Order Code RL34165
The Transition to Digital Television:
Is America Ready?
Updated November 6, 2007
Lennard G. Kruger
Specialist in Science and Technology Policy
Resources, Science and Industry Division

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The Transition to Digital Television: Is America Ready?
Summary
The Deficit Reduction Act of 2005 (P.L. 109-171) directs that on February 18,
2009, over-the-air television broadcasts — which are currently provided by television
stations in both analog and digital formats — will become digital only. Digital
television (DTV) technology allows a broadcaster to offer a single program stream
of high definition television (HDTV), or alternatively, multiple video program
streams (multicasts). Households with over-the-air analog-only televisions will no
longer be able to receive television service unless they either: (1) buy a digital-to-
analog converter box to hook up to their analog television set; (2) acquire a digital
television or an analog television equipped with a digital tuner; or (3) subscribe to
cable, satellite, or telephone company television services, which will likely provide
for the conversion of digital signals to their analog customers.
Households using analog televisions for viewing over-the-air television
broadcasts are likely to be most affected by the digital transition. Of particular
concern to many policymakers are low-income, elderly, disabled, non-English
speaking, and minority populations. Many of these groups tend to rely more on over-
the-air television, and are thus more likely impacted by the digital transition.
The Deficit Reduction Act of 2005 established a digital-to-analog converter box
program — administered by the National Telecommunications and Information
Administration (NTIA) of the Department of Commerce — that will partially
subsidize consumer purchases of converter boxes. NTIA will provide up to two
forty-dollar coupons to requesting U.S. households. The coupons are to be issued
between January 1, 2008, and March 31, 2009, and must be used within three months
after issuance towards the purchase of a stand-alone device used solely for digital-to-
analog conversion.
The preeminent issue for Congress is ensuring that American households are
prepared for the February 17, 2009 DTV transition deadline, thereby minimizing a
scenario whereby television sets across the nation “go dark.” Specifically, Congress
is actively overseeing the activities of federal agencies responsible for the digital
transition — principally the Federal Communications Commission (FCC) and the
NTIA — while assessing whether additional federal efforts are necessary, particularly
with respect to public education and outreach. The Congress is also monitoring the
extent to which private sector stakeholders take appropriate and sufficient steps to
educate the public and ensure that all Americans are prepared for the digital
transition. DTV- related bills, which address public education (H.R. 608, H.R. 2566,
H.R. 2917, H.R. 3862, and S. 2125), have been introduced into the 110th Congress.
At issue is whether the federal government’s current programs and reliance on private
sector stakeholders will lead to a successful digital transition with a minimum
amount of disruption to American TV households or, alternatively, whether
additional legislative measures are warranted.
This report will be updated as events warrant.

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Contents
Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
What is Digital Television? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Why is the Nation Transitioning to Digital Television? . . . . . . . . . . . . . . . . . . . . 2
Who is Likely to be Most Affected by the Transition? . . . . . . . . . . . . . . . . . . . . . 3
How Will the Digital Transition Affect Cable and Satellite Households? . . . . . . 4
The Digital-to-Analog Converter Box Program . . . . . . . . . . . . . . . . . . . . . . . . . . 4
Status of DTV Public Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Activities in the 110th Congress . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
For Further Information . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
List of Tables
Table 1. DTV Hearings Held in the 110th Congress . . . . . . . . . . . . . . . . . . . . . . 11

