USIA: Issues Related to Reinvention Planning in the Office of Cuba
Broadcasting (Letter Report, 05/13/96, GAO/NSIAD-96-110).
Pursuant to a congressional request, GAO provided information on the
United States Information Agency's (USIA) Office of Cuba Broadcasting
(OCB), focusing on the: (1) OCB reinvention plan; (2) role and use of
OCB research analysts; (3) reasons behind a former OCB director's
resignation; (4) extent to which Radio Marti is in compliance with Voice
of America (VOA) broadcast standards; and (5) investigation into
allegations of management reprisals at OCB.
GAO noted that: (1) the OCB plan to reduce costs and eliminate
nonessential staff is consistent with overall executive branch goals and
the recommendations of the Radio Marti/TV Marti advisory panel, but it
is not based on a comprehensive cost-benefit analysis; (2) the former
director of OCB resigned because he was unable to further streamline OCB
or implement the reinvention plan; (3) in 1993, the role of OCB research
analysts in assisting, advising, and supporting OCB news and program
departments was eliminated; (4) several factors contributed to the
demise of the research unit, including budget cuts, the size and costs
of the unit, the availability of Cuba expertise within OCB, and the
diminishing use of analysts' skills by Radio Marti staff; (5) OCB has
made some progress in strengthening Radio Marti's compliance with VOA
broadcast standards, but limitations on monitoring still exist; and (6)
the USIA Office of the Inspector General has not completed its
investigation concerning management reprisals at OCB.
--------------------------- Indexing Terms -----------------------------
REPORTNUM: NSIAD-96-110
TITLE: USIA: Issues Related to Reinvention Planning in the Office
of Cuba Broadcasting
DATE: 05/13/96
SUBJECT: International relations
Radio broadcasting
Information dissemination operations
Television broadcasting
Personnel management
Noncompliance
Reengineering (management)
Whistleblowers
Investigations into federal agencies
Radio communications operations
IDENTIFIER: USIA Radio Marti Program
USIA TV Marti Program
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Cover
================================================================ COVER
Report to Congressional Requesters
May 1996
U.S. INFORMATION AGENCY - ISSUES
RELATED TO REINVENTION PLANNING IN
THE OFFICE OF CUBA BROADCASTING
GAO/NSIAD-96-110
U.S. Information Agency
(711142)
Abbreviations
=============================================================== ABBREV
OCB - Office of Cuba Broadcasting
OIG - Office of Inspector General
USIA - U.S. Information Agency
VOA - Voice of America
Letter
=============================================================== LETTER
B-262073
May 13, 1996
The Honorable Ileana Ros-Lehtinen
The Honorable Lincoln Diaz-Balart
The Honorable Robert Torricelli
The Honorable Dan Burton
The Honorable Chris Smith
The Honorable Robert Menendez
House of Representatives
In response to your requests, we reviewed certain issues associated
with the operations of the Office of Cuba Broadcasting (OCB) and
Radio Marti, which are part of the U.S. Information Agency (USIA).
This report provides information on (1) OCB's reinvention plan, (2)
the role and use of OCB's research analysts, (3) the reason for the
resignation of Mr. Richard Lobo as Director of OCB, and (4) the
extent of progress that has been made in monitoring Radio Marti's
compliance with Voice of America (VOA) broadcast standards. In
addition, we developed information on key events and time frames
concerning USIA's Office of Inspector General (OIG) investigation
into allegations of management reprisals in OCB.
BACKGROUND
------------------------------------------------------------ Letter :1
OCB, which was created in 1990 and assumed management
responsibilities for both Radio and TV Marti, is part of USIA's
International Broadcasting Bureau. Radio Marti, a U.S.-funded
surrogate radio station, was established in 1983 to fill the void in
news and information that the Cuban government had created through
censorship. TV Marti became operational in 1990, having a similar
goal of serving as a consistently reliable source of credible and
authoritative information and promoting the cause of freedom in Cuba.
Other OCB units include Radio Marti's Miami Bureau and the Executive
Office of the Advisory Board for Cuba Broadcasting. The Advisory
Board was created in 1983 to make recommendations for improvements in
Cuba broadcasting.\1 Appendix I provides a partial organizational
chart for USIA and OCB. As of October 1, 1995, the number of staff
in OCB totaled 225, including 122 in Radio Marti and 77 in TV Marti.
Radio Marti has had significant executive branch and congressional
support for years because its broadcasts were designed to provide a
large portion of the Cuban population an important source of news,
cultural and ethnic programming, and entertainment. Reflecting the
continued importance of Radio Marti as an instrument of U.S. policy,
President Clinton recently directed Radio Marti to expand its reach
into Cuba by doubling the power of its medium wave transmissions.
Funding for Radio Marti has totaled over $150 million since fiscal
year 1984, including $13.1 million in fiscal year 1995. TV Marti has
had less support because its programs have been largely jammed by the
Cuban government. It has received appropriations totaling over $80
million since fiscal year 1989, including $11.6 million in fiscal
year 1995.
OCB's efforts to streamline and reinvent its operations began in
early 1993, consistent with guidance from the new administration,
Vice President Gore's National Performance Review, and USIA
management's concerns about possible reductions in the OCB budget.
