broadcasting oard of governors 2008-2013 …

BROADCASTING BOARD OF GOVERNORS

2008-2013 STRATEGIC PLAN

INTRODUCTION

The Broadcasting Board of Governors is pleased to release the 2008-2013 Strategic Plan.

The plan is presented online as a two-page, large-format chart with printable sections. Thefirst page describes the flow of key strategic factors from legislative mandates to meas-ures of effectiveness. The second page publishes in full the 2008-2013 implementationstrategies.

The plan reaffirms objective journalism as the BBG’s core activity and emphasizes the on-going – indeed, increased – relevance of our work in a world where extremism and author-itarianism militate daily against freedom and democracy. It also highlights thesignificance of improving distribution and use of technology to deliver BBG content to tar-get audiences in the ways they prefer to consume it, and of offering audiences the interac-tion and dialogue with the BBG broadcasters and with one another that they seek in anincreasingly networked global information environment.

This is a plan for the BBG as a whole and therefore is a framework, not a blueprint. It laysout the structure within which the BBG entities will develop and link their individualstrategic plans. This process of strategic development will progressively yield a set of inter-connected plans that will relate specifically how the BBG is accomplishing its mission.

The Board acknowledges the work of broadcast entity management in actively contribut-ing to the plan, and thanks the hundreds of employees who took time to attend presenta-tions of the plan in draft. Over the last nine months, the Board has incorporated feedbackfrom these presentations and made other revisions based on further review of the BBGmission and implementation strategies.

A strategic plan is not only a tool of good management but also a primary source docu-ment for outside oversight bodies to understand the BBG’s mission and challenges and ul-timately assess agency performance. For a quick understanding of how the BBG StrategicPlan impacts agency direction, please see the following chart outlining the plan’s five-yearlifecycle. You will also see the planning process where participation at all levels of theagency affects the on-going development of the plan.

The test of any plan is whether it produces measurable results. Under the 2002-2007plan, BBG global weekly audiences rose from 100 to 175 million. At the same time, scoresfor news reliability among these audiences were consistently high. The Board believes,however, that impact cannot be reduced to audience size alone or to any single variable. Itis intent to develop new effectiveness measures, and thus the 2008-2013 Strategic Planincorporates a performance indicator to assess the effect BBG programming has on en-hancing audience understanding.

A successful strategic plan is a dynamic document. Annual updates are necessary to keeppace with changes in our operating environments. The Board encourages ongoing em-ployee input. Please direct comments and questions to Bruce Sherman, BBG’s Director ofStrategic Planning, at [email protected].

Contents

Introduction........................1

Strategic Plan 5-Year Lifecycle................................2

2002-2008 MajorDevelopments....................3

2008-2013 Strategic PlanOverview .............................4

2008-2013 Implementation Strategies ............................5

Full Page Versions ofComponents of StrategicPlan Overview:

Origins of the BBG Mission.................................6

BBG Mission & StrategicGuidance .............................7

Challenges...........................8

Implementation Strategies ............................9

Overarching Strategic Goal& Principal Measures.....13

mailto:[email protected]

Strategic Plan Five-Year LifecycleUnderstanding how the Strategic Plan impacts agency planning, performance, and accountability

BBG Strategic Plan Developedas a Framework

The plan encompasses:• Legislative mandates & national security objectives

• BBG mission & strategic guidance

• Major challenges

• Specific implementation strategies

• Success measures

Entity & Language Service

Annual Performance Plans Formulated & Linked to the

BBG Plan

BBG Budget Pegged to

Strategic Plan

Entity & Language

Service Annual Performance Plans

Implemented

Agency Performance

Reviewed

Every level of the BBG is accountablefor performance, and every review process

is ultimately tied to the Strategic Plan:• Program Review

• Language Service Review

• Senior Mangagement Performance Evaluations

• Office of Management & Budget Oversight

• Adhoc Oversight(e.g. Government Accountability Office,

Office of Inspector the General)

BBG Strategic Plan as well as

Entity & LanguageAnnual Performance

Plans Updated

Entity & Oversight

Agency Feedback Solicited

Every Budget Year Strategic Cycle

Entity & language serviceannual performance plans include:• Strategic context analyses

• Country specific strategies

• Detailed action plans

• Performance targets

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• Launch of major new channels of communication:– 24/7 Stream to Afghanistan- RFE/RL & VOA (2001-2002)– Radio Sawa (2002)– Radio Farda (2003)– Alhurra TV, Alhurra Iraq, Alhurra Europe (2004)– VOA Aap Ki Dunyaa (2005)– VOA Radio Deewa (2006)

• Expansion of VOA TV to some 22 services

• Significant growth of VOA Persian TV

• New and expanded broadcasting in Korean, Indonesian, Somali,and other priority languages

• Development of new and modernized Internet services

• Redeployment of some transmission assets from shortwave to BBG-owned/operated FMs and cross-border AMs

• Onset of a research-driven and performance-oriented culture across the BBG with research funding increased from $1.5 million to nearly $10 million

• Audience growth concentrated in priority target areas

998 FY 1999 FY 2000 FY 2009

MBNBCICubaRFARFE/RLIBB OtherVOA

Middle East Broadcasting Networks

Broadcasting Capital Improvements

Office of Cuba Broadcasting

Radio Free Asia

Radio Free Europe/Radio Liberty

International Broadcasting Bureau (Other)

Voice of America

BBG Funding Overview($ thousands)

100000

200000

300000

400000

500000

600000

700000

800000

2001 2002 2003 2004 2005 2006 2007 2008

2002-2008 Major Developments

BBG Global Audience(BBG unduplicated weekly audience in millions)

100130 140 140

155175

2003 2004 2005 2006 2007 20082002

100

The 2008-2013 Strategic Plan builds on progress from 2002-2007 – a period that saw significant growth in funding, development of a host of broadcasting initiatives, and a 75% rise in the BBG's global audience.

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MISSION

To promote freedom and democracy and to enhance understanding throughmulti-media communication of accurate, objective, and balanced news,information, and other programmingabout America and the world to audiences overseas.