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The Transition to Digital Television: Is
America Ready?
Introduction
Under current law, after February 17, 2009, households with over-the-air
analog-only televisions will no longer be able to receive television service unless
they either: (1) buy a digital-to-analog converter box to hook up to their analog
television set; (2) acquire a digital television or an analog television equipped with
a digital tuner;1 or (3) subscribe to cable, satellite, or telephone company television
services, which are expected to provide for the conversion of digital signals to their
analog customers. The Deficit Reduction Act of 2005 (P.L. 109-171) directs that on
February 18, 2009, over-the-air television broadcasts — which are currently provided
by television stations in both analog and digital formats — will become digital only.2
Analog broadcast television signals, which have been broadcast for over 60 years,
will cease, and television stations will broadcast exclusively digital signals over
channels 2 through 51.
The preeminent issue for Congress is ensuring that American households are
prepared for the transition, thereby minimizing a scenario whereby television sets
across the nation “go dark” on February 18, 2009. Specifically, Congress is actively
overseeing the activities of federal agencies responsible for the digital transition —
principally the Federal Communications Commission (FCC) and the National
Telecommunications and Information Administration (NTIA) — while assessing
whether additional federal efforts are necessary. The Congress is also monitoring the
extent to which private sector stakeholders take appropriate and sufficient steps to
educate the public and ensure that all Americans are prepared for the digital
transition.
1 As of March 1, 2007, all analog televisions manufactured, imported, or shipped across
state lines are required to have a built-in digital tuner, and will therefore not require a
converter box. Retailers are permitted to sell analog-only devices from existing inventory,
but are required by the FCC to display a “consumer alert” label explaining that the device
will require a converter box in order to receive over-the-air television signals after February
17, 2009.
2 The February 17, 2009 deadline applies only to full power television stations. Low power
television stations, including Class A stations and translator stations, will transition to
digital broadcasting at a date yet to be determined by the FCC.

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What is Digital Television?
Digital television (DTV) is a new television service representing the most
significant development in television technology since the advent of color television.
DTV can provide movie-quality pictures and sound far superior to traditional analog
television. Digital television technology allows a broadcaster to offer a single
program stream of high definition television (HDTV) or, alternatively, multiple video
program streams (“multicasts”) of standard or enhanced definition television, which
provide a lesser quality picture than HDTV, but a generally better picture than analog
television. DTV technology also makes possible an interactive capability, such as
“pay-per-view” service over-the-air.
In order to receive and view digital high-definition television service, consumers
must have a digital television set equipped with a digital tuner capable of receiving
the digital signal that is provided either over-the-air (in which case an antenna is
required) or via cable or satellite television systems. Additionally, consumers can
view high definition programs with a digital TV attached to a high definition DVD
player (i.e., the HD-DVD or Blu-Ray Disc player).
Why is the Nation Transitioning to Digital
Television?
One of the key drivers behind the digital transition is reclaiming a portion of the
analog spectrum (broadcast channels 52 through 69, also known as the 700 MHZ
band) currently occupied by television broadcasters. Digital television uses radio
frequency spectrum more efficiently than traditional analog television, thereby
“freeing up” bandwidth. The goal of the FCC and Congress has been to complete the
transition to DTV as quickly as is possible and feasible, so that analog spectrum can
be reclaimed and subsequently reallocated for other purposes. Some of the analog
spectrum will be auctioned for commercial wireless services (including wireless
broadband), and some will be used for new public safety communications services.
Additionally, it is mandated that some of the revenue raised in the spectrum auction
will be returned to the U.S. Treasury, thereby contributing toward federal deficit
reduction. For more information on the auction and use of the analog television
spectrum, see CRS Report RS22218, Spectrum Use and the Transition to Digital TV,
by Linda K. Moore.
Another rationale often cited for the digital transition is that — aside from
offering a superior television viewing experience to consumers — DTV will give
over-the-air broadcasters the capability to offer more channels of programming (via
multicasting, if they so choose) as well as the ability to offer similar digitally-based
services (such as pay-per-view or other interactive services) offered by cable and
satellite television providers.

