
           infrastructure projects are to be marked.
           o GTZ uses a standard logo and a tagline, "German Technical
           Cooperation" on its information material in partner countries. An
           optional slogan, "Partner for the Future. Worldwide" may be used.
           Although not required, the tagline is frequently used on project
           information, brochures, products, and presentations, and, in
           partner countries, the name of the country is included.
           o ICEIDA uses a standard logo on all of its publications. Although
           not required, implementing partners often include the mark on
           their publications.
           o JICA has a logo that is to be used on publications, business
           cards, envelopes, and vehicles. JICA also has a slogan, "For a
           better tomorrow for all.", and has translated this into English,
           French, Spanish, Portuguese, and Russian. A Corporate Identity
           Design Manual was produced in 2003 that provides color, font, and
           usage guidance.
			  
			  Other Donorsâ and the GTZ Publicizing Efforts Generally Target
			  Domestic Constituents Rather Than Host Country Recipients

           According to representatives of most of the organizations with
           whom we spoke, domestic constituents and not foreign audiences are
           the target of their communications about foreign assistance
           efforts. In contrast to marking intended to ensure that
           governments receive recognition for their contributions, these
           organizations' publicizing efforts generally focus on informing
           the general public in their respective countries about their
           initiatives to enhance the reputation of the aid agencies, engage
           the public, create interest among civil society, and highlight
           success stories. According to ICEIDA, for example, it is required
           by law to publicize its foreign assistance efforts domestically.
           The organizations implement these efforts by, among other things,
           coordinating publicity activities between implementers' and
           donors' information units; constructing project Web sites; and
           through other communication mechanisms such as special events,
           press releases, conferences, publications, Web pages, and plaques.

           Two of the organizations required that their projects have a
           communications plan targeting recipient countries. For example,
           CIDA requires a communications plan on how to inform the public in
           the recipient country of their projects prior to approval.
			  
			  Other Donorsâ and the GTZ Generally Do Not Formally Monitor or
			  Measure Marking or Publicity Efforts

           Only one of the organizations, AusAID, told us that it monitors
           implementation of its marking and publicity efforts domestically
           and internationally. AusAID monitoring is done through (1)
           domestically focused community awareness research and (2) a mix of
           qualitative and quantitative measures, including press releases,
           special events, correct markings or signage, and newsletter
           subscriptions. AusAID also attempts to determine the quality of
           its relationships with its partners and assesses who the
           assistance is reaching and how often. Representatives from CIDA
           and DFID told us that they conduct public opinion surveys, but
           these surveys are intended to gauge public opinion about the
           agency or support for assistance in general and not to measure
           marking or publicity efforts.
			  
			  Appendix IV: Statutes, Policies, Regulations, and Guidance for
			  Marking or Publicizing Foreign Assistance
			  
Statutory      Content of                                                  
marking or     marking or        Key agencies                              
publicizing    publicizing       with covered Key agencies' policies,      
provision      provision         programs     regulations, and guidance    
Section 641 of Provides that     HHS          HHS: Follows State policy on 
the Foreign    "programs under                placing PEPFAR logo on all   
Assistance Act this Act shall be Justice      materials procured by HHS;   
(FAA) of 1961, identified                     policy memorandum on the     
as amended     appropriately     State        appropriate use of logos on  
                  overseas as                    conference material; policy  
                  `American Aid.' " Treasury/OTA on marking health projects.  
                                                                              
                                    USAID        Justice: Relies on           
                                                 individual component         
                                                 agencies to determine        
                                                 appropriateness of marking   
                                                 or publicizing activities.   
                                                                              
                                                 State: State Financial       
                                                 Assistance Standard Terms    
                                                 and Conditions, Part II,     
                                                 Attachment 1-MEPI.           
                                                                              
                                                 Treasury: OTA Instruction    
                                                 4035.1--guidance for marking 
                                                 certain types of assistance. 
                                                                              