Guidance included two February 1993 executive orders directing
executive departments and agencies to (1) eliminate not less than 4
percent of their civilian personnel positions over 3 fiscal years and
(2) reduce administrative costs by
14 percent over 4 fiscal years. In February 1994, Richard Lobo
became OCB's new Director. In March 1994, Mr. Lobo submitted a
reinvention plan for OCB that was designed to continue its
streamlining and budget reduction process. The plan's objectives
included reducing OCB's costs by $4 million in fiscal years 1994 and
1995 and eliminating 10 staff positions, including 4 research analyst
positions. The plan was approved by USIA's Director in April 1994,
but was placed on hold 4 days later. About 1 year later, Mr. Lobo
submitted an amended reinvention plan that was approved by USIA's
Director for implementation, but implementation was suspended in
April 1995 because of the research analysts' allegations of
management reprisals. The analysts alleged that OCB management had
targeted their positions for elimination in reprisal for accusations
by one or more of the analysts that political bias had undermined the
accuracy and objectivity of Radio Marti's broadcasts. The
accusations are being investigated by OIG and are also the focus of a
union grievance filed against USIA on behalf of employees in Radio
Marti's research analytical unit.
--------------------
\1 The Board was established within the Office of the President by
the Radio Broadcasting to Cuba Act (P.L. 98-111) to (1) review
activities carried out under the act and the Television Broadcasting
to Cuba Act (P.L. 101-246) and (2) make recommendations to the
President and USIA as necessary.
RESULTS IN BRIEF
------------------------------------------------------------ Letter :2
OCB's plan to reduce costs and eliminate nonessential staff positions
was consistent with overall executive branch goals for streamlining
government operations. It was also in line with recommendations of
the March 1994 Advisory Panel on Radio Marti and TV Marti\2 for
reducing OCB's costs and was endorsed by the Advisory Board for Cuba
Broadcasting. However, the plan was not based on a comprehensive
cost-benefit assessment of key OCB departments and support functions.
In addition, OCB's failure to implement the plan did not result in
budget shortfalls that it had forecast for fiscal year 1995. (See
app. II.)
Primarily because of frustrations stemming from his unsuccessful
attempts to further streamline OCB and implement the reinvention
plan, Richard Lobo resigned as Director in May 1995. (See app. IV.)
Historically, the primary functions of the research analytical unit
included supporting public affairs programs of Radio Marti, preparing
Cuba situation reports, and reviewing program scripts for policy
compliance. The analysts' role was redirected and expanded in 1990
to provide services assisting, advising, and supporting the news and
programs departments, including participation in on-air broadcasts.
However, in 1992 OCB management decided to remove them from on-air
programming, and at that time, questions began to surface concerning
the policy compliance role of the analysts. The role of the analysts
was also re-examined in late 1993 as part of OCB's streamlining
process. Mr. Lobo said that several factors led to his proposals in
March 1994 for eliminating the research positions. The factors were
possible budget reductions, the size and costs of the analytical
unit, the availability of Cuba expertise elsewhere within OCB, and
the diminishing use of the analysts' products by Radio Marti's
program and news staff. Current news and program officials told us
that the analytical unit's services have diminished in importance.
(See apps. III and IV.)
The analysts and others have criticized Radio Marti for failing to
have its broadcasts fully meet VOA's standards for objectivity,
accuracy, and balance. In February 1993, we reported\3 that we had
received allegations from several sources that some of Radio Marti's
broadcasts did not meet standards. Although USIA said that its
internal review of the allegations had concluded that few had any
real substance, USIA created an external review panel\4 to evaluate
broadcasts and relocated its internal program review unit that had
responsibilities for monitoring broadcasts. In September 1994, we
reported\5 that (1) the effectiveness of the external review panel
was limited and (2) the International Broadcasting Bureau's Program
Review Office had not fulfilled its mission of ensuring that Radio
Marti's broadcasts comply with standards. OCB has since made some
progress in monitoring compliance with VOA standards by adopting
procedures for considering the comments and suggestions for improved
programming made by Radio Marti's external review panel. In
addition, the Program Review Office now monitors the Radio's
broadcasts. However, some limitations still exist in monitoring, and
the analyses of Radio Marti's broadcasts have not conclusively
determined if broadcasts comply with standards. USIA's Broadcasting
Board of Governors\6 is now considering whether it should establish
another panel to review Radio Marti's broadcasts and pronounce on
their objectivity and balance.
(See app. V.)
In June 1994, USIA's OIG began investigating allegations of
management reprisals in OCB. Its investigation initially focused on
allegations by Radio Marti's Deputy Director, but it was expanded to
consider allegations of others, including the research analysts. As
part of the investigation, OIG officials have interviewed over 20
current or former OCB, Radio Marti, or other agency officials.
However, OIG's investigation has been controversial since July 1995,
because of the release of partial information and affidavits during
the investigation. On July 24, 1995, USIA's Director referred the
conduct of OIG's investigation to the President's Council on
Integrity and Efficiency. The Council, which investigates
allegations and referrals concerning presidentially appointed
Inspectors General, had not completed its examination into matters
concerning USIA's OIG as of mid-April 1996. (See app. VI.)
