This article is a revised version of a paper produced as part of a review of Agency for International Development policy in communication undertaken by Stanford University's Institute for Communication Research for which Edwin Parker and the author were co-principal investigators. Others contributed heavily to earlier drafts of this paper and the background papers on which it was based (see 7, 8, 13, 14, 18). They include (in alphabetical order) Ronny Adhikarya, Eduardo Contreras-Budge, Dennis Foote, Douglas Goldschmidt, John Mayo, Emile McAnany, Jeanne Moulton, Jeremiah O'Sullivan, Edwin Parker, Everett Rogers, and Douglas Solomon. The "we" used in the text is neither royal nor editorial, but refers to some subset of the author and this list of contributors. The work was performed under contract ta-C-1472 with the Development Support Bureau (Office of Education and Human Resources) of USAID, and benefited from advice from Clifford Block, Anthony Meyer, and David Sprague of that office.