This mission statement is for the BBG as a whole,encompassing the respective missions of the dif-ferent BBG broadcasting organizations. It upholdsthe traditional purpose of supporting freedom anddemocracy. It includes a new component ofenhancing audience understanding. And it con-veys that the means – indeed, the only means – offulfilling the mission is through objective journal-ism.

BBG STRATEGIC GUIDANCEBelow are Board standards that describe a vision ofsuccess for U.S. international broadcasting – i.e.,what we will be doing when we are fully successfulin carrying out the mission.

• Broadcasting quality programming.

• Reaching significant audiences to achievestrategic aims.

• Serving as an example of a free and professional press.

• Focusing on nations key to the struggle against extremism and where freedom anddemocracy are threatened.

• Gaining audience trust as a source for news.

• Communicating what America stands for – our policies, values, and culture.

• Countering global extremism.

• Fostering respect for human rights.

• Supporting popular aspirations for freedom inrepressive societies.

• Strengthening civil society, rule of law, andtransparency.

• Stemming religious and ethnic intolerance.

• Combating hate media.

ORIGINS OF THE BBG MISSION BBG MISSION &

STRATEGIC GUIDANCE CHALLENGESIMPLEMENTATION STRATEGIES

2008-2013

EXCERPTS FROM THE UNITED STATES INTERNATIONAL BROADCASTING ACT OF 1994

SEC. 302 CONGRESSIONAL FINDINGS AND DECLARATION OF PURPOSES.The Congress makes the following findings and declarations:• It is the policy of the United States to promote the rightof freedom of opinion and expression; including the free-dom “to seek, receive, and impart information and ideasthrough any media and regardless of frontiers,” in accor-dance with Article 19 of the Universal Declaration ofHuman Rights.• Open communication of information and ideas amongthe peoples of the world contributes to internationalpeace and stability and the promotion of such communi-cation is in the interests of the United States.SEC. 303 STANDARDS AND PRINCIPLES.BROADCASTING STANDARDS.-United States internationalbroadcasting shall:• be consistent with the broad foreign policy objectives ofthe United States;• be conducted in accordance with the highest professional standards of broadcast journalism;•be based on reliable information about its potentialaudience; • be designed so as to effectively reach a significantaudience;BROADCASTING PRINCIPLES.-United States internationalbroadcasting shall include:• news which is consistently reliable and authoritative,accurate; objective, and comprehensive;• a balanced and comprehensive projection of UnitedStates thought and institutions, reflecting the diversity ofUnited States culture and society;• clear and effective presentation of the policies, includingeditorials, broadcast by the Voice of America, which pres-ent the views of the United States Government andresponsible discussion and opinion on those policies.

EXCERPTS FROM THE NATIONAL SECURITY STRATEGY OF THE UNITED STATES OF AMERICA OF 2006

Our national security strategy is founded upon two pillars:

• The first pillar is promoting freedom, justice, and humandignity – working to end tyranny, to promote effectivedemocracies, and to extend prosperity through free andfair trade and wise development policies. Free govern-ments are accountable to their people, govern their terri-tory effectively, and pursue economic and political policiesthat benefit their citizens. Free governments do notoppress their people or attack other free nations. Peaceand international stability are most reliably built on afoundation of freedom.

• The second pillar of our strategy is confronting the chal-lenges of our time by leading a growing community ofdemocracies. Many of the problems we face – from thethreat of pandemic disease, to proliferation of weapons ofmass destruction, to terrorism, to human trafficking, tonatural disasters – reach across borders. Effective multi-national efforts are essential to solve these problems. Yethistory has shown that only when we do our part willothers do theirs. America must continue to lead.

OVERARCHING STRATEGIC GOALAND PRINCIPAL MEASURES

The BBG mission is grounded on thepremise that a free, professionalpress, over the long run, will supportthe establishment of freedom anddemocracy in countries lacking thesame. To track accomplishment ofthis mission in the near term, theBBG has developed one overarching,measurable goal. It is to:

DELIVER ACCURATE NEWS ANDINFORMATION TO SIGNIFICANTAUDIENCES IN SUPPORT OF U.S.STRATEGIC INTERESTS.

Accomplishing this goal requires,first, that BBG programs deliverhigh quality news and informationin a manner attractive to listenersor viewers. The BBG monitors thequality of its news and informationin many ways: through editorialcontrols and supervision, throughperiodic program reviews, includingmonitoring panels, and by trackingregular audiences’ perceptions ofthe trustworthiness and reliabilityof its news and information.

Second, it requires that the pro-grams reach significant numbers ofpeople on a regular basis. The stan-dard for measurement of audiencesis the number of adults (15+) who“listened or viewed last week” asdetermined by random sampling inthe target area. This is the samemeasure used by government-sup-ported broadcasters of otherWestern nations.

Third, it requires that the audi-ences’ understanding of currentevents and/or American society andpolicies is enhanced as a conse-quence of their listening or viewing.Enhancing understanding is a newmeasure. The BBG has begun todevelop and test measurementtools to track progress in this area.All BBG language services will bereviewed on this basis during thecourse of the current Strategic Plan.

Implementation strategies are the broadaction steps the BBG needs to take toaccomplish the BBG mission given the chal-lenges we face.

#1: ENHANCE PROGRAM DELIVERY ACROSS ALL RELEVANT PLATFORMS

#2: BUILD ON BBG REACH AND IMPACTWITHIN THE MUSLIM WORLD

#3: HELP AUDIENCES IN AUTHORITARIANCOUNTRIES UNDERSTAND THEPRINCIPLES AND PRACTICES OFDEMOCRATIC, FREE, AND JUSTSOCIETIES

#4: EMPLOY MODERN COMMUNICATIONTECHNIQUES AND TECHNOLOGIES

#5: FACILITATE CITIZEN DISCOURSE

#6: ENGAGE THE WORLD INCONVERSATION ABOUT AMERICA

#7: DEVELOP AND MOTIVATE THEWORKFORCE TO MEET THE CHANGINGCONDITIONS OF U.S. INTERNATIONALBROADCASTING

#8: OPTIMIZE BROADCASTINGOPERATIONS

#9: PRESERVE CREDIBILITY AND ENSUREOVERALL PROGRAMMING EXCELLENCE

#10: BROADEN COOPERATION WITHIN U.S. PUBLIC DIPLOMACY

Implementation Strategies explained in detail on

full page version.