                                                 USAID: 22 C.F.R. Part 226,   
                                                 sec. 226.91-- regulations    
                                                 prescribing marking          
                                                 requirements for grants and  
                                                 cooperative agreements; 22   
                                                 C.F.R. Part 201, sec.        
                                                 201.31(d)--regulations       
                                                 regarding marking shipping   
                                                 containers and commodities;  
                                                 AIDAR Clause                 
                                                 752.7999---standard clause   
                                                 in contracts regarding       
                                                 marking of foreign           
                                                 assistance; ADS 320-policy   
                                                 directives and procedures on 
                                                 marking USAID-funded         
                                                 activities; AAPD             
                                                 05-11--policy directive      
                                                 regarding acquisition and    
                                                 assistance regulations and   
                                                 procedures.                  
Section 202 of Requires that, to USDA         USDA: 7 C.F.R. Part 1599,    
Public Law 480 the extent                     sec. 1599.12(b)--regulations 
(P. L. 480)    practicable,      USAID        on labeling of commodities   
                  commodities                    donated under USDA's         
                  provided under                 international food education 
                  that act be                    and child nutrition program. 
                  clearly                                                     
                  identified with                USAID: 22 C.F.R. Part 226,   
                  appropriate                    sec. 226.91-- regulations    
                  markings in the                prescribing marking          
                  local language as              requirements for grants and  
                  being furnished                cooperative agreements; 22   
                  by "the people of              C.F.R. Part 211, sec.        
                  the United                     211.5(h)--regulations        
                  States."                       prescribing marking and      
                                                 publicity requirements for   
                                                 USAID's Food for Peace       
                                                 program; 22 C.F.R. Part 201, 
                                                 sec. 201.31(d)-- regulations 
                                                 regarding marking shipping   
                                                 containers and commodities.  
Section 403(f) Requires that     USDA         USDA: 7 C.F.R. Part 1599,    
of Public Law  foreign countries              sec. 1599.12(b)--regulations 
480 (P. L.     and private       USAID        on labeling for commodities  
480)           entities                       donated under USDA's         
                  receiving P.L.                 international food education 
                  480 commodities                and child nutrition program. 
                  will widely                                                 
                  publicize "to the              USAID: 22 C.F.R. Part 211,   
                  extent                         sec. 211.5(h)--regulations   
                  practicable" in                on marking and publicity     
                  the media that                 requirements for USAID's     
                  the commodities                Food for Peace program.      
                  are provided                                                
                  "through the                                                
                  friendship of the                                           
                  American people                                             
                  as food for                                                 
                  peace."                                                     
Section 7109   Directed the      State        State: None                  
of             Secretary of                                                
Intelligence   State to          USAID        USAID: None                  
Reform and     coordinate the                                              
Terrorism      public diplomacy                                            
Prevention Act activities of                                               
of 2004        federal agencies                                            
                  and called for                                              
                  cooperation                                                 
                  between State and                                           
                  USAID to ensure                                             
                  that information                                            
                  related to U.S.                                             
                  foreign                                                     
                  assistance is                                               
                  widely                                                      
                  disseminated.                                               
Established                      MCC          MCC: Standards for Global    
pursuant to                                   Marking--guidelines on the   
agency policy                    DOD          use and placement of MCC     
rather than                                   logo or other appropriate    
statutory                                     logos.                       
provision                                                                  
                                                 DOD: Policy and Program      
                                                 Guidance for Overseas        
                                                 Humanitarian, Disaster, and  
                                                 Civic Aid Activities--policy 
                                                 and guidance for overseas    
                                                 humanitarian, disaster, and  
                                                 civic aid activities and     
                                                 assistance.  
																 
           Sources: The Departments of Agriculture, Defense, HHS, Justice,
           State, and the Treasury; USAID and MCC.
			  
			  Appendix V: Comments from the Department of State
			  
			  Appendix VI: GAO Contact and Staff Acknowledgments
			  
			  GAO Contact

           Jess Ford, (202) 512-4268 or [email protected] .
			  