--------------------
\2 Congress created the Panel in 1993 (P.L. 103-121) and tasked it
to (1) study all aspects of Radio and TV broadcasting to Cuba and (2)
make recommendations for improvements.
\3 Radio Marti (GAO/NSIAD-93-126R, Feb. 17, 1993).
\4 Composed of five members, the panel meets quarterly to assess
Radio Marti's broadcasts.
\5 Radio Marti: Program Review Processes Need Strengthening
(GAO/NSIAD-94-265, Sept. 23, 1994).
\6 Created by the International Broadcasting Act of 1994 (P.L.
103-236), the Board is responsible for policy and budgetary oversight
for all international broadcasting services under the aegis of USIA.
AGENCY COMMENTS
------------------------------------------------------------ Letter :3
In commenting on a draft of this report, the Broadcasting Board of
Governors stated that our draft report accurately reflected the
issues involved. The Board's comments are presented in their
entirety in appendix VII along with our evaluation.
SCOPE AND METHODOLOGY
------------------------------------------------------------ Letter :4
To develop information for this report, we reviewed documents related
to the preparation, approval, and suspension of OCB's reinvention
plan; the resignation of Mr. Lobo; the mission and changing role of
OCB's research; and the scope, objectives, and status of the USIA
OIG's investigation into allegations of management reprisals at OCB.
We also held discussions with officials in USIA's International
Broadcasting Bureau, OCB, Radio Marti, and USIA's OIG, as well as
with the Chairman of the Advisory Board for Cuba Broadcasting and Mr.
Richard Lobo.
Our review was conducted at USIA from September 1995 to March 1996 in
accordance with generally accepted government auditing standards.
---------------------------------------------------------- Letter :4.1
As arranged with your offices, unless you publicly announce this
report's contents earlier, we plan no further distribution until 30
days from its issue date. At that time, we will send copies to
appropriate congressional committees. We will also provide copies to
others upon request.
If you or your staff have any questions about this report or need
further assistance, please telephone me at (202) 512- 4268. Major
contributors to this report were Diana Glod, Lynn Moore, and Jesus
Martinez.
Jess T. Ford, Associate Director
International Relations and Trade Issues
PARTIAL ORGANIZATIONAL CHART FOR
U.S. INFORMATION AGENCY AND
OFFICE OF CUBA BROADCASTING
=========================================================== Appendix I
(See figure in printed
edition.)
EFFORTS TO STREAMLINE AND REINVENT
OFFICE OF CUBA BROADCASTING
========================================================== Appendix II
Executive orders in February 1993 directed executive departments and
agencies to reduce the number of their civilian personnel positions
and costs. Instructions in early 1993 from the U.S. Information
Agency's (USIA) Comptroller on implementing those orders stated that
whole functions, programs, or facilities should be considered for
elimination. According to former Office of Cuba Broadcasting (OCB)
officials, meetings were held in OCB to discuss a number of
streamlining actions and options, such as reducing staff positions in
Radio Marti and TV Marti and abolishing Radio Marti's analytical
unit.
Key events that were the basis for OCB's reinvention plan included
the following.
-- In a September 1993 memorandum to all OCB employees, the Acting
Director of OCB described possible reductions in OCB's budget
for fiscal year 1994, noting that drastic cuts in appropriations
were a real possibility, particularly for TV Marti. The
memorandum noted that personnel offices in OCB and USIA were
asked to assist staff and facilitate changes that might become
necessary should Congress substantially reduce the
appropriation.
-- In a November 1993 memorandum to OCB's department heads, the
Acting Director of OCB endorsed Vice President Gore's plan for a
more efficient government and asked each department head to
prepare a plan for streamlining and downsizing.
-- In December 1993, the Director of Radio Marti's Research
Department submitted a draft annual plan to OCB for the research
department. The draft plan noted that research had initiated a
number of streamlining efforts, including not filling or
abolishing seven positions and proposing reductions in the
budget of the Miami Research Office.\1 However, the Director
noted that similar attention had not yet been given to the
analytical unit and questions of cost and efficiency of that
unit existed. Although alternatives such as assigning the
analysts to other parts of the station were presented, the
Director stated that he was not in favor of abolishing the unit.
-- In January 1994, the Acting Director of OCB reported to the
International Broadcasting Bureau what OCB had done to implement
Vice President Gore's recommendations for "reinventing
government." The reported efforts included (1) reducing the
number of employees from 278 to 254 and (2) identifying
potential budget cuts of $4 million for fiscal years 1994 and
1995. The Acting Director stated that further streamlining
would be considered by reorganizing parts of OCB, eliminating
several more positions, and changing several full-time positions
to part-time.
-- In February 1994, the Director of Radio Marti's Research
Department was asked to identify which of the Department's
personnel and operations were essential, should budget pressures
increase in fiscal year 1995. The Director stated that (1) the
Information Resources Branch and Media Monitoring were the most
important to Radio Marti's operations and (2) depending on the
severity of budget cuts and the impossibility of finding other
budget savings, it could be necessary to consider reducing staff
in the analytical unit. However, the Director had stressed in
related documentation that absent the most pressing budgetary
requirements, a surrogate radio operation, such as Radio Marti,
would continue to need a reliable research capability.