The BBG faces a number of significant challenges in accomplishingthe mission that inform development of implementation strategies.Many challenges are long-standing and enduring. Summarizedbelow, they derive from an internal analysis of BBG strengths andweaknesses, global market and audience research, academic andresearch institute studies, etc.

• ENSURING EFFECTIVE DISTRIBUTION. Delivering BBG program-ming to audiences via the media and formats they prefer remainsthe BBG’s number one challenge. Many countries jam direct broad-casts, limit or prohibit local distribution via affiliates, and block BBGInternet sites. We must manage, as never before, a mix of mediaand technologies from traditional shortwave to satellite TV and cellphones.

• STAYING ABREAST OF EMERGING GLOBAL TRENDS. Two major fac-tors shape the global political and security context for BBG opera-tions: recalcitrant and resurgent authoritarianism and risingextremism. In many places, the two are intertwined. BBG broad-casters largely target audiences where authoritarianism andextremism predominate, and must therefore stay abreast of theemerging policies and practices of both.

• ADVANCING MEDIA MARKETS. BBG media markets are growing incomplexity and sophistication every day, necessitating customizedlocal strategies and expert implementation to enhance BBG com-petitiveness.

• ADAPTING TO MULTIPLE INFORMATION PLATFORMS. Global audi-ences now consume and expect information products across arange of delivery systems. This requires modern, synergistic produc-tion systems to leverage BBG newsgathering and reporting andmove content seamlessly across platforms.

• MEETING AUDIENCE DEMANDS FOR DIALOGUE AND INTERACTIVITY.Audiences today want to give their feedback and generate theirown content. This is an Information Age phenomenon, not onerestricted to BBG audiences. But it is especially true for BBG audi-ences, many of whom seek a conversation via global media, andwith U.S.-supported media in particular.

• OVERCOMING ANTI-U.S. ATTITUDES. Global attitudes toward U.S.policies and conduct remain negative in certain areas, heighteningcredibility hurdles for some BBG broadcasts and the need for adher-ence to the highest journalism standards.

• FINDING NEW AUDIENCES. BBG audiences have grown impressive-ly from 100 million to 175 million weekly since 2001. Significant newgains will require access to new distribution as well as continuedmarket-specific, research-driven, innovative programming.

• LEVERAGING ORGANIZATIONAL CAPABILITIES. National securityimperatives, changing media environments, and new technologiesconstantly emerge that require shifts in the way the BBG operates.The BBG must continually assess how best to scale and shape oper-ations – including, but not limited to, the right mix of languageservices and appropriate delegation of duties among the broadcast-ers – to meet the new challenges while enhancing performance

• MANAGING WITH EXISTING RESOURCES. Congress has increasedBBG budgets some 40% in the last 10 years in support of new prior-ities. Additional resources cannot be predicted, however. Many BBGlanguage services have not received funding for new initiatives, andyet all services face increasingly complex broadcasting tasks.

• ADDRESSING CRITICAL WORKFORCE ISSUES. The BBG workforce isaging. Sixty-three percent of Federal employees will be eligible toretire by 2010. Employee morale and training concerns routinelysurface in annual employee surveys and management reviews. Inaddition, the progressive devaluation of the dollar has created sig-nificant hardships for many BBG grantee employees overseas.

BBG STRATEGIC PLAN 2008-2013: OVERVIEW

Full page version of the Origins of the BBG Mission

The following chart shows the flow of ideas and connections between BBG mission and measures. Click on the button beneath each column for a printable version of the text.

Full page version of the BBG Mission & Guidance

Full page version of the Challenges

Full page version of the Implementation Strategies

Full page version of the Strategic Goal and Principal Measures

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IMPLEMENTATION STRATEGIES 2008-2013

#1: ENHANCE PROGRAM DELIVERYACROSS ALL RELEVANT PLATFORMS

Securing effective distribution is theBBG’s number one challenge. Wemust ensure that BBG content is avail-able via the media, bands, networks,channels, and stations that audiencesuse – from shortwave to cell phones.There is no one solution. Discerningthe right distribution strategies is amarket-by-market determination.

Therefore, we will:

• Sustain a global satellite networkusing the most popular programming“neighborhoods” to deliver TV andradio programs to BBG stations andaffiliates around the world, and tooffer direct-to-home service, wherefeasible.

• Heighten the BBG’s Internet pres-ence with broad capacity and attrac-tive formats, rapidly deploying appro-priate new technologies and aggres-sively countering intentional interfer-ence to BBG transmissions and websites.

• Expand new media technologies totarget audiences via the devices andplatforms audiences use the most (e.g.,mobile devices, cell phones, PDAs, etc.).

• Sign up affiliate stations and net-works with greater audience reach(recognizing desirable affiliates willrequest high-quality programmingand market-rate compensation forplacement).

• Market and syndicate BBG contentto appropriate online outlets.

• Maximize opportunities to spreadcontent via viral marketing and use ofsocial networking sites.

• Realign BBG transmission networkresources to serve priority audienceswith the most cost-effective andappropriate media, building or leasingcritical new medium wave and FMfacilities as needed and developingsharing arrangements with othermajor international broadcasters.

• Shore up BBG’s surge and crisisbroadcasting capability with suffi-cient facilities including shortwave tomaintain effective communications inany scenario.

• Track emerging technolo-gies/delivery systems and shiftresources, as feasible and appropriate,to (less expensive) digital platforms.