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Who is Likely to be Most Affected by the Transition?
Households using analog televisions for viewing over-the-air television
broadcasts are likely to be most affected by the digital transition. Estimates vary over
the number of analog TV sets and households affected. For example, the National
Association of Broadcasters (NAB) has estimated that there are 69 million analog
television sets that will be potentially impacted by the digital transition,3 consisting
of 19.6 million households (17% of all households) relying exclusively on over-the-
air analog television sets and an additional 14.7 million cable and satellite households
receiving some over-the-air programming on analog sets.4 The Consumer Electronics
Association (CEA) has estimated that 36.5 million analog televisions (comprising
13.5 million households) will require converter boxes; according to CEA, an
additional 30 million analog sets are used for non-broadcast purposes such as playing
video games or watching DVDs, and will therefore likely not require converter
boxes.5 The FCC’s upcoming Video Competition Report (to date not yet released)
cites Nielson Media Research data estimating (as of January 1, 2008) 14.3 million
households, about 13% of the 112.8 million total U.S. TV households, will rely on
over-the-air television broadcasts.6
Of particular concern to many policymakers are low-income, elderly, disabled,
non-English speaking, and minority populations. Many of these groups tend to rely
more on over-the-air television, and are thus more likely to be impacted by the digital
transition. A survey commissioned by the Association of Public Television Stations
(APTS) indicated that Americans aged 65 and older are consistently more likely to
receive television signals via an over-the-air antenna than are Americans under 65.
The survey found that during the first quarter of 2007, 24% of households with
Americans 65 and older received their TV programming over-the-air, while only 19%
of younger households were over-the-air. The study also found that of Americans
aged 65 and older who rely solely on over-the-air connections to television
programming, only 17% own a digital TV.7
3 Testimony of K. James Yager on behalf of the National Association of Broadcasters and
the Association for Maximum Service Television, hearing before the House Committee on
Energy and Commerce, Subcommittee on Telecommunications and the Internet, March 28,
2007, p. 11. Available at [http://energycommerce.house.gov/cmte_mtgs/
110-ti-hrg.032807.Yager-testimony.pdf]
4 Letter from Jack Sander, Joint Board Chair, National Association of Broadcasters, to the
Honorable Kevin Martin, Chairman, FCC, Re: In the Matter of DTV Consumer Education
Initiative, MB Docket No. 07-148, p. 1.
5 National Journal’s Technology Daily, PM Edition, March 16, 2007, Vol. 10, No. 9
6 Letter from Kevin J. Martin, Chairman, FCC to the Honorable Joe Barton and the
Honorable Fred Upton, House Committee on Energy and Commerce, October 15, 2007.
Available at
[http://republicans.energycommerce.house.gov/Media/File/News/10.15.07_Martin_Resp
onse_on_DTV.pdf]
7 Association of Public Television Stations, “APTS Study Shows Older Americans Less
Prepared for the Digital TV Transition,” Press Release, July 24, 2007.

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Similarly, a 2005 Government Accountability Office (GAO) survey found that
over-the-air households are more likely to have lower incomes than cable or satellite
households. Specifically, GAO found that approximately 48% of exclusive over-the-
air viewers have household incomes less than $30,000, versus 6% with household
incomes over $100,000. GAO also found that nonwhite and Hispanic households are
more likely to rely on over-the-air television, with over 23%of non-white households
relying on over-the-air television compared to less than 16% of white households,
and about 28%of Hispanic households relying on over-the-air television compared
to about 17% of non-Hispanic households.8
How Will the Digital Transition Affect Cable and
Satellite Households?
Multichannel video programming distributor (MVPD) households — consisting
of households receiving cable, satellite, or telephone company television services —
constitute approximately 85% of all U.S. television households. Many of these
households will likely continue to use analog televisions after the transition. For
those customers, it is expected that providers will handle the digital-to-analog
conversion, either at the “head end” by providing downconverted analog signals, or
at the customer premises via a set top box provided by the cable or satellite company.
At the same time, many cable and satellite households also have spare televisions
relying on over-the-air broadcasts. These stand-alone over-the-air analog televisions
will no longer function unless they are equipped with a converter box.
On September 11, 2007, the FCC adopted rules intended to ensure that cable
customers continue to receive local TV stations after the transition. Specifically, the
FCC will require cable operators to comply with a “viewability requirement” by
choosing to either 1) carry the signal in analog as well as digital formats (dual
carriage), or 2) carry the signal in a digital only format, provided that all subscribers
have set-top boxes which will enable them to view digital broadcasts on their analog
TVs. The viewability requirement extends to February 2012, at which time the FCC
will reassess the need for the requirement. Small cable companies — which had
sought an exemption — may request a waiver of the viewability requirement.
The Digital-to-Analog Converter Box Program
After February 17, 2009, analog-only televisions will no longer be able to
receive over-the-air broadcast signals, unless those televisions are equipped with a
digital-to-analog converter box. A separate converter box — expected to be available
for $50 to $70 — will be required for each analog over-the-air television set.
Converter boxes will not only enable all analog televisions to function, they should
8 U.S. Government Accountability Office, Testimony before the Subcommittee on
Telecommunications and the Internet, Committee on Energy and Commerce, House of
Representatives, Digital Broadcast Television Transition: Estimated Cost of Supporting Set-
Top Boxes to Help Advance the DTV Transition, February 17, 2005, p. 7-8.