-- In March 1994, the Advisory Panel on Radio Marti and TV Marti
issued its report, which concluded that (1) Radio Marti provided
competent broadcasting of important information not otherwise
available to the Cuban people; (2) although Radio Marti had
endeavored to observe standards for objectivity, improvement was
needed because of politicized journalistic decisions and an
oversized and growing share of coverage devoted to the
Cuban-American community; and (3) annual savings of $6 million
to $10 million per year could be achieved in OCB by downsizing
management and production processes.
--------------------
\1 The Miami Research Office's responsibilities included interviewing
persons recently arriving in the United States from Cuba and
obtaining information on key issues in Cuban society.
FIRST REINVENTION PLAN
-------------------------------------------------------- Appendix II:1
On March 24, 1994, the Director of OCB submitted OCB's reinvention
plan to the USIA Director. The plan recommended that OCB be
restructured to streamline its operations and to achieve significant
financial savings for fiscal years 1994 and 1995, in accordance with
recommendations contained in the Vice President's report on
reinventing government. Overall, the plan proposed eliminating 10
positions, including all
4 positions in the research analytical unit in Radio Marti's
Department of Research. According to the plan, that unit, composed
of three GS-14 employees and one GS-13 employee, was established in
1985 to provide a means of obtaining and analyzing information about
Cuba. However, according to the plan, OCB had employed people in the
news and programs departments with a vast knowledge of Cuba and
first-hand information was available from other means. The plan
concluded that it no longer made sense to have research analysts do
much of the same work being done elsewhere in the organization.
Projected savings in salaries and benefits were $345,000 in fiscal
year 1995.
One of the proposed positions to be eliminated was that of the
Director of Audience Research. The plan noted that (1) in October
1992, the responsibility for quantitative research work was
transferred to USIA's Office of Research and (2) OCB's Office of
Program Evaluation did all of the qualitative analyses necessary to
support the program. The plan also proposed eliminating a producer
and a writer position in TV Marti and an administrative officer
position in OCB and allowing two temporary positions to expire.
According to the plan, eliminating the positions was necessary to
streamline operations in addition to other steps being taken, such as
imposing a hiring freeze in OCB, curtailing overtime, and reducing
administrative and personnel staff.
USIA's Director approved the plan on March 31, 1994. However, on
April 4, 1994, USIA's Director put the implementation of the plan on
hold, citing the need to consider the impact of other studies on OCB.
Nevertheless, efforts to streamline and downsize continued in OCB.
Specifically, in mid-April 1994, the Director of OCB forwarded a
proposal that would have eliminated 33 OCB positions and saved $3.08
million, in addition to the $4 million proposed in the reinvention
plan. Top USIA management's support for the reinvention plan also
continued. For example, in July 1994, USIA's Director responded to
the Advisory Panel's recommendations for a leaner management and
production process by stating that (1) OCB had proposed reducing
management and production ranks for a savings of $4 million by the
end of fiscal year 1995 and (2) reductions would be accomplished
through a combination of attrition and elimination of encumbered
positions.
AMENDED REINVENTION PLAN
-------------------------------------------------------- Appendix II:2
The Director of OCB submitted an amended version of the reinvention
plan to USIA's Director on March 22, 1995. As background, the
amended plan noted that (1) the original plan was placed on hold, but
in the interim, OCB's fiscal year 1995 funding was reduced by $2
million; (2) since late 1992, OCB had taken a number of steps to trim
its budget, including imposing a hiring freeze, reducing 34 staff
positions through buyouts and attrition, and cutting travel and
telephone costs by 30 percent and 18 percent, respectively; and (3)
consistent with the original plan, an administrative officer, a TV
news writer, and two temporary positions were abolished.
Proposals in the amended plan included recategorizing Deputy Director
positions in several departments, restructuring the news department
to improve efficiency and supervisor/employee ratios, and
transferring the Cuban media monitoring function to the Department of
Programs. The amended plan also indicated that the research
analytical unit was not essential and that phasing it out, along with
the audience research position, would save over $650,000 annually.
The amended plan was approved by USIA's Director on March 22, 1995,
but implementation was placed on hold. The USIA Director told us he
approved the reinvention plan because it had a convincing argument
that there was no longer a need for the research positions but
suspended implementation because of the analysts' allegations of
reprisals.
The amended plan had indicated that OCB would not be able to prevent
budget shortfalls in fiscal year 1995 without eliminating five of the
positions discussed in the original plan (four research analyst
positions and one Director of Audience Research position), as well as
the two supervisory positions of the four analysts (Director and
Deputy Director of Research). However, according to OCB's budget
officer, by using funds carried over from prior years and by
reprogramming funds, OCB had sufficient funds for Radio Marti in
fiscal year 1995. OCB provided the data on Radio Marti's budget that
is shown in table 1.