#2: BUILD ON BBG REACH ANDIMPACT WITHIN THE MUSLIM WORLD

The BBG has taken significant stridestoward better reaching the Muslimworld since 9/11, launching 24/7

broadcasting and other initiatives val-ued at more than $125 million annu-ally – with increases in weekly audi-ences in excess of 50 million people.Most Muslim-majority countries exer-cise strict control over media. Rumor,speculation, distortion, censorship,and self-censorship are common.Media hate speech persists in somequarters. Anti-Americanism predomi-nates. Extremism can breed more eas-ily in such contexts. Pan-Arab satelliteTV channels and other regional out-lets have provided alternatives tostate-controlled sources. But BBGbroadcasters play a key role to ensureaccurate and balanced reporting; tobe a forum for open debate, discus-sion, and dialogue; and to enhanceunderstanding of American policiesand actions.

Therefore, we will:

• Ensure broadcast credibility andauthoritativeness for often-skepticalaudiences by exemplifying a free, pro-fessional press, thereby serving theinformation needs of local audiencesas well as helping to dispel distortionsand misconceptions of America.

• Augment newsgathering, reporting, and programming for Alhurra TV and Radio Sawa.

• Expand TV, radio, and Internet service to Iran, including minority languages.

• Explore new targets of opportunity.

• Broaden and deepen the overall cov-erage of Islam.

• Foster intra-Islamic dialogue, includ-ing discussion of Islam and modernityand Islam and democracy, and ensurethe participation of mainstreamMuslim voices.

#3: HELP AUDIENCES INAUTHORITARIAN COUNTRIESUNDERSTAND THE PRINCIPLES ANDPRACTICES OF DEMOCRATIC, FREE,AND JUST SOCIETIES

Freedom and democracy were on themarch around the world after the endof the Cold War but are suffering seri-ous challenges now. “The year 2007was marked by a notable setback forglobal freedom,” notes FreedomHouse, with reversals in one-fifth ofthe world’s countries. It notes furtherthat declines in press freedom out-numbered gains by a two-to-one mar-gin from 2006-2007, the sixth consec-utive year of overall decline. Reachingaudiences in countries where authori-tarianism persists or is resurgent is aperennial BBG priority.

Therefore, we will:

• Boost service, where feasible, tohigher priority authoritarian states.

• Fill in the gaps in current news cover-age that occur when authoritarianregimes do not permit domesticmedia to broadcast or print – consis-tent with comprehensive and bal-anced news and information products.

• Serve as an authoritative source ofexpert analysis and commentary.

• Draw on the experiences/historiesof the world’s many models of freesocieties to permit intellectually curi-ous listeners to arrive at their ownreasoned political views.

• Optimize use of emerging newmedia technologies as complementaryor alternative distribution platforms.

#4: EMPLOY MODERNCOMMUNICATION TECHNIQUES ANDTECHNOLOGIES

Congress has stipulated that BBGbroadcasts “be designed so as toeffectively reach a significant audi-ence” – a very different challenge in2008 than in 1998. Over the next fiveyears, audiences will be increasinglyusing mobile phones, podcasts, andother new media to obtain news andinformation. We must stay on the cut-ting-edge of emerging technologies.We must continue to differentiateacross markets, avoiding a one-size-fits-all approach, to adopt formatsand delivery means consistent withlocal circumstances and audienceneeds. The aim is to expand audiencereach while preserving the core mis-sion of disseminating factual newsand information.

Therefore, we will:

• Sharpen audience segmentation and targeting.

• Tailor content to audience needs,addressing key local concerns.

• Match formats and presentationstyles to audience preferences andmarket conditions

• Optimize the media mix country by country, ensuring the right balanceof TV, radio, Internet, and related new media platforms such as mobile phones.

• Modernize broadcasting facilities tosupport growing TV production andother needs.

• Integrate and digitize all content–e.g., text, audio, photos, graphics,and video – to facilitate use acrossplatforms and ready syndication toexternal outlets.

• Maximize opportunities for audi-ence interactivity.

• Heighten effective requisition andutilization of audience and marketresearch.

#5: FACILITATE CITIZEN DISCOURSE

Technology – PCs, the Internet, andcell phones coupled with email, chatrooms, and blogs – is empoweringunprecedented participatory dis-course among ordinary citizens. Savvymedia today use their news and infor-mation to fuel citizen discourse (e.g.,emailing and follow-up discussion ofnews stories) and develop new chan-nels for citizens to engage in discus-sion (e.g., media-sponsored blogs andinteractive channels). BBG serviceshave several advantages: we operatein relatively less well-developed infor-mation environments, and we areoften among the few, credible newssources in vernacular languages.There is thus a major opportunity forus to fulfill the BBG core mission bydemocratizing information exchangeand discourse.

Therefore, we will:

• Take advantage of common language groups to facilitate conversations across smaller regional communities.

• Utilize lingua franca to facilitateregional dialogue.

• Unite in dialogue ethnic and linguis-tic communities that are separatedgeographically.

• Bring together minority-languagespeakers between and among countries.

#6: ENGAGE THE WORLD INCONVERSATION ABOUT AMERICA

The positions and policies of the U.S.elicit strong international reactions.Many turn to protest againstAmerica. Many others seek a conver-sation with America. Research sug-gests dialogue, not monologue, is theapproach we should use. Meeting thedemand for dialogue is a missionimperative, especially for the Voice ofAmerica. BBG international call-inprograms show how readily audi-ences respond to opportunities totalk with us. But the strategy needsto go beyond any particular programformat. We need to seek out everyopportunity to prompt two-way com-munication, using interactive websites, blogs, and new media devices.Engaging audiences, and allowingthem to engage us, is the BBG’s best

means of communicating whatAmerica is and stands for.

Therefore, we will:

• Concentrate on aspects of Americathat research shows interest individ-ual audiences.

• Present accurate and comprehensiveinformation to counteract misinfor-mation and disinformation about theUnited States – our policies, values,and culture.

• Explore alternative two-way vehicles,including Q and A formats, to comple-ment the existing VOA editorials.

• Improve VOA’s Internet portal toAmerica with state-of-the-art website interactivity and rich content andfeatures.

