No Nationally Representative Data on OCB’s Audience Exists, but the Best Available Audience Research Suggests That Radio and TV Martí’s Audience Size Is Small

Despite the lack of reliable nationally representative data, BBG has  determined that telephone surveys conducted from outside Cuba are  among the best available and most cost-effective methods of estimating  audience size for Radio and TV Martí. Regarding radio broadcasting, less  than 2 percent of respondents to IBB’s telephone surveys in 2003, 2005,  and 2006 said they listened to Radio Martí during the past week. While  this process provides some useful information, we identified several  weaknesses in the process. The main mechanism for assessing broadcasts’ compliance with  journalistic standards is IBB’s program review process, which is designed  to improve the content and production value of programming and ensure  quality control. IBB’s Annual Reviews Identified Problems with Broadcasts’ Adherence to Certain Journalistic Standards

While IBB officials report that the quality of OCB programming has  improved in recent years, IBB’s internal as well as external reviews  identified problems with OCB broadcasts’ adherence to certain  journalistic standards, particularly in the area of balance and objectivity. Steps Taken to Ensure U.S. Broadcasting to Cuba Adheres to Domestic and International Broadcasting Standards, but Some Concerns Remain

U.S. law generally prohibits the domestic dissemination of public  diplomacy information intended for foreign audiences. Some domestic  dissemination of OCB programming is authorized by law, and IBB and  OCB have taken a variety of steps to minimize U.S. audiences’ access to  such material. However, both Radio and TV Martí broadcasts reach U.S.  audiences in several ways. Furthermore, the Cuban government has  complained that U.S. broadcasting to Cuba violates international  broadcasting standards, and the international body that serves as a forum  for such disputes—the ITU—has found that U.S. television broadcasts (but  not radio broadcasts) cause harmful interference with Cuban broadcasts. Oversight efforts by these various groups have  identified three categories of concerns in recent years: poor  communication by OCB management, low employee morale, and  allegations of fraud and abuse. In responding to recent audit reports, BBG  and OCB have taken steps to address nearly all of the audit  recommendations. Conclusions

Broadcasting to Cuba has been an important part of U.S. foreign policy  toward Cuba for more than two decades. Recommendations for Executive Action

To assist decisionmakers and improve OCB’s strategy, we recommend that  the Broadcasting Board of Governors take the following two steps:    Conduct an analysis of the relative success and return on investment of  broadcasting to Cuba, showing the cost, nature of the audience, and  challenges—such as jamming and competition—related to each of OCB’s  transmission methods. Direct IBB to develop guidance and take steps to ensure that political and  other inappropriate advertisements are not shown during OCB broadcasts. Direct OCB to establish formal mechanisms for disseminating information  to and obtaining views from employees to help improve communication  and morale. Appendix I: Scope and Methodology

To examine the Office of Cuba Broadcasting’s (OCB) approach for  broadcasting to Cuba and what is known about the size of its audience, we  reviewed and analyzed strategic, programmatic, budget, and audience  research documents from the Broadcasting Board of Governors (BBG),  International Broadcasting Bureau (IBB), OCB, and Department of State  (State). Furthermore, we  interviewed BBG, IBB, and OCB officials regarding oversight and  management challenges and the steps taken to address those challenges.
Why GAO Did This Study

For more than two decades, the U.S. government has been broadcasting to Cuba to break the Cuban government's information blockade and promote democracy in Cuba. Over this period, questions have been raised regarding the quality and effectiveness of these broadcasts. GAO was asked to examine (1) the Office of Cuba Broadcasting's (OCB) broadcasting approach and what is known about its audience; (2) how the Broadcasting Board of Governors (BBG)--which oversees U.S. government broadcasting--and OCB ensure compliance with journalistic principles; (3) steps taken to ensure adherence to domestic and international broadcasting laws, agreements, and standards; and (4) steps BBG and OCB have taken to address management challenges. GAO analyzed documentation related to strategic planning, audience research, oversight, and operations and interviewed officials from BBG, BBG's International Broadcasting Bureau (IBB), OCB, State, and other agencies.

What GAO Found

OCB broadcasts Radio and TV Marti through multiple transmission methodsthat face varying levels of jamming by the Cuban government. While there are no nationally representative data and some surveys of recent Cuban emigres suggest a larger audience, the best available research suggests that Radio and TV Marti's audience is small. Specifically, less than 2 percent of respondents to telephone surveys since 2003 reported tuning in to Radio or TV Marti during the past week. Despite the importance of audience research, we found minimal sharing of such research among available sources. Because of limitations in the audience research data, decisionmakers lack basic information to help assess the relative success or return on investment from each of OCB's transmission methods. BBG's IBB--which directly oversees OCB--has established an annual program review process that serves as the main mechanism for assessing OCB's compliance with journalistic standards. While IBB officials report that the quality of OCB programming has improved in recent years, IBB reviews since 2003 have recommended improving adherence to certain journalistic standards, particularly in the areas of balance and objectivity. IBB's process provides useful feedback, but we found weaknesses such as limited training and operational guidance for staff conducting the reviews. OCB and IBB have taken steps to ensure that U.S. broadcasting adheres to relevant laws and standards, but some concerns remain. To comply with U.S. law, they have taken steps to minimize the domestic dissemination of OCB programming; however, OCB broadcasts reach U.S. audiences in several ways, such as through the Internet. In addition, a commercial TV station contracted to broadcast OCB programming showed some inappropriate advertisements during OCB programs. Furthermore, an international body found that OCB's TV broadcasts cause harmful interference to Cuban broadcasts, but the U.S. government has not taken steps to address this issue. Despite some efforts by BBG and OCB, oversight entities have identified problems such as poor communication by OCB management and low employee morale. For example, OCB lacks formal mechanisms for communicating with or obtaining information from employees.