Table 1
Sources of Radio Marti Funding for
Fiscal Years 1990-95
Appropriatio Carryove Recoverie Obligatio Balanc
Fiscal year n\a r\b s\c ns e
---------------- ------------ -------- --------- --------- ------
1990 $12,537,000 $918,516 $7,216 $12,481,4 $981,2
82 50
1991 15,069,000 981,250 822,101 15,538,25 1,334,
0 101
1992 18,488,000 1,334,10 0 16,267,52 3,554,
1 9 572
1993 15,873,000 3,554,57 197,160 15,891,64 3,733,
2 6 086
1994 14,000,000 3,733,08 204,114 16,092,54 1,844,
6 7 653
1995 13,130,000 1,844,65 1,060,000 15,672,66 361,99
3 0 3
----------------------------------------------------------------------
\a OCB appropriations have typically been no-year funds that are
available for obligation for an indefinite period of time.
\b Unobligated funds that are carried over into the next fiscal year.
\c Deobligated funds that become available for other purposes.
According to OCB's budget officer, the statement in the amended plan
concerning budget shortfalls was not "technically" correct, but she
believed it was consistent with management's concerns about
anticipated reductions in overall appropriation levels and potential
shortfalls in the salaries account if the reinvention plan was not
implemented. She noted that the failure to implement the plan forced
OCB to request congressional approval for reprogramming funds,
primarily to cover the unanticipated salary costs of positions
scheduled for elimination. Although most of the $1.06 million in
fiscal year 1995 recoveries became available to cover those salary
costs, OCB management has characterized the use of budget recoveries
for such purposes as poor fiscal management.
LIMITED COST-BENEFIT DATA
-------------------------------------------------------- Appendix II:3
Although objectives of OCB's 1994 and 1995 reinvention plans were to
eliminate nonessential and costly positions, OCB developed only
limited cost-benefit data on the research function to justify its
elimination. OCB management defended the lack of cost-benefit
analyses, stating that (1) the Vice President's vision for
reinventing government did not require such analyses and (2) the plan
was based on management's decisions to prioritize news and programs
as the most essential elements of broadcast operations. Concerning
the issue of essentiality, several key OCB and Radio Marti officials
also defended the plan based on their belief that the research
analytical unit was not essential to the operations of Radio Marti.
Others, however, strongly defended the analysts as being an important
and readily available resource.
Our review indicated that OCB had developed the following cost data.
-- In November 1993, the Deputy Director of Radio Marti estimated
that (1) each issue brief and background report prepared by the
research analysts in fiscal year 1990 cost about $4,100, (2)
each report of Cuban radio news prepared by the media monitors
cost about $190, and (3) each information request handled by the
information specialists cost about $330. He concluded that the
per unit cost to Radio Marti of some of the research work was
very high, but he also noted that his analyses did not consider
intangible, and therefore unquantifiable, services that some of
the research staff performed. Such services included regular
research assistance to the news department and briefings for
program staff.
-- Other OCB information indicated that the number of backgrounders
and issue briefs prepared by the research analytical unit
increased from 63 to 104 from 1991 through 1993. The costs of
the outputs in 1992 and 1993 were calculated by OCB to average
between $3,000 and $3,200 each and criticized as being high.
However, OCB had not determined costs for other services, such
as external analyses, for comparative purposes.
OCB officials noted that they did not examine the cost-benefits of
Radio Marti's Field Research Unit in Miami, Florida, as part of the
reinvention plan. The unit, which includes five permanent staff and
seven contractors, has primary responsibility for interviewing new
arrivals from Cuba to develop information about the current situation
in Cuba and to maintain a database for follow-up and use by program
and news staff. Although the unit's budget was reduced significantly
in late 1992, an examination of reinvention issues in June 1995 by an
official in USIA's International Broadcasting Bureau indicated that
opportunities for reductions may exist in the Miami unit.
ISSUES CONCERNING THE ROLE OF
RESEARCH
========================================================= Appendix III
Although OCB's reinvention plan was consistent with overall efforts
to streamline government, it caused controversy by attempting to
eliminate staff that had been the focus of policy disputes within
Radio Marti for years. OCB documents show that the policy disputes
have centered around (1) the role of the analysts in ensuring policy
compliance and (2) management's decisions to exclude the analysts
from on-air programming. The analysts believe that OCB management's
actions to remove them from on-air programming represented one of
many steps by management to (1) "marginalize" the analytical unit and
(2) eventually abolish their positions under the guise of
reinvention.
POLICY COMPLIANCE FUNCTION
------------------------------------------------------- Appendix III:1
Our review indicated that the role of Radio Marti's research function
was defined in April 1986. The mission of the Research and Analysis
Division, which at that time was part of the Research and Policy
Department, included reviewing completed program scripts for both
content and policy compliance. The group primarily prepared
quarterly situation reports on Cuba and special reports, supported
public affairs programs, and briefed staff. In January 1990, a new
mission statement for research was prepared. The objective of the
new statement was to better integrate research into broadcasting
functions through daily support. The statement noted that (1) the
analysts and other research staff would assist, advise, and support
the news and program departments and (2) the Cuba situation reports
would be replaced by a series of more timely issue briefs,
backgrounders, topic analysis, and other publications. However, the
stated mission objectives for research did not include a policy
compliance role.