• Produce town hall exchanges linkingAmerican communities with counter-parts abroad.

• Continue to use English-languageinstruction as a unique means ofengaging audiences.

• Satisfy the global interest inAmerican politics with informed coverage and analysis of nationalelections and coverage of other political events and activity to impartthe news and to elucidate the politicalprocess.

#7: DEVELOP AND MOTIVATE THEWORKFORCE TO MEET THECHANGING CONDITIONS OF U.S.INTERNATIONAL BROADCASTING

BBG has identified employee skills,training, and morale as critical issuesfor advancing the mission. Changes inlanguage service priorities and pro-gramming, reallocation of resources,and advancements in technology allimpact the manner in which BBGbroadcasting is done and the compe-tencies required of employees. At thesame time, the Federal workforce inparticular will soon face unprecedent-ed attrition. All broadcasters need toattract employees with up-to-datetechnical skills suited to producing themulti-platform programming requiredin today’s global media environments.

Therefore, we will:

• Prepare for the coming wave ofFederal retirements.

• Take necessary and appropriatemeasures to improve employeemorale.

• Step up recruitment of language-qualified talent and those with skillscritical for multi-media and retainthem with an attractive combination

of compensation, training, and a posi-tive work environment in the U.S. andat overseas locations.

• Offer training across disciplines to enhance productivity and advancement.

• Promote opportunities for jobgrowth and promotion.

• Communicate regularly and openlywith employees about BBG priorities,plans, and problems.

• Maintain a safe and secure workenvironment for all employees.

#8: OPTIMIZE BROADCASTINGOPERATIONS

Consistent with the requirements ofthe U.S. International BroadcastingAct, the BBG has acted to consolidateglobal transmissions and programdelivery and has eliminated orreduced lower priority language serv-ices and expanded higher priorityservices. BBG recognizes the necessi-ty of continuing to evaluate optionsto realign its resources to meet themission in the most effective andefficient manner possible. This evalu-ation will incorporate the annual lan-guage service review as well as inputfrom other government entities.

Therefore, we will:

• Consult with stakeholders to helpassess the shape and scope of broad-casting operations in light of emerg-ing priorities.

• Expand intra-agency action on criti-cal BBG-wide concerns – e.g., cybersecurity.

• Continue to address dual languageservices while honoring statutorymandates.

• Formulate new BBG media strate-gies – for TV, in particular – to achieveappropriate divisions of labor withinthe BBG and to maximize respectivebroadcast entity comparative advan-tages market by market.

#9: PRESERVE CREDIBILITY ANDENSURE OVERALL PROGRAMMINGEXCELLENCE

Credibility is key to success in objec-tive journalism, and it is the BBG’sgreatest asset. If audiences do notfind the BBG’s broadcasts to be credi-ble, they will not tune us in. We musttherefore appreciate and overcomethe impediments to being crediblewith any given audience. We mustalso resist any efforts to sway newscoverage or otherwise interfere with

the content of BBG broadcasts.

Therefore, we will:

• Sustain a rigid editorial firewall tosafeguard the integrity and impartial-ity of broadcast content.

• Pay special attention to researchfindings on audience perceptions ofthe credibility of BBG broadcasts andmake any warranted changes.

• Update and enforce journalism standards on a regular basis.

• Sustain program reviews of allbroadcast services, at least annually,to gauge overall programming qualityand impact.

• Undertake ad hoc programmingassessments, as warranted, to assessspecific content areas for accuracyand balance.

#10: BROADEN COOPERATION WITHIN U.S. PUBLIC DIPLOMACY

While maintaining an editorial fire-wall, the BBG is mandated to operateconsistent with the broad foreign poli-cy objectives of the U.S. As the U.S.seeks to counter extremism and con-tinues the struggle for freedom anddemocracy, it is important for the BBGto be aware of broader U.S. publicdiplomacy planning and programactivity and, where advisable, to coor-dinate BBG strategies with those ofother agencies.

Therefore, we will:

• Play an active role in inter-agencystrategic planning.

• Pursue mutually beneficial jointprojects – e.g., USAID-funded VOAprograms in Nigeria and Zimbabwe.

• Facilitate the exchange of relevantresearch data with other government agencies.

• Develop partnerships with like-minded institutes and foundationsoutside of government.

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ORIGINS OF THE BBG MISSION

EXCERPTS FROM THE UNITED STATES INTERNATIONAL BROADCASTING ACT OF 1994

SEC. 302 CONGRESSIONAL FINDINGS AND DECLARATION OF PURPOSES.

The Congress makes the following findings and declarations:

• It is the policy of the United States to promote the right of freedom of opinion and expression; including thefreedom “to seek, receive, and impart information and ideas through any media and regardless of frontiers,” inaccordance with Article 19 of the Universal Declaration of Human Rights.

• Open communication of information and ideas among the peoples of the world contributes to internationalpeace and stability and the promotion of such communication is in the interests of the United States.

SEC. 303 STANDARDS AND PRINCIPLES.

BROADCASTING STANDARDS.-United States international broadcasting shall:

• be consistent with the broad foreign policy objectives of the United States;

• be conducted in accordance with the highest professional standards of broadcast journalism;

• be based on reliable information about its potential audience;

• be designed so as to effectively reach a significant audience;

BROADCASTING PRINCIPLES.-United States international broadcasting shall include:

• news which is consistently reliable and authoritative, accurate; objective, and comprehensive;

• a balanced and comprehensive projection of United States thought and institutions, reflecting the diversity ofUnited States culture and society;

• clear and effective presentation of the policies, including editorials, broadcast by the Voice of America, whichpresent the views of the United States Government and responsible discussion and opinion on those policies.

EXCERPTS FROM THE NATIONAL SECURITY STRATEGY OF THE UNITED STATES OF AMERICA OF 2006

Our national security strategy is founded upon two pillars:

• The first pillar is promoting freedom, justice, and human dignity – working to end tyranny, to promote effec-tive democracies, and to extend prosperity through free and fair trade and wise development policies. Free gov-ernments are accountable to their people, govern their territory effectively, and pursue economic and politicalpolicies that benefit their citizens. Free governments do not oppress their people or attack other free nations.Peace and international stability are most reliably built on a foundation of freedom.

