by Bert Williams

The uncertain future continues for the digital talking book program being developed by the National Library Service for the Blind and Physically Handicapped (NLS). Last week, the House of Representatives Legislative Branch Appropriations Subcommittee voted to approve only $7.5 million of the $19.1 million NLS says it needs to move the new talking book program forward in 2008. In a later session, the amount was increased to $12.5 million by the full House Appropriations Committee—still well short of the NLS request.

On June 12, the US Government Accountability Office (GAO) issued the final version of its report on the talking book program. The report was critical of several aspects of the program. An earlier version—which was apparently available to members of Congress—may have influenced the funding decisions of the House committees.

The blind community has reacted strongly to recent developments. “Since 1931, Congress has consistently supported    . . .  a national program of audio and Braille books for the blind, operated by the Library of Congress,” said Dr. Marc Maurer, president of the National Federation of the Blind (NFB), in a comment on the NFB website. “The blind of America are shocked and disappointed that a House subcommittee has callously disregarded our literacy needs.”

The GAO report says NLS has not followed rigorous “best practice” procedures in analyzing alternatives to the system under development. Specifically, according to the GAO:
• NLS did not consider alternative ways to distribute players to subscribers that could be less costly.
• NLS did not consider using commercial players designed specifically for people who are blind and physically disabled.
• NLS did not fully analyze the initial acquisition and life-cycle costs of each alternative.
• NLS did not provide documentation to support key technical conclusions, such as the advantages and disadvantages cited for each alternative.

“Without a rigorous analysis of alternatives, NLS, the Congress, and the public will have limited assurance that the selected solution is the optimal one,” the report states.

In a phone conversation on June 14, NLS Director Kurt Cylke told Connected magazine that the GAO study came as a surprise to the NLS, but that it is not going to stop the project. "We’ve briefed Congress all along," Cylke said. "We have done all the studies the GAO is talking about." He noted that, while the digital-cartridge system under development is not the least-expensive option, in the long run it will be far superior to a CD-based system, and is clearly the best value for the taxpayers’ dollar.
 
     NFB Director for Strategic Initiatives John G. Paré Jr. testified before the appropriations subcommittee a month and a half ago, on May 1. He addressed several concerns known at that time to be in the GAO report. NLS did consider all potential digital technologies, Paré insisted, but most are not designed with blind people in mind. Navigation with other systems tends to rely on complex visual menus and to have tiny controls. Furthermore, products developed for the commercial electronics market are usually designed with planned obsolescence in mind. The whole idea is for consumers to replace equipment that has a limited lifespan with the next generation of technology. In contrast, the system designed for NLS users will offer robust players and cartridges designed to last for many years with little maintenance and with no design changes. 

“It is clear,” Paré concluded after extended testimony, “that the GAO concerns are unfounded, and that [NLS] has proceeded wisely and thoughtfully in preparing to deliver talking books in the 21st century.” Despite Paré’s testimony, subcommittee members initially approved less than 40 percent of the amount NLS says it needs to move the project forward in 2008.

In a June 13 phone conversation, Library of Congress Communication Director Matt Raymond provided an update to Connected magazine on negotiations in congressional committees. He explained that the initial $7.5 million appropriation has increased to $12.5 million, and that the congressional process is not finished. “It still has to go to the Senate,” Raymond said. “We’ll have to keep following the process.”

Cylke said he expects Senate action next week. "If we’re stuck with $12.5 million it would not be a disaster, but it’s not desirable," Cylke said. "It would stretch the conversion process out over six years, instead of four."

Funding is a greater challenge for NLS this year than in the past, Raymond noted, because the $19.1 million request is a new appropriation beyond typical baseline funding for NLS.

Raymond said Librarian of Congress James H. Billington supports the digital talking book program. “He has stated before Congress that this is a critical request because of the pending obsolescence of current technology,” Raymond said. "He told Congress there has been wide and deep consultation with users and experts alike.”

In a letter to GAO official Linda D. Koontz, made available in a June 12 email to Connected magazine by the GAO Office of Public Affairs, Billington said he “concurred” with the basic recommendations of the GAO report. Nevertheless, he expressed optimism about the digital talking book project. Billington pledged in the letter that a key system designer for the Library would make the talking book program her “highest priority,” and that he expects outstanding issues to be resolved quickly. “We believe that the analyses can be done concurrently with the tasks promised for delivery in our [fiscal year 2008] funding request,” Billington wrote. “We believe that the probable long-term solutions will be possible within the budget we have proposed . . . and that adjustments to the original plan can be accommodated.”

Cylke said he expects more lobbying from the blind community as the Senate takes up the funding issue next week. For a list of key Senators and members of Congress involved with the issue, see the May 17 Connected article: "National Library Service Digital Audio Book Program May Be in Jeopardy."

 Bert Williams is editor of Connected magazine.