			  Staff Acknowledgments

           Zina Merritt served as Assistant Director responsible for this
           report, and Maria Oliver was the Analyst-in-Charge. In addition to
           those named above, the following individuals made significant
           contributions to this report: Virginia Chanley, Lauren Geetter,
           Ernie Jackson, and James Strus. The team benefited from the expert
           advice and assistance of Joe Carney, Etana Finkler, Lessie
           Burke-Johnson, Cynthia Taylor, and Wilda Wong.
			  
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Highlights of [47]GAO-07-277 , a report to the Ranking Minority Member,
Committee on Foreign Affairs, House of Representatives

March 2007

FOREIGN ASSISTANCE

Actions Needed to Better Assess the Impact of Agencies' Marking and
Publicizing Efforts

The negative perceptions of the United States associated with U.S. foreign
policy initiatives have underscored the importance of the United States
presenting a complete portrayal of the benefits that many in the world
derive from U.S. foreign assistance efforts. Congress has expressed
concerns that the United States has frequently understated or not
publicized information about its foreign assistance programs. As
requested, this report (1) describes the policies, regulations, and
guidelines that agencies have established to mark and publicize foreign
assistance; (2) describes how State, USAID, and other agencies mark and
publicize foreign assistance; and (3) identifies key challenges that
agencies face in marking and publicizing foreign assistance.

[48]What GAO Recommends

GAO recommends that the Secretary of State, in consultation with other
U.S. executive agencies, (1) develop a strategy, which appropriately
utilizes techniques such as surveys, to better assess the impact of U.S.
marking and publicity programs on public awareness, and (2) establish
interagency agreements to facilitate implementation of governmentwide
guidance for marking and publicizing U.S. foreign assistance. State
provided comments and concurred with the report's recommendations.

Most of the agencies we reviewed involved in foreign assistance activities
have established some marking and publicity requirements in policies,
regulations, or guidelines. USAID has the most detailed policies and
regulations relating to marking and publicity. USAID has also established
a network of communications specialists at its missions to publicize its
assistance efforts and has issued communications guidelines to promote
that assistance. According to State officials, its policy is to allow its
program managers and ambassadors to use their discretion when determining
which programs and activities to mark or publicize. USDA, DOD, HHS,
Treasury, and MCC have also established some policies for marking and
publicizing assistance, though these policies vary in their level of
formality and detail.

To increase awareness of U.S. assistance abroad, key agencies that we
reviewed used various methods to mark and publicize some of their
activities and exercised flexibility in deciding when it was appropriate
to do so. These agencies used different methods of marking, or visibly
acknowledging, their assistance. In addition, agencies generally used
embassy public affairs offices for publicizing, information about the
source of their assistance and, in some cases, augmented these efforts
with their own publicity methods.

We identified some challenges to marking and publicizing U.S. foreign
assistance, including the lack of (1) a strategy for assessing the impact
of marking and publicity efforts on increasing the awareness of U.S.
foreign assistance and (2) governmentwide guidance for marking and
publicizing U.S. foreign assistance. First, although some agencies conduct
surveys in recipient countries that primarily capture information on
public opinion of the United States, little reliable work has been done to
assess the impact of U.S. assistance on foreign citizens' awareness of the
source of U.S. provided assistance. Second, while the newly appointed
Director of Foreign Assistance has begun to address the issue of
developing a governmentwide policy for marking and publicizing all U.S.
foreign assistance, it is unclear to what extent this policy will be
implemented by agencies whose foreign assistance programs are not under
DFA's direct authority.

USAID Marking of Health Clinic in Indonesia

References

Visible links
  36. http://www.gao.gov/cgi-bin/getrpt?GAO-06-707T
  37. http://www.gao.gov/cgi-bin/getrpt?GAO-06-535
  38. http://www.gao.gov
  47. http://www.gao.gov/cgi-bin/getrpt?GAO-07-277
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