• The second pillar of our strategy is confronting the challenges of our time by leading a growing community ofdemocracies. Many of the problems we face – from the threat of pandemic disease, to proliferation of weaponsof mass destruction, to terrorism, to human trafficking, to natural disasters – reach across borders. Effectivemulti-national efforts are essential to solve these problems. Yet history has shown that only when we do ourpart will others do theirs. America must continue to lead.

6Return to full chart


BBG MISSION & STRATEGIC GUIDANCE

MISSION

To promote freedom and democracy and to enhance understanding through multi-media commu-nication of accurate, objective, and balanced news, information, and other programming aboutAmerica and the world to audiences overseas.

This mission statement is for the BBG as a whole, encompassing the respective missions of the differ-ent BBG broadcasting organizations. It upholds the traditional purpose of supporting freedom anddemocracy. It includes a new component of enhancing audience understanding. And it conveysthat the means – indeed, the only means – of fulfilling the mission is through objective journalism.

BBG STRATEGIC GUIDANCE

Below are Board standards that describe a vision of success for U.S. international broadcasting – i.e.,what we will be doing when we are fully successful in carrying out the mission.

• Broadcasting quality programming.

• Reaching significant audiences to achieve strategic aims.

• Serving as an example of a free and professional press.

• Focusing on nations key to the struggle against extremism and where freedom and democracyare threatened.

• Gaining audience trust as a source for news.

• Communicating what America stands for – our policies, values, and culture.

• Countering global extremism.

• Fostering respect for human rights.

• Supporting popular aspirations for freedom in repressive societies.

• Strengthening civil society, rule of law, and transparency.

• Stemming religious and ethnic intolerance.

• Combating hate media.



CHALLENGES

The BBG faces a number of significant challenges in accomplishing the mission that inform develop-ment of implementation strategies. Many challenges are long-standing and enduring. Summarizedbelow, they derive from an internal analysis of BBG strengths and weaknesses, global market and au-dience research, academic and research institute studies, etc.

• ENSURING EFFECTIVE DISTRIBUTION. Delivering BBG programming to audiences via the media and for-mats they prefer remains the BBG’s number one challenge. Many countries jam direct broadcasts, limit orprohibit local distribution via affiliates, and block BBG Internet sites. We must manage, as never before, amix of media and technologies from traditional shortwave to satellite TV and cell phones.

• STAYING ABREAST OF EMERGING GLOBAL TRENDS. Two major factors shape the global political andsecurity context for BBG operations: recalcitrant and resurgent authoritarianism and rising extremism. Inmany places, the two are intertwined. BBG broadcasters largely target audiences where authoritarianismand extremism predominate, and must therefore stay abreast of the emerging policies and practices ofboth.

• ADVANCING MEDIA MARKETS. BBG media markets are growing in complexity and sophistication everyday, necessitating customized local strategies and expert implementation to enhance BBG competitiveness.

• ADAPTING TO MULTIPLE INFORMATION PLATFORMS. Global audiences now consume and expect in-formation products across a range of delivery systems. This requires modern, synergistic production systemsto leverage BBG newsgathering and reporting and move content seamlessly across platforms.

• MEETING AUDIENCE DEMANDS FOR DIALOGUE AND INTERACTIVITY. Audiences today want to givetheir feedback and generate their own content. This is an Information Age phenomenon, not one restrictedto BBG audiences. But it is especially true for BBG audiences, many of whom seek a conversation via globalmedia, and with U.S.-supported media in particular.

• OVERCOMING ANTI-U.S. ATTITUDES. Global attitudes toward U.S. policies and conduct remain negativein certain areas, heightening credibility hurdles for some BBG broadcasts and the need for adherence to thehighest journalism standards.

• FINDING NEW AUDIENCES. BBG audiences have grown impressively from 100 million to 175 millionweekly since 2001. Significant new gains will require access to new distribution as well as continued market-specific, research-driven, innovative programming.

• LEVERAGING ORGANIZATIONAL CAPABILITIES. National security imperatives, changing media environ-ments, and new technologies constantly emerge that require shifts in the way the BBG operates. The BBGmust continually assess how best to scale and shape operations – including, but not limited to, the right mixof language services and appropriate delegation of duties among the broadcasters – to meet the new chal-lenges while enhancing performance.

• MANAGING WITH EXISTING RESOURCES. Congress has increased BBG budgets some 40% in the last 10years in support of new priorities. Additional resources cannot be predicted, however. Many BBG languageservices have not received funding for new initiatives, and yet all services face increasingly complex broad-casting tasks.

• ADDRESSING CRITICAL WORKFORCE ISSUES. The BBG workforce is aging. Sixty-three percent of Federalemployees will be eligible to retire by 2010. Employee morale and training concerns routinely surface in an-nual employee surveys and management reviews. In addition, the progressive devaluation of the dollar hascreated significant hardships for many BBG grantee employees overseas.



IMPLEMENTATION STRATEGIES 2008-2013Implementation strategies are the broad action steps the BBG needs to take to accomplish the BBGmission given the challenges we face.

#1: ENHANCE PROGRAM DELIVERY ACROSS ALL RELEVANT PLATFORMSSecuring effective distribution is the BBG’s number one challenge. We must ensure that BBG content is availablevia the media, bands, networks, channels, and stations that audiences use – from shortwave to cell phones.There is no one solution. Discerning the right distribution strategies is a market-by-market determination.Therefore, we will:

• Sustain a global satellite network using the most popular programming “neighborhoods” to deliver TVand radio programs to BBG stations and affiliates around the world, and to offer direct-to-home service,where feasible.

• Heighten the BBG’s Internet presence with broad capacity and attractive formats, rapidly deploying appropri-ate new technologies and aggressively countering intentional interference to BBG transmissions and web sites.