Shortly thereafter, Radio Marti's then Director presented a
discussion paper to department heads on the roles and mission of
Radio Marti as it completed its 5th year on the air. The Director
concluded that the research analysis function had developed a
substantial capability, but it had not been satisfactorily meshed
into providing timely responses to news and programs. He also
concluded that the final responsibility for program content, as well
as policy compliance, should be vested with the news and program
units, and not with the analysts, as it had been earlier.
Although Radio Marti's former Director made this decision, "policy
compliance" problems began to significantly affect relations between
the research department and the news room. For example, news staff
accused the analysts of monitoring and changing their work and
questioning their professional judgment. The seriousness of the
issue was reflected in a June 1994 memorandum from several news room
personnel to the Director of OCB, in which concern and frustration
about "repeated attacks" on Radio Marti's news programs were
expressed.
ON-AIR ANALYSIS FUNCTION
------------------------------------------------------- Appendix III:2
Beginning in May 1990, employees of the analytical unit were included
as on-air analysts by Radio Marti, both in regularly scheduled news
programs and in topical programming. However, at an April 1992
meeting of the Advisory Board for Cuba Broadcasting, questions were
raised as to whether personal opinions were being expressed by the
research analysts during the programs. Although it was questioned
whether employees could be expected to offer political analyses
without expressing personal opinions, one board member believed that
the fundamental charter of OCB was being breached by allowing
personal opinions to be aired on Radio Marti. Debate over this issue
continued within OCB, and effective December 31, 1992, the analysts
were removed from on-air programs.
ALLEGATIONS BY RESEARCH STAFF
------------------------------------------------------- Appendix III:3
The research analysts have made accusations about the quality and
content of Radio Marti's broadcasts. In some cases, the allegations
were directly linked to questions about changes in the roles and
responsibilities of the analysts. For example, in June 1994, the
Chairman, House Committee on Government Operations, Subcommittee on
Legislation and National Security, wrote and asked the USIA Director
to review allegations the Subcommittee had received. Allegations
were political bias, censorship, distortion of information, and
selective reporting by Radio Marti; cronyism, particularly in the
hiring of the former Radio Marti news director; and retaliation
against employees in Radio Marti and others who had criticized
broadcasts as not meeting standards. Approximately
200 examples of alleged censorship and distortion of information
practices were enclosed in the Chairman's letter. Highlighted
examples included a November 1993 broadcast that allegedly distorted
the views of the President of the European Parliament on the impact
of the U. S. embargo on Cuba. According to the letter, the
President had stated that the embargo was an obstacle to political
evolution in Cuba, but Radio Marti had incorrectly reported that he
was criticizing Fidel Castro. Allegations of selective reporting
included emphasizing the interests of certain Cuban exile
organizations in the United States rather than those of the Cuban
people.
The allegations of reprisals in the Chairman's letter focused on the
research analytical unit, stating that the unit's ability to help
ensure that Radio Marti accomplished its mission had been impaired by
banning them from on-air appearances and other punitive actions. The
Chairman was also concerned about the proposal to eliminate the
analytical unit. In August 1994, USIA's Director responded to the
Chairman, stating that (1) as to the allegations of political bias,
there appeared to be instances where news decisions were questionable
and different choices might have been made and (2) concerning the
allegation of cronyism, an error in personnel procedures had occurred
in 1991 in the hiring of the news director. However, USIA's Director
stated that the fact that the research analysts were no longer on-air
was not related to any kind of retaliation but based on management's
decisions and guidelines. Concerning the allegations of retaliation,
the Director noted that the USIA Office of Inspector General (OIG)
was investigating them. (Appendix VI contains information on the
status of the OIG investigation and a related grievance filed by the
analysts with their employee union.)
Although the Director's response to the Chairman did not react to the
specific examples of alleged distortions in reporting, OCB prepared
separate responses to each of the approximately 200 allegations,
concluding that most were unfounded. For example, OCB noted that its
analyses of the allegation concerning statements by the President of
the European Parliament concluded that (1) there was no gratuitous
critique of Fidel Castro and (2) the President was properly quoted on
the likely economic transformations if the embargo was lifted. OCB
provided supporting documentation for its analyses, but one of the
analysts has charged that the documentation had been altered to
support OCB's position.
REASONS FOR OCB DIRECTOR'S
RESIGNATION
========================================================== Appendix IV
Mr. Richard Lobo resigned as OCB Director on May 26, 1995.
According to Mr. Lobo, the major reason for his resignation was his
frustration from his unsuccessful attempts to streamline OCB and
implement the reinvention plan. He also cited his perceptions of a
general lack of support for OCB within USIA as being a factor. Mr.
Lobo said that his superiors (the USIA Director and the Associate
Director for International Broadcasting) had directed him to reform
OCB and that he viewed that directive as being consistent with the
recommendations of the March 1994 Advisory Panel on Radio Marti and
TV Marti, which called for a leaner management and production
process. In considering options for streamlining, he believed the
biggest item available for reduction was staffing. However, he also
saw the focus of Radio Marti operations as being news and programs
and he tried to protect those functions as much as possible.