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also provide better reception, additional features such as closed captioning and
parental controls, and allow the viewing of multicasted channels. However, a
converter box hooked up to an analog TV will not enable the viewer to watch a
broadcast in the high-definition format.
The 109th Congress acted to establish a digital-to-analog converter box program
that will partially subsidize consumer purchases of converter boxes. Title III of the
Deficit Reduction Act of 2005 (P.L. 109-171) directs the National
Telecommunications and Information Administration (NTIA) of the Department of
Commerce to provide up to two forty-dollar coupons to requesting U.S. households.
According to the statute, the coupons are to be issued between January 1, 2008, and
March 31, 2009, and must be used within three months after issuance towards the
purchase of a stand-alone device used solely for digital-to-analog conversion.
The converter box program will be funded by receipts from the auction of the
analog television spectrum. P.L. 109-171 designates $990 million for the converter
box program, including up to $100 million for administrative costs (of which no
more than $5 million can be used for consumer education). In the event that NTIA
notifies Congress that additional funding is needed, the total may be raised up to $1.5
billion, including up to $160 million for administrative costs.

On March 12, 2007, NTIA released its final rule implementing the converter
box program.9 The final rule states that starting on January 1, 2008, for the initial
$990 million program (the “Initial Period”), up to two forty-dollar coupons will be
available to any and all requesting U.S. households to be used towards the purchase
of up to two digital-to-analog converter boxes. Coupons mailed to consumers will
be accompanied by information listing converter box models and local (and online)
retailers certified to participate in the converter box coupon program. In the event
that NTIA determines that the additional $510 million is needed, only exclusively
over-the-air households will be eligible for coupons during this “Contingent Period.”
During the “Contingent Period,” households will be required to self-certify that
they are exclusively over-the-air and do not subscribe to cable, satellite, or other pay
television services. Cable and satellite households that contain extra over-the-air
televisions will be eligible for coupons during the “Initial Period” of the program (the
first $990 million), but will not be eligible for coupons if there is a second phase
(“Contingent Period”) of the program (the additional $510 million).
The rule also sets forth procedures and requirements for manufacturers and
retailers who wish to participate in the converter box program. Participation in the
converter box program is voluntary. Manufacturers must submit test results and
sample converter boxes to NTIA for approval. Approved devices must meet
prescribed technical specifications that are intended to ensure an affordable state-of-
the-art converter box. Additional permitted features include a smart antenna
9 U.S. Department of Commerce, National Telecommunications and Information
Administration, “”Rules to Implement and Administer a Coupon Program for Digital-to-
Analog Converter Boxes,” 47 CFR 301, Federal Register, Vol. 72, No. 51, March 15, 2007,
pp. 12097-12121.

