The act directs FCC to require full-power television  stations to cease analog broadcasting and to broadcast solely digital  transmissions after February 17, 2009. The act also directed NTIA to  establish a $1.5 billion subsidy program through which households can  obtain coupons toward the purchase of digital-to-analog converter boxes. The Coalition’s mission is to ensure that no consumer is left  without broadcast television due to a lack of information about the  transition. Federal Government and Private Stakeholder Consumer Education Efforts Are Underway

Federal and private stakeholders are making progress in educating  consumers about the DTV transition, with both independent and  coordinated efforts underway. FCC has taken several steps toward educating consumers about the  transition. In addition, FCC has  met with some industry groups, consumer groups, and other government  agencies and participated in public events intended to educate audiences  about the transition. NTIA said it has provided informational  brochures in English and Spanish to the public and provided a copy to  every member of Congress and federal agencies that serve some of the  populations noted above. On a voluntary basis, some private stakeholders have begun implementing  measures to inform consumers about the DTV transition. As previously  mentioned, one such private-sector led effort is the DTV Transition  Coalition, which has developed and consumer tested various messages  about the transition, using surveys and focus groups of the affected  consumers—the general population, senior citizens, minority groups, and  over-the-air analog television households—to understand what messages  are most effective in informing them about the transition. Many Consumer Education Efforts Are Still in the Planning Stages and Have Not Been Widely Implemented

Widespread and comprehensive consumer education efforts have yet to be  implemented, but additional efforts are currently being planned. FCC,  NTIA, and private sector stakeholders have plans to further educate  consumers as the digital transition nears. The converter box subsidy  program, to be administered by NTIA, will also have a consumer education  component implemented by its contractor, IBM. Because many education  efforts are in the planning or initial stages of implementation, it is too early  to tell how effective these efforts will be. These  proposals include requiring television broadcasters to conduct on-air  consumer education efforts and regularly report on the status of these  efforts, requiring cable and satellite providers to insert periodic notices in  customers’ bills about the transition and their future viewing options, and  requiring manufacturers to include information on the transition with any  television set or related device they import or distribute in the United  States. Difficulties Remain in the Implementation of Consumer Education Programs

Despite efforts currently underway and those being planned, difficulties  remain in the implementation of consumer education programs. Private  sector organizations are participating in outreach efforts, but these actions  are voluntary and therefore the government cannot be assured of the  extent of private sector efforts. Further, we heard from strategic communication experts from industry,  government, and academia that potential challenges might obstruct  consumer education efforts. In particular, the experts and others  highlighted several challenges:    Prioritizing limited resources. Reaching underserved populations. Aligning stakeholders. Our Future Work Will Focus on Consumer Awareness of the DTV Transition

In our ongoing work for the House Energy and Commerce committee and  this committee, we plan to assess the progress of consumer education and  awareness about the DTV transition. We will continue to monitor  consumer education programs and plan to conduct a series of consumer  surveys throughout the year prior to the transition date. We will seek to determine the  level of public awareness of those who will be affected by the transition  and awareness of the converter box subsidy program and other options for  viewing digital signals after the transition. We will review the government’s  responsibility for consumer education, monitor the outcome of FCC’s  notices of proposed rulemaking regarding the transition, and collect  details on IBM’s consumer education plan as they become available.
Why GAO Did This Study

On February 17, 2009, federal law requires all full-power television stations in the United States to cease analog broadcasting and broadcast digital-only transmissions, often referred to as the digital television (DTV) transition. Federal law also requires the National Telecommunications and Information Administration (NTIA) to create a program that subsidizes consumers' purchases of digital-to-analog converter boxes. After the transition, households with analog sets that rely on over-the-air broadcast signals must take action or they will lose television service, but some households might not be aware of this potential disruption. This testimony provides preliminary information on (1) the consumer education efforts currently underway, (2) education efforts being planned, (3) difficulties with the implementation of consumer education programs, and (4) ongoing GAO work on consumer education and awareness regarding the transition. GAO interviewed officials with the Federal Communications Commission (FCC) and NTIA. Further, GAO met with a wide variety of industry and other stakeholders involved with the transition, including members of the DTV Transition Coalition--a group of public and private stakeholders, and experts on strategic communications. GAO discussed this testimony with FCC and NTIA officials and incorporated their comments.

What GAO Found

A number of federal and private stakeholders have begun consumer education campaigns, with both independent and coordinated efforts underway. FCC has taken several steps to promote consumer awareness, such as launching a Web site, participating in events intended to educate the public, and requiring sellers of televisions to include consumer alerts on non-digital televisions. NTIA has created brochures in English and Spanish to provide the public information about its converter box subsidy program and is partnering with organizations to perform outreach to disadvantaged groups. Earlier this year, the DTV Transition Coalition was launched to help ensure that no consumer is left without broadcast television due to a lack of information. Over 160 private, public, and non-profit groups have joined the Coalition to coordinate consumer education efforts. While widespread and comprehensive consumer education efforts have yet to be implemented, various efforts are currently being planned. FCC, NTIA, and private sector stakeholders have plans to further educate consumers as the DTV transition nears. For example, voluntary public service announcements to raise awareness of the transition are planned by industry groups and FCC is considering requiring broadcasters, manufacturers and cable and satellite providers to insert various messages and alerts in their products and programming. In addition, the converter box subsidy program will have a consumer education component. Because many education efforts are in the planning or early stages of implementation, it is too early to tell how effective these efforts will be. Various factors make consumer education difficult. While private sector stakeholders are participating in outreach efforts, these actions are voluntary and therefore the government cannot be assured of the extent of private sector efforts. Strategic communications experts from industry, government, and academia identified potential challenges to a consumer education campaign, including (1) prioritizing limited resources to target the right audience, (2) educating consumers to help protect them from making unnecessary purchases, (3) reaching underserved populations, and (4) aligning stakeholders to form a consistent, coordinated effort. GAO has work planned to assess the progress of consumer awareness. In particular, GAO plans to conduct a series of surveys to determine the population affected by the DTV transition, levels of awareness about the transition, and demographic information about the affected population. Throughout the transition, GAO will continue to monitor government and industry education efforts and analyze these efforts relative to best practices for consumer education campaigns. GAO plans to review the government's responsibility for consumer education, monitor the outcome of FCC's rulemaking related to consumer education, and collect details of the consumer education component of the converter box subsidy program.