• Expand new media technologies to target audiences via the devices and platforms audiences use the most(e.g., mobile devices, cell phones, PDAs, etc.).

• Sign up affiliate stations and networks with greater audience reach (recognizing desirable affiliates will re-quest high-quality programming and market-rate compensation for placement).

• Market and syndicate BBG content to appropriate online outlets.

• Maximize opportunities to spread content via viral marketing and use of social networking sites.

• Realign BBG transmission network resources to serve priority audiences with the most cost-effective and ap-propriate media, building or leasing critical new medium wave and FM facilities as needed and developingsharing arrangements with other major international broadcasters.

• Shore up BBG’s surge and crisis broadcasting capability with sufficient facilities including shortwave to main-tain effective communications in any scenario.

• Track emerging technologies/delivery systems and shift resources, as feasible and appropriate, to (less expen-sive) digital platforms.

#2: BUILD ON BBG REACH AND IMPACT WITHIN THE MUSLIM WORLDThe BBG has taken significant strides toward better reaching the Muslim world since 9/11, launching 24/7broadcasting and other initiatives valued at more than $125 million annually – with increases in weekly audi-ences in excess of 50 million people. Most Muslim-majority countries exercise strict control over media. Rumor,speculation, distortion, censorship, and self-censorship are common. Media hate speech persists in some quar-ters. Anti-Americanism predominates. Extremism can breed more easily in such contexts. Pan-Arab satellite TVchannels and other regional outlets have provided alternatives to state-controlled sources. But BBG broadcast-ers play a key role to ensure accurate and balanced reporting; to be a forum for open debate, discussion, and dia-logue; and to enhance understanding of American policies and actions.Therefore, we will:

• Ensure broadcast credibility and authoritativeness for often-skeptical audiences by exemplifying a free, pro-fessional press, thereby serving the information needs of local audiences as well as helping to dispel distortionsand misconceptions of America.

• Augment newsgathering, reporting, and programming for Alhurra TV and Radio Sawa.

• Expand TV, radio, and Internet service to Iran, including minority languages.

• Explore new targets of opportunity.

• Broaden and deepen the overall coverage of Islam.

• Foster intra-Islamic dialogue, including discussion of Islam and modernity and Islam and democracy, and en-sure the participation of mainstream Muslim voices. 9


#3: HELP AUDIENCES IN AUTHORITARIAN COUNTRIES UNDERSTAND THE PRINCIPLES ANDPRACTICES OF DEMOCRATIC, FREE, AND JUST SOCIETIESFreedom and democracy were on the march around the world after the end of the Cold War but are suffering se-rious challenges now. “The year 2007 was marked by a notable setback for global freedom,” notes FreedomHouse, with reversals in one-fifth of the world’s countries. It notes further that declines in press freedom out-numbered gains by a two-to-one margin from 2006-2007, the sixth consecutive year of overall decline. Reachingaudiences in countries where authoritarianism persists or is resurgent is a perennial BBG priority.Therefore, we will:

• Boost service, where feasible, to higher priority authoritarian states.

• Fill in the gaps in current news coverage that occur when authoritarian regimes do not permit domestic mediato broadcast or print – consistent with comprehensive and balanced news and information products.

• Serve as an authoritative source of expert analysis and commentary.

• Draw on the experiences/histories of the world’s many models of free societies to permit intellectually curiouslisteners to arrive at their own reasoned political views.

• Optimize use of emerging new media technologies as complementary or alternative distribution platforms.

#4: EMPLOY MODERN COMMUNICATION TECHNIQUES AND TECHNOLOGIESCongress has stipulated that BBG broadcasts “be designed so as to effectively reach a significant audience” – avery different challenge in 2008 than in 1998. Over the next five years, audiences will be increasingly using mo-bile phones, podcasts, and other new media to obtain news and information. We must stay on the cutting-edgeof emerging technologies. We must continue to differentiate across markets, avoiding a one-size-fits-all ap-proach, to adopt formats and delivery means consistent with local circumstances and audience needs. The aimis to expand audience reach while preserving the core mission of disseminating factual news and information.Therefore, we will:

• Sharpen audience segmentation and targeting.

• Tailor content to audience needs, addressing key local concerns.

• Match formats and presentation styles to audience preferences and market conditions.

• Optimize the media mix country by country, ensuring the right balance of TV, radio, Internet, and related newmedia platforms such as mobile phones.

• Modernize broadcasting facilities to support growing TV production and other needs.

• Integrate and digitize all content –e.g., text, audio, photos, graphics, and video – to facilitate use across plat-forms and ready syndication to external outlets.

• Maximize opportunities for audience interactivity.

• Heighten effective requisition and utilization of audience and market research.

#5: FACILITATE CITIZEN DISCOURSETechnology – PCs, the Internet, and cell phones coupled with email, chat rooms, and blogs – is empowering un-precedented participatory discourse among ordinary citizens. Savvy media today use their news and informa-tion to fuel citizen discourse (e.g., emailing and follow-up discussion of news stories) and develop new channelsfor citizens to engage in discussion (e.g., media-sponsored blogs and interactive channels). BBG services haveseveral advantages: we operate in relatively less well-developed information environments, and we are oftenamong the few, credible news sources in vernacular languages. There is thus a major opportunity for us to fulfillthe BBG core mission by democratizing information exchange and discourse.Therefore, we will:

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• Take advantage of common language groups to facilitate conversations across smaller regional communities.

• Utilize lingua franca to facilitate regional dialogue.

• Unite in dialogue ethnic and linguistic communities that are separated geographically.

• Bring together minority-language speakers between and among countries.