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interface connector and program guide. Features that would disqualify a converter
box from being covered by the coupon program include video recording, playback
capability, or other capabilities that allow more than simply converting a digital over-
the-air signal.10
Meanwhile, retailers must receive a certification from NTIA in order to
participate in the converter box coupon program. Certified retailers must agree to
have systems in place capable of processing coupons electronically for redemption
and payment, track every transaction and provide reports to NTIA, train employees
on the purpose and operation of the coupon program with NTIA-provided training
materials, use commercially reasonable methods to order and manage inventory, and
assist NTIA in minimizing incidents of waste, fraud, and abuse, including reporting
suspicious patterns of customer behavior. Retailers are not responsible for verifying
household eligibility.11
On August 15, 2007, NTIA announced it had entered into a contract with IBM
to run the Digital-to-Analog Converter Box Coupon program. The total award is
$119,968,468, which breaks down to $84,990,343 for the initial period and
$34,978,125 for the contingent period. The contract performance began immediately
and is to close out on September 30, 2009. The IBM-led team will provide services
in three areas: consumer education, coupon distribution to consumers and retail store
participation, and financial processing to reimburse retailers, to maintain records, and
to prevent fraud, waste, and abuse.
While consumers may apply for coupons after January 1, 2008, it is widely
expected that retail outlets will not be stocked with converter boxes and ready to
redeem the coupons until a date closer to April 1, 2008.12 Given that coupons are
required by statute to expire after 90 days, NTIA has stated its intention not to mail
coupons to consumers until converter boxes are available in local retail outlets.
Status of DTV Public Education
With the February 17, 2009 deadline for the digital transition approaching, and
with the public launching of the converter box program in January 2008,
Congressional concern is focusing on the adequacy of efforts to inform the public of
the digital transition. A primary goal is preventing analog over-the-air households
10 National Telecommunications and Information Administration, DTV Converter Box
Program Information Sheet for Manufacturers, March 2007, available at
[http://www.ntia.doc.gov/dtvcoupon/DTVmanufacturers.pdf].
11 National Telecommunications and Information Administration, DTV Converter Box
Program Information Sheet for Retailers, September 2007, available at
[http://www.ntia.doc.gov/dtvcoupon/DTVretailers.pdf].
12 Testimony of Michael Vitelli, Senior Vice President and General Manager, Best Buy Co.
Inc., on behalf of Best Buy and the Consumer Electronics Retailers Coalition, hearing before
the House Committee on Energy and Commerce, Subcommittee on Telecommunications and
the Internet, October 31, 2007, p. 7. Available at [http://energycommerce.house.gov/
cmte_mtgs/110-ti-hrg.103107.Vitelli-testimony.pdf]

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from losing television service in the event that these households do not purchase a
converter box or take other measures to ensure the ability to receive digital
broadcasts after February 17, 2009.
A survey conducted by the National Association of Broadcasters (NAB) found
that 56% of over-the-air viewers have never seen, heard, or read anything about the
digital transition, that only 10% were able to guess the right year when analog
broadcasts will cease, and that only 1% to 3% knew that the transition would be
complete by February 2009.13
A subsequent survey conducted by the Association of Public Television Stations
(APTS) in August 2007 found that 51.3% of Americans were unaware of the DTV
transition. A previous APTS survey in November 2006 found the percentage of
Americans unaware of the DTV transition at 61.2%.14
Two federal agencies — the NTIA and the FCC — are directly engaged in
consumer education efforts regarding the digital transition. Currently, the NTIA is
statutorily funded (by P.L. 109-171, the Deficit Reduction Act of 2005) at “not more
than $5,000,000 for consumer education concerning the digital television transition
and the availability of the digital-to-analog converter box program.” The NTIA’s
DTV consumer education efforts is focused on raising awareness of the coupon
program, particularly with five target groups most likely to be affected by the digital
transition: senior citizens, the economically disadvantaged, rural residents, people
with disabilities, and minorities. To reach those groups and the American public in
general, the NTIA is pursuing a strategy of leveraging its resources by partnering
with private sector stakeholder groups representing those constituencies most at risk.
NTIA is also working with the DTV Transition Coalition, a broad-based coalition of
business, trade, and industry groups as well as grass roots and membership
organizations. In addition to working with private sector groups, NTIA is working
with federal government agencies that target economically disadvantaged
Americans.15
Meanwhile, the Administration has requested $1.5 million for the FCC in
FY2008 for DTV consumer education; the FY2008 House Financial Services and
13 Testimony of K. James Yager on behalf of the National Association of Broadcasters and
the Association for Maximum Service Television, hearing before the House Committee on
Energy and Commerce, Subcommittee on Telecommunications and the Internet, March 28,
2007, p. 14. Available at [http://energycommerce.house.gov/cmte_mtgs/
110-ti-hrg.032807.Yager-testimony.pdf].
14 Association of Public Television Stations, Press Release, “Government Gets Failing Grade
on DTV Transition,” September 24, 2007. Available at [http://www.apts.org/news/
govfailinggrade.cfm].
15 For information on NTIA DTV consumer education efforts, see Testimony of John
Kneuer, Assistant Secretary for Communications and Information, National
Telecommunications and Information Administration, hearings held by the Senate
Committee on Commerce, Science and Transportation, “Preparing Consumers for the
Digital Television Transition,” July 26, 2007. Available at [http://commerce.senate.gov/
public/_files/JohnMRKneuerTestimonyv2.pdf].

