	Background

All full-power television broadcasters are required by law to cease  broadcasting their analog signal by February 17, 2009. Low-power broadcast stations are not required to cease  broadcasting in analog as of February 2009 and most will continue to  broadcast in analog after the conclusion of the full-power transition. The Vast Majority of Broadcasters are Transmitting a Digital Signal, but Some Broadcast Stations Face a Range of Technical, Coordination, or Other Issues in Completing Their DTV Transition

Most broadcasters have made significant progress in preparing their  stations for the transition to digital, with approximately 91 percent of  broadcasters responding to our survey reporting that they were already  transmitting a digital signal. A small number of stations responding to our  survey (9 percent) had yet to begin broadcasting a digital signal, but  almost all of those stations expected to be broadcasting digitally by  February 17, 2009. Before the transition to digital can be finalized, some  stations still have to resolve (1) technical issues, such as the relocation of  their digital or analog antenna; (2) coordination issues, such as the U.S.  government reaching agreements with the Canadian and Mexican  governments and coordinating with cable providers and satellite  companies; or (3) other issues, such as the construction of broadcast  towers or financial constraints that might hinder their ability to complete  the steps necessary for the transition. Viewers Have Options to Prevent Loss of Service from Low- Power Analog Broadcasts, but Concerns Remain About the Clarity of Information Pertaining to this Issue

Potentially millions of viewers can receive low-power analog  transmissions, including programming from the major networks (ABC,  CBS, NBC, and Fox), Spanish language broadcasting, and public  television. Since most low-power stations will not transition to  digital in February 2009, it is possible for viewers to receive programming  in analog (from low-power stations) and digital (from full-power stations)  after the transition date. To have access to both analog  and digital television signals after the DTV transition, viewers could use a  special kind of converter box that passes through an analog signal and a  digital signal, often referred to as analog pass through. Public and private stakeholders have taken steps to educate the public  about the low-power issue and the options available to consumers. While public and private efforts are ongoing to inform the public about  low-power stations not transitioning to digital, some have expressed  concerns that the messages intended to explain this issue are instead  confusing the public. Further complicating matters, many consumers do  not know the difference between full-power and low-power stations or  whether the signals they receive are full or low power. Most People are Aware of the DTV Transition, but Many are Unprepared or Have Inadequate Plans

Most households will be unaffected by the DTV transition and a vast  majority have heard of the transition. Those at higher risk of being  affected by the transition—households viewing over-the-air television  signals—have higher levels of awareness than those who will be  unaffected. Over half of the population has heard of the converter box  subsidy program and those in households at risk of losing television  service who plan to take action are likely to utilize the program. However,  only a third of those indicating plans to purchase boxes and utilize the  coupons know how to obtain coupons. While general awareness of the  DTV transition is high, there are indications that some consumers are  confused or unknowledgeable about the transition, as 45 percent of those  households who are at risk plan no action or inadequate action to prepare  for the transition. Households Planning to Take Action for the DTV Transition are Likely to Utilize the Converter Box Subsidy Program, but Many Household Plan to Take No Action to Prepare for the Transition

Greater than half of the population is aware of the NTIA converter box  subsidy program, but more detailed knowledge of the program is much  weaker. Amongst low risk households, 30 percent indicated they  have plans to ready themselves for the transition—despite the fact that no  action is required to maintain television service. To obtain information on issues pertaining to low-power television  stations and how they affect consumers, we reviewed data from the  Federal Communications Commission and interviewed a wide variety of  industry and other private stakeholders, such as national retailers,  industry associations, and consumer advocacy groups. Digital Television Transition: Issues Related to an Information  Campaign Regarding the Transition.
Why GAO Did This Study

The Digital Television (DTV) Transition and Public Safety Act of 2005, requires all full-power television station in the United States to cease analog broadcasting by February 17, 2009. Low-power stations are not required to cease analog transmissions and most will continue broadcasting in analog. Federal law also requires the National Telecommunications and Information Administration (NTIA) to subsidize consumers' purchases of digital-to-analog converter boxes. After the transition, households with analog sets that rely on over-the-air broadcasts must take action or they will lose television service, but some households might not be aware of this potential disruption. This testimony provides information on (1) technical and coordination issues facing full-power broadcast stations as they transition to digital, (2) issues pertaining to low-power broadcasting and how they affect consumers, and (3) the extent to which American households are aware of the DTV transition and likely to utilize the converter box subsidy program. GAO interviewed officials with the Federal Communications Commission (FCC) and NTIA and met with a wide variety of industry participants and other stakeholders. GAO conducted a Web-based survey of broadcasters to determine their status in transitioning to digital and issues they were encountering and commissioned a survey of the U.S. population on consumer awareness. This statement is based on GAO's body of work on the DTV transition.

What GAO Found

Broadcasters have made significant progress in preparing for the DTV transition. In fact, many stations are already broadcasting their full digital signal with the only remaining step being to turn off their analog signal. As of February 2008, 91 percent of broadcasters responding to our survey reported that they were already transmitting a digital signal. Nine percent of stations in our survey had yet to begin broadcasting a digital signal, but almost all of those stations expected to be broadcasting digitally by the transition date. In finalizing the transition to digital, some stations still must resolve technical, coordination, and construction issues. Technical issues include relocating either digital or analog antennas and, in some cases, constructing new broadcast towers. Some stations are bound by financial constraints related to the costs of resolving these issues. In addition, some stations have outstanding coordination issues, such as the U.S. government reaching agreements with the Canadian and Mexican governments regarding signal interference issues and coordinating with cable and satellite providers. Since most low-power stations will not transition to digital by February 2009, it is possible for viewers to receive programming in analog and digital after the transition. Potentially millions of viewers can receive low-power analog transmissions, including programming from the major networks, Spanish language broadcasting, and public television. To have access to both analog and digital television signals after the DTV transition, viewers could purchase a special kind of converter box that passes through an analog signal and a digital signal, or purchase other equipment. Public and private stakeholders have taken steps to educate the public about the low-power broadcasts potentially remaining in analog but some advocacy groups and others have expressed concerns that the messages intending to explain the low-power issue are instead confusing the public. Further complicating matters, many consumers do not know the difference between full-power and low-power stations or whether the signals they receive are full or low power. Most households will be unaffected by the DTV transition and a vast majority have heard of the transition. About 84 percent of people have heard of the transition, but fewer have more specific knowledge about the transition. Those at higher risk of being affected by the transition--households viewing over-the-air television signals--have higher levels of awareness than those who will be unaffected. Over half of the population has heard of the converter box subsidy program and those households at risk of losing television service who plan to take action are likely to utilize the program. However, only a third of those indicating plans to purchase boxes and utilize the coupons know how to obtain coupons. In addition, there are indications that some consumers are confused about the transition, as 45 percent of those households who are at risk plan inadequate or no action to prepare for the transition. Conversely, amongst those unaffected by the transition, 30 percent indicated they have plans to ready themselves for the transition--despite the fact that no action will be required to maintain television service.