#6: ENGAGE THE WORLD IN CONVERSATION ABOUT AMERICAThe positions and policies of the U.S. elicit strong international reactions. Many turn to protest against America.Many others seek a conversation with America. Research suggests dialogue, not monologue, is the approach weshould use. Meeting the demand for dialogue is a mission imperative, especially for the Voice of America. BBGinternational call-in programs show how readily audiences respond to opportunities to talk with us. But thestrategy needs to go beyond any particular program format. We need to seek out every opportunity to prompttwo-way communication, using interactive web sites, blogs, and new media devices. Engaging audiences, andallowing them to engage us, is the BBG’s best means of communicating what America is and stands for.Therefore, we will:

• Concentrate on aspects of America that research shows interest individual audiences.

• Present accurate and comprehensive information to counteract misinformation and disinformation about theUnited States – our policies, values, and culture.

• Explore alternative two-way vehicles, including Q and A formats, to complement the existing VOA editorials.

• Improve VOA’s Internet portal to America with state-of-the-art web site interactivity and rich content and features.

• Produce town hall exchanges linking American communities with counterparts abroad.

• Continue to use English-language instruction as a unique means of engaging audiences.

• Satisfy the global interest in American politics with informed coverage and analysis of national elections and cov-erage of other political events and activity to impart the news and to elucidate the political process.

#7: DEVELOP AND MOTIVATE THE WORKFORCE TO MEET THE CHANGING CONDITIONS OF U.S.INTERNATIONAL BROADCASTINGBBG has identified employee skills, training, and morale as critical issues for advancing the mission. Changes inlanguage service priorities and programming, reallocation of resources, and advancements in technology all im-pact the manner in which BBG broadcasting is done and the competencies required of employees. At the sametime, the Federal workforce in particular will soon face unprecedented attrition. All broadcasters need to attractemployees with up-to-date technical skills suited to producing the multi-platform programming required intoday’s global media environments.Therefore, we will:

• Prepare for the coming wave of Federal retirements.

• Take necessary and appropriate measures to improve employee morale.

• Step up recruitment of language-qualified talent and those with skills critical for multi-media and retain themwith an attractive combination of compensation, training, and a positive work environment in the U.S. and atoverseas locations.

• Offer training across disciplines to enhance productivity and advancement.

• Promote opportunities for job growth and promotion.

• Communicate regularly and openly with employees about BBG priorities, plans, and problems.

• Maintain a safe and secure work environment for all employees. 11


#8: OPTIMIZE BROADCASTING OPERATIONSConsistent with the requirements of the U.S. International Broadcasting Act, the BBG has acted to consolidateglobal transmissions and program delivery and has eliminated or reduced lower priority language servicesand expanded higher priority services. BBG recognizes the necessity of continuing to evaluate options to re-align its resources to meet the mission in the most effective and efficient manner possible. This evaluationwill incorporate the annual language service review as well as input from other government entities.Therefore, we will:

• Consult with stakeholders to help assess the shape and scope of broadcasting operations in light of emerging priorities.

• Expand intra-agency action on critical BBG-wide concerns – e.g., cyber security.

• Continue to address dual language services while honoring statutory mandates.

• Formulate new BBG media strategies – for TV, in particular – to achieve appropriate divisions of labor withinthe BBG and to maximize respective broadcast entity comparative advantages market by market.

#9: PRESERVE CREDIBILITY AND ENSURE OVERALL PROGRAMMING EXCELLENCECredibility is key to success in objective journalism, and it is the BBG’s greatest asset. If audiences do not find theBBG’s broadcasts to be credible, they will not tune us in. We must therefore appreciate and overcome the imped-iments to being credible with any given audience. We must also resist any efforts to sway news coverage or oth-erwise interfere with the content of BBG broadcasts.Therefore, we will:

• Sustain a rigid editorial firewall to safeguard the integrity and impartiality of broadcast content.

• Pay special attention to research findings on audience perceptions of the credibility of BBG broadcasts andmake any warranted changes.

• Update and enforce journalism standards on a regular basis.

• Sustain program reviews of all broadcast services, at least annually, to gauge overall programming quality and impact.

• Undertake ad hoc programming assessments, as warranted, to assess specific content areas for accuracy and balance.

#10: BROADEN COOPERATION WITHIN U.S. PUBLIC DIPLOMACYWhile maintaining an editorial firewall, the BBG is mandated to operate consistent with the broad foreign policyobjectives of the U.S. As the U.S. seeks to counter extremism and continues the struggle for freedom and democ-racy, it is important for the BBG to be aware of broader U.S. public diplomacy planning and program activity and,where advisable, to coordinate BBG strategies with those of other agencies.Therefore, we will:

• Play an active role in inter-agency strategic planning.

• Pursue mutually beneficial joint projects – e.g., USAID-funded VOA programs in Nigeria and Zimbabwe.

• Facilitate the exchange of relevant research data with other government agencies.

• Develop partnerships with like-minded institutes and foundations outside of government.



OVERARCHING STRATEGIC GOAL AND PRINCIPAL MEASURES

The BBG mission is grounded on the premise that a free, professional press, over the long run, willsupport the establishment of freedom and democracy in countries lacking the same. To track accom-plishment of this mission in the near term, the BBG has developed one overarching, measurable goal. It is to:

DELIVER ACCURATE NEWS AND INFORMATION TO SIGNIFICANT AUDIENCES IN SUPPORT OF U.S. STRATEGIC INTERESTS.

Accomplishing this goal requires, first, that BBG programs deliver high quality news and informa-tion in a manner attractive to listeners or viewers. The BBG monitors the quality of its news and in-formation in many ways: through editorial controls and supervision, through periodic programreviews, including monitoring panels, and by tracking regular audiences’ perceptions of the trust-worthiness and reliability of its news and information.

Second, it requires that the programs reach significant numbers of people on a regular basis. Thestandard for measurement of audiences is the number of adults (15+) who “listened or viewed lastweek” as determined by random sampling in the target area. This is the same measure used bygovernment-supported broadcasters of other Western nations.

Third, it requires that the audiences’ understanding of current events and/or American society andpolicies is enhanced as a consequence of their listening or viewing. Enhancing understanding is anew measure. The BBG has begun to develop and test measurement tools to track progress in thisarea. All BBG language services will be reviewed on this basis during the course of the currentStrategic Plan.


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