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General Government Appropriations bill (H.R. 2829; H.Rept. 110-207), passed by
the House on June 28, 2007, would provide $2 million. Similar to the NTIA, the
FCC is pursuing collaborative partnerships with private and public sector entities to
target outreach to vulnerable populations and to raise the general awareness of the
American public about the DTV transition. The FCC has become a member of the
DTV Transition Coalition, prepared and issued consumer publications and web
materials, and is promoting DTV awareness by attending and holding events and
conferences.16
The significant reliance of the FCC and the NTIA on the private sector for DTV
public education has led some to question whether the federal government should
assume a more proactive role in promoting DTV public education activities. On July
30, 2007, in response to criticisms and suggestions on DTV consumer education
raised by a May 24, 2007 letter17 from the House Energy and Commerce Committee,
the FCC released a Notice of Proposed Rule Making (NPRM) on a DTV Consumer
Education Initiative.18 The NPRM requests public comments on a number of
proposals to raise awareness among the public of the DTV transition, including
broadcaster public service announcements, broadcaster consumer education
reporting, multichannel video programming distributor (MVPD) customer bill
notices, consumer electronics manufacturer notices, consumer electronics retailer
reporting on its staff training, and other proposals.
Meanwhile, in testimony before the Senate Special Committee on Aging, the
Government Accountability Office (GAO) stated that difficulties remain in
implementing consumer education programs. GAO testified that because private
sector DTV outreach efforts are voluntary, government cannot be assured of their
extent and that “given the different interests represented by industry stakeholders,
messages directed at consumers vary and might lead to confusion.”19 As requested
by the House Committee on Energy and Commerce, GAO is performing an ongoing
assessment of public and private sector DTV consumer education programs and is
planning a series of consumer surveys leading up to the transition date.
A major component of any DTV public education campaign is likely to be the
airing of public service announcements (PSAs). The National Association of
Broadcasters (NAB) is preparing PSAs to be delivered to local broadcasters by
16 Testimony of Catherine Seidel, Chief, Consumer and Governmental Affairs Bureau,
Federal Communications Commission, hearings held by the Senate Committee on
Commerce, Science and Transportation, “Preparing Consumers for the Digital Television
Transition,” July 26, 2007. Available at [http://commerce.senate.gov/public/_files/
WrittenStatementofCathySeidel7262007Hearing.pdf].
1 7 A v a i l a b l e a t [ h t t p : / / e n e r g y c o m m e r c e . h o u s e . g o v / P r e s s _ 1 1 0 /
FCC.052407.Martin.ltr.DTV.pdf].
18 FCC, Notice of Proposed Rulemaking, In the Matter of DTV Consumer Education
Initiative, MB Docket No. 07-148, FCC 07-128, 22 p.
19 Government Accountability Office, Testimony Before the Senate Special Committee on
Aging, Digital Television Transition: Preliminary Information on Initial Consumer
Education Efforts, GAO-07-1248T, September 19, 2007, p. 9. Available at
[http://www.gao.gov/new.items/d071248t.pdf].

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December 2007. It will be up to local broadcasters to decide when and how often to
air the PSAs. On October 15, 2007, the NAB announced a $697 million consumer
education campaign, including DTV spots, crawls, and 30 minute educational
programs.20 Meanwhile, in September 2007, the National Cable &
Telecommunications Association (NCTA) began running on cable channels a $200
million English and Spanish language advertising campaign on the digital transition;
NCTA will continue the advertising spots through February 2009.21 In its NPRM,
the FCC states its belief that PSAs are the most effective and efficient way to reach
over-the-air television viewers about the digital transition. The FCC is proposing to
require television broadcast licensees to conduct on-air consumer education efforts
and is asking for comments on the content of such PSAs, when and how often they
should be run, whether similar requirements should be imposed on all broadcasters,
and other related questions.22
Key Issues
The Deficit Reduction Act of 2005 set a February 17, 2009 deadline for the
digital transition and established a digital converter box coupon program to mitigate
the switch-over costs to consumers with analog televisions. The key issue for
Congress is the extent to which American households will be ready for the digital
transition, and whether measures taken by the government and the private sector are
sufficient to ensure that televisions across America do not “go dark” on February 18,
2009.
Two lines of inquiry have repeatedly been raised in Congressional hearings.
First, are public education and outreach efforts sufficient, and is the federal
government playing a sufficient role in leading that effort? With limited funding,
both the FCC and the NTIA are relying heavily on a strategy of leveraging private
sector efforts. On the one hand, private sector groups have a market incentive to
ensure that the public is ready for the digital transition: for example, the consumer
electronics industry wants to sell DTV products, and broadcasters want their viewers
to be able to continue watching their local broadcasts. Accordingly, industry groups
have begun to launch multifaceted public outreach campaigns. On the other hand,
critics question whether market forces will ensure that public outreach efforts are
sufficiently targeted to those segments of American society (the elderly, non-English
speakers, rural areas, disabled citizens, minorities, the economically disadvantaged)
that may be more at risk of being adversely affected by the digital switch-over.
Critics also assert that industry outreach will likely reflect each industry sector’s
interests, and that a formal federal coordination and leadership effort — such as a
task force — is needed to ensure that a unified, consistent, and balanced message is
20 Associated Press, “Broadcasters unveil $697 million digital TV campaign,” October 15,
2007.
21 National Cable & Telecommunications Association, Press Release, “Cable Launches $200
Million Digital TV Transition Consumer Education Campaign,” September 6, 2007.
22 Ibid., p. 3.