In preparing the reinvention plan, Mr. Lobo said that he built on
the streamlining efforts already underway in OCB when he assumed his
position. In regard to the efforts to eliminate the analyst
positions, he said that several factors led him to conclude that the
analytical unit had become nonessential, including its costs, the
limited usefulness of its products, the development of Cuba expertise
within other OCB units, and the availability of similar expertise on
the outside at less cost. Overall, he concluded that the unit had
become a "luxury" that was no longer needed. Mr. Lobo said that
several OCB officials agreed with him, including news department
staff who had complained that the analyst's inputs were frequently
late and not essential. When asked if anyone expressed strong
support for retaining the analysts, he said "not really." He also
said that he and his superiors fully recognized that the analysts
would probably claim that the actions to eliminate their unit were in
retaliation for their past accusations of biased and slanted
broadcasting by Radio Marti.
PROGRESS IN MONITORING COMPLIANCE
WITH VOICE OF AMERICA STANDARDS
=========================================================== Appendix V
For several years, there have been allegations that political bias
has undermined Radio Marti's news and information broadcasts. In our
September 1994 report on the need to strengthen Radio Marti's program
review processes,\1 we concluded that (1) although USIA's Office of
Program Review was intended to be a primary tool for ensuring that
broadcasts meet Voice of America (VOA) standards, it had not
fulfilled that role and (2) the external review panel had limited
effectiveness and credibility due to weaknesses in OCB's procedures
for considering the panel's comments and suggestions. We recommended
that procedures be adopted to ensure that OCB systematically
considers and acts on the panel's suggestions for improved
programming.
Since our report, progress has been made in monitoring efforts
designed to ensure that Radio Marti's broadcasts meet VOA standards.
However, some weaknesses in monitoring remain, as the following
shows.
-- The International Broadcasting Bureau's Office of Program Review
has only one analyst that monitors Radio Marti's broadcasts.
The analyst's reports are detailed and, in some cases, have
identified examples of program segments that have not met
standards.\2 However, the overall scope of the monitoring has
been limited because the (1) reviews have not consistently
included conclusions as to whether broadcasts meet standards and
(2) coverage of broadcasts has been for only about 2 hours each
day. Program Review officials have also identified other
limitations such as an inadequate OCB program logging system
that hinders them when identifying the composition of broadcasts
and monitoring trends in broadcasting.
-- The Office of Program Review tracks the implementation of
recommendations made by the external review panel during its
quarterly reviews of Radio Marti's broadcasts. However, reviews
of individual programs by Program Review staff have indicated
that OCB has not fully implemented the panel's recommendations.
OCB management cited resource availability, among other
considerations, as a reason for rejecting some of the panel's
recommendations.
-- OCB's Office of Program Evaluation coordinates meetings of the
external review panel and compiles a fully documented summary of
each review that is made available to OCB's Programming
Development Committee for consideration and follow-up action.
OCB management considered these summaries to be an important
source of critical feedback and believed that policy compliance
was implicit in the panel's reviews. However, the panel's
summaries have not specifically or categorically indicated
whether or not Radio Marti's broadcasts have complied with VOA
standards.
One of the members of USIA's Broadcasting Board of Governors has also
reviewed products of the external review panels and has concluded
that the composition of the panels is not sufficient to assure
critics and the general public that programming conforms to
acceptable journalistic standards. He noted that the most damaging
allegation was that Radio Marti's programming (1) did not adhere to
its legislative mandate and (2) was improperly controlled by outside
persons or interests to further their own agendas. Although he did
not believe that the allegations were true, he proposed reforms to
detect and stop any lack of balance in programming. One proposal
included appointing a "distinguished and unimpeachable" panel of
outside reviewers to examine the content of Radio Marti programming
and pronounce on its objectivity and balance. Other Board members
have also expressed concerns about past criticisms of the external
review panels. The Board continues to study the options available to
it for evaluating and reviewing Radio and TV programming.
The continued importance of monitoring Radio Marti's compliance with
standards was recently reflected in analyses conducted by the Office
of Program Review for the Broadcasting Board of Governors and VOA.
Analyzed were two segments of Radio Marti's broadcasts dealing with
issues related to the downing of two aircraft by the Cuban government
in February 1996. The analyses concluded that the broadcasts were
inconsistent with Radio Marti's editorial policy and guidelines.
--------------------
\1 Radio Marti: Program Review Processes Need Strengthening
(GAO/NSIAD-94-265, Sept. 23, 1994).
\2 For example, in February 1995, the analyst reported that a segment
of Radio Marti's breakfast show, Early in the Morning, did not meet
standards due to broadcastings of individual opinions without airing
opposing or different points of views.
INSPECTOR GENERAL'S INVESTIGATION
AND RELATED MATTERS
========================================================== Appendix VI
The USIA OIG began its investigation into allegations of management
reprisals at OCB in June 1994. The impetus of the investigation was
an earlier audit of OCB's hiring practices,\1 which had focused on
reviewing allegations contained in an April 1993 anonymous letter
entitled "Problems at Radio Marti." OIG concluded that the employees
named in the anonymous letter had met the qualifications for their
positions and that the former news director's appointments had been
inconsistent with OCB personnel policies. OIG attributed certain
information in the audit report to the Deputy Director of Radio Marti
and later the Deputy Director alleged that he had suffered reprisals
from management because he had cooperated with the OIG audit.