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conveyed to the public. The Government Accountability Office (GAO) has found
that “no comprehensive plan exists for the DTV transition,” and that without such a
plan, “meaningful guidance for coordinating responsibilities and measuring progress
might not be available to the private or public sector.”23 However, at hearings before
the House Energy and Commerce and Senate Commerce, Science, and
Transportation Committees, FCC and NTIA officials stated that coordination is
already sufficient, and that it is not necessary for a single entity to be in charge.24
A second major question is the extent to which NTIA’s converter box program
will meet the needs of analog television households. According to the statute,
households can begin requesting converter boxes as of January 1, 2008. Given that
private sector participation in the converter box program is voluntary, will sufficient
numbers of converter boxes be manufactured, and will retail outlets — whether large
or small stores, whether in urban, suburban, or rural areas — stock sufficient
numbers of boxes to meet the demand of consumers seeking to redeem the $40
coupons? Also, given that coupons will expire three months after households receive
them, how effectively will NTIA be able to assess and monitor the balance of the
demand for coupons with the local supply of converter boxes? How effectively will
fraud, waste, and abuse be avoided and combated — particularly among vulnerable
populations such as the elderly? And finally, will funding for the coupons — $990
million in the initial period and a possible additional $510 million in a contingent
period — be sufficient to meet the total demand?
No definitive answers to these questions are possible until the converter box
program is implemented and the digital transition proceeds. The best-case scenario
is that public awareness of the digital transition will become ubiquitous during 2008,
that converter boxes will be readily available to all who want them, and that the
digital transition will proceed smoothly. The worst-case scenario is that public
awareness of the digital transition will continue to lag and that converter boxes will
not be uniformly available in retail outlets, leading to widespread confusion and
frustration in many American households. At issue for Congress is whether the
federal government’s current programs and reliance on private sector stakeholders
will lead to a successful digital transition with a minimum amount of disruption to
American TV households or, alternatively, whether additional legislative measures
are warranted.
Activities in the 110th Congress
Congress is closely monitoring and overseeing federal and private sector efforts
to ensure a digital transition that proceeds as smoothly as possible. Table 1 shows
a listing of hearings held in the 110th Congress on the DTV transition.
23 U.S. Government Accountability Office, Statement of Mark L .Goldstein, Digital
Television Transition: Preliminary Information on Progress of the DTV Transition,
Testimony before the House Subcommittee on Telecommunications and the Internet,
October 17, 2007.
24 Communications Daily, “Democrats Fear Lack of Leadership on DTV Transition,”
October 18, 2007.

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Table 1. DTV Hearings Held in the 110th Congress
Date
Committee
Topic
March 28, 2007
House Committee on
“The Status of the Digital
Energy and Commerce,
Television Transition”
Subcommittee on
Telecommunications and
the Internet
July 26, 2007
Senate Committee on
“Preparing Consumers for
Commerce, Science and
the Digital Television
Transportation
Transition”
September 10, 2007
Senate Special Committee
“Preparing for the Digital
on Aging
Television Transition:
Will Seniors Be Left in the
Dark?”
October 17, 2007
House Committee on
“Status of the DTV
Energy and Commerce,
Transition — Part 2”
Subcommittee on
Telecommunications and
the Internet
October 17, 2007
Senate Committee on
“The Digital Television
Commerce, Science and
Transition: Government
Transportation
and Industry Perspectives”
October 31, 2007
House Committee on
“Status of the DTV
Energy and Commerce,
Transition — Part 3”
Subcommittee on
Telecommunications and
the Internet
The following are DTV-related bills introduced into the 110th Congress:

H.R. 608 (Barton). Digital Television Consumer Education Act of 2007.
Requires the FCC to create a DTV public education program, to convene a DTV
Advisory Group to coordinate consumer outreach, and to report to Congress every
six months on the progress of consumer education efforts. Requires NTIA to report
to Congress every 90 days on the progress of the converter box coupon program.
Requires retailers, cable and satellite operators, and broadcasters to take various
measures to inform the public about the digital transition. Introduced January 22,
2007; referred to Committee on Energy and Commerce.
H.R. 2566 (Engel). National Digital Television Consumer Education Act.
Requires TV retailers and distributors to place signs next to all analog TV displays
with an advisory that a set-top box is necessary after February 17, 2009, to continue
using the TV. Also requires broadcasters to air Public Service Announcements for
more than a year before the transition to inform the public about the change and the
set-top box subsidy program. Introduced June 5, 2007; referred to Committee on
Energy and Commerce.

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H.R. 2829 (Serrano). Financial Services and General Government
Appropriations Act, 2008. House Appropriations Committee report H.Rept. 110-
207, passed by the House on June 28, 2007, would provide $2 million to the FCC for
DTV consumer education. Senate Appropriations Committee report (S.Rept. 110-
129) does not address DTV. Placed on Senate Legislative Calendar, July 13, 2007.
H.R. 2917 (Butterfield). Transition Education Accountability Report Act of
2007. Requires the FCC to submit a report to Congress describing the measures
taken by the FCC, NTIA, and other federal agencies to inform the public of the
transition to digital television. Introduced June 28, 2007; referred to Committee on
Energy and Commerce.
H.R. 3862 (Wynn). Preparing America’s Seniors for the Digital Transition Act
of 2007. Establishes an interagency federal taskforce to educate older Americans on
the DTV transition. Requires retailers, cable and satellite operators, and broadcasters
to take various measures to inform the public about the digital transition. Directs the
FCC to award grants for DTV public education. Requires modifications in the
digital-to-analog converter box program. Requires the NTIA and the FCC to provide
90-day progress reports to Congress. Introduced October 16, 2007; referred to
Committee on Energy and Commerce.
S. 2125 (Kohl). Preparing America’s Seniors for the Digital Television
Transition Act of 2007. Establishes an interagency federal taskforce to educate older
Americans on the DTV transition. Requires retailers, cable and satellite operators,
and broadcasters to take various measures to inform the public about the digital
transition. Directs the FCC to award grants for DTV public education. Requires
modifications in the digital-to-analog converter box program. Requires the NTIA
and the FCC to provide 90-day progress reports to Congress. Introduced October 2,
2007; referred to Committee on Commerce, Science and Transportation.
For Further Information
A variety of websites have been established to provide basic information to
consumers on many aspects of the digital transition. The following is a partial
listing.
Federal Communications Commission (FCC)
[http://www.dtv.gov]
National Telecommunications and Information Administration (NTIA)
[http://www.ntia.doc.gov/dtvcoupon/index.html]
DTV Transition Coalition
[http://www.dtvtransition.org/]
National Association of Broadcasters (NAB)
[http://www.dtvanswers.com/]

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Consumer Electronics Retailers Coalition (CERC)
[http://www.ceretailers.org/transtodtv.htm]
Consumer Electronics Association (CEA)
[http://www.myceknowhow.com/digitalTelevision.cfm]
National Cable & Telecommunications Association (NCTA)
[http://www.getreadyfordigitaltv.com/]
Satellite Broadcasting and Communications Association of America (SBCA)
[http://www.sbca.com/hdtv_index.asp]

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