OIG officials told us that they tried to focus only on allegations by
the Deputy Director, but their investigation began to draw in matters
related to the role of the research analysts and other issues. OIG
interviewed and/or contacted over 20 people as part of its
investigation, but it had not issued a final report on its findings
as of mid-April 1996. However, in July 1995, OIG provided
congressional requesters preliminary information and copies of
affidavits that it had developed during its investigation. The
publication of that information in the press resulted in severe
criticism of OIG.\2
Concerning the controversy surrounding its release of information,
the Inspector General said that her office was initially contacted by
congressional staff in January 1995. She also said that (1) OIG
officials briefed the staff on the status of the investigation on at
least two occasions and (2) a written request was received in July
1995 for more information on the investigation's results. The
Inspector General and the Assistant Inspector General for
Investigations both believed that the release of the information was
consistent with the OIG operations manual, which states that OIG's
duties and responsibilities include keeping Congress fully and
currently informed concerning fraud and other serious problems,
abuses, and deficiencies relating to the administration of Agency
programs.
--------------------
\1 Review of Allegations Concerning Radio Marti Employees,
93-A-52/ARR-94-09, May 19, 1994.
\2 According to the Inspector General, her office did not release the
information to any unauthorized individuals, including the news
media.
REFERRAL TO PRESIDENT'S COUNCIL
ON INTEGRITY AND EFFICIENCY
-------------------------------------------------------- Appendix VI:1
On July 24, 1995, USIA's Director referred the conduct of OIG's
investigation to the President's Council on Integrity and Efficiency.
The Director's press release stated that the matter was referred to
the Council because of his concerns about the premature release of
incomplete information and the impartiality of the process.
According to an official on the Council's Committee on Integrity,
several allegations were received concerning the conduct of USIA's
Inspector General. The Committee has referred all of the
administrative-related allegations concerning USIA's Inspector
General to the U.S. Agency for International Development's Office of
Inspector General to determine what (1) actions, if any, had already
been taken concerning the allegations and (2) additional actions, if
any, should be considered.
GRIEVANCE FILED WITH EMPLOYEE'S
UNION
-------------------------------------------------------- Appendix VI:2
The research analysts filed a grievance with their employee union
(American Federation of Government Employees Local 1812), stating
that the proposal to eliminate their positions was an act of
reprisal. According to the grievance, the decision in 1992 to
prohibit the direct participation of research staff in programs and
news casts undermined the ability of the analysts to contribute
directly to Radio Marti's compliance with its broadcast mandates.
The grievance also stated that (1) the continuous attempts by OCB's
management to undermine the research analysts' positions had resulted
in the degradation of their professional capabilities and constituted
ongoing job harassment and (2) the harassment may have taken place
for political motives and due to external pressure on OCB's managers.
A decision on the grievance had not been reached as of mid-April
1996. Arbitration began in mid-March 1996.
INTERNAL REVIEW BY USIA
-------------------------------------------------------- Appendix VI:3
A June 1995 examination of issues related to the grievance by an
official in the International Broadcasting Bureau for the Bureau's
Director of Personnel found that
-- since 1988, there have been substantial interpersonal and
professional conflicts involving the research analysts, the
former Director of News, and OCB management;
-- the research analysts had perceived wrongdoing on numerous
fronts, covering violation of policy, the broadcasting charter,
and improper personnel actions;
-- when viewed as a pattern, considering issues outside the staff
reductions, the credibility of the reprisal concept becomes
substantial; and
-- two senior level management officials believed that the
grievance was correct and had provided sworn affidavits to the
USIA OIG.
However, the examination concluded that substantial documentation
showed that OCB management had proceeded prudently and pragmatically
when identifying reductions as part of the reinvention process.
Moreover, the examination determined that (1) management considered
reducing the level of support provided by the research department and
determined that while some reduced level of support could be useful,
the positions were not essential and could be eliminated; (2) the
reinvention plan was approved with the understanding that allegations
of impropriety would result; and (3) no "smoking gun" existed that
proved or showed that the elimination of the research analyst
positions was an act of retribution.
(See figure in printed edition.)Appendix VII
COMMENTS FROM THE BROADCASTING
BOARD OF GOVERNORS
========================================================== Appendix VI
(See figure in printed edition.)
(See figure in printed edition.)
The following are GAO's comments on the Broadcasting Board of
Governors' letter dated April 4, 1996.
GAO COMMENTS
1. Our objective was to provide information on several issues
related to the operations of the Office of Cuba Broadcasting. We
were not asked by our congressional requesters to judge the merits of
allegations made against Radio and TV Marti programming and
management. As we note in our report, many of the allegations are
under review by the USIA OIG and grievance examiners.
2. The report has been modified in line with this suggestion.
3. We have changed the partial organizational chart in this report
to show the Board's responsibilities.
*** End of document. ***