The A Team: Public broadcasting

Public broadcasting includes radio, television and other electronic media outlets whose primary mission is public service. Public broadcasters receive funding from diverse sources including license fees, individual contributions, public financing and commercial financing.

Public broadcasting may be nationally or locally operated, depending on the country and the station. In some countries, public broadcasting is run by a single organization. Other countries have multiple public broadcasting organizations operating regionally or in different languages.

Historically, in many countries (with the notable exception of the US), public broadcasting was once the only form or the dominant form of broadcasting. Commercial broadcasting now also exists in most of these countries; the number of countries with only public broadcasting declined substantially during the latter part of the 20th century.

Defining public broadcasting

The primary mission of public broadcasting is that of public service, speaking to and engaging as a citizen. The British model has been widely accepted as a universal definition. The model embodies the following principles:

universal accessibility (geographic)
universal appeal (general tastes and interests)
particular attention to minorities
contribution to sense of national identity and community
distance from vested interests
direct funding and universality of payment
competition in good programming rather than numbers
guidelines that liberate rather than restrict programme-makers

While application of certain principles may be straightforward, as in the case of accessibility, some of the principles may be poorly defined or difficult to implement. In the context of a shifting national identity, the role of public broadcasting may be unclear. Likewise, the subjective nature of good programming may raise the question of individual or public taste.

Within public broadcasting there are two different views regarding commercial activity. One is that public broadcasting is incompatible with commercial objectives. The other is that public broadcasting can and should compete in the marketplace with commercial broadcasters. This dichotomy is highlighted by the public service aspects of traditional commercial broadcasters.

Economics

Public broadcasters may receive their funding from an obligatory television licence fee, individual contributions, government funding or commercial sources. Public broadcasters do not rely on advertising to the same degree as commercial broadcasters, or at all; this allows public broadcasters to transmit programmes that are not commercially viable to the mass market, such as public affairs shows, radio and television documentaries, and educational programmes.

One of the principles of public broadcasting is to provide coverage of interests for which there are missing or small markets. Public broadcasting attempts to supply topics of social benefit that are otherwise not be broadcast by commercial broadcasters. Typically, such underprovision is argued to exist when the benefits to viewers are relatively high in comparison to the benefits to advertisers from contacting viewers. This frequently is the case in undeveloped countries that normally have low benefits to advertising.

Cultural policy

Additionally, public broadcasting may facilitate the implementation of a cultural policy (an industrial policy and investment policy for culture). Some examples include:

· The Canadian government is committed to official bilingualism (English and French). As a result, the public broadcaster, the CBC employs translators and journalists who speak both official languages and it encourages production of cross-cultural material. Quebec separatists argue that this is also a policy of cultural imperialism and assimilation.

· In the UK, the BBC supports multiculturalism and diversity, in part by using on-screen commentators and hosts of different ethnic origins. There are also Welsh-language programmes.

· In New Zealand, the public broadcasting system provides support to Maori (native New Zealander) broadcasting, with the stead intention of improving their opportunities, maintaining their cultural heritage and promoting their language.In Australia, the Australian Broadcasting Corporation is legally required to 'encourage and promote the musical, dramatic and other performing arts in Australia' and 'broadcasting programs that contribute to a sense of national identity' with specific emphasis on regional and rural Australia'. As well as the Special Broadcasting Service (SBS) is still encouraged and provides through the spirit and sense of multicultural richness and the unique international cultural values within the Australian society.

Vested interests

Public broadcasting, unless its independence is vigorously upheld, can become a tool of government. Similarly, private networks can promote the policies of their owners and suppress other viewpoints, alleging it is in the public interest. Conflicts are common: the state alleges that private broadcasters are attacking it in the interests of the owners, and controls them or takes them over.

Implementation of public broadcasting around the world

The model, established in the 1920s, of the British Broadcasting Corporation – an organization widely trusted, even by citizens of the Axis Powers during World War II – was widely emulated throughout Europe, the British Empire, and later the Commonwealth. The public broadcasters in a number of countries are basically an application of the model used in Britain.

Modern public broadcasting is often a mixed commercial model. For example, the CBC has always relied on a subsidy from general revenues of the government, in addition to advertising revenue, to support its television service. This means they must compete with commercial broadcasting. Some argue that this dilutes their mandate as truly public broadcasters, who have no commercial bias to distort their presentation.

The rest of this section looks at some specific implementations of public broadcasting around the world.

Asia

India

In India, Prasar Bharati is India's public broadcaster. It is an autonomous corporation of the Ministry of Information and Broadcasting (India), Government of India and comprises the Doordarshan television network and All India Radio. Prasar Bharati was established on November 23, 1957 following a demand that the government owned broadcasters in India should be given autonomy like those in many other countries. The Parliament of India passed an Act to grant this autonomy in 1990, but it was not enacted until September 15, 1997.

Europe

In most countries in Europe, state broadcasters are funded through a mix of advertising and public money, either through a license fee or directly from the government.

France

Following World War II, the RTF (Radiodiffusion-télévision française - French television and radio broadcasting) was created to operate the only two channels of television in France. The RTF was transformed into ORTF (Office de radiodiffusion-télévision française - French television and radio diffusion office), a more independent structure, in 1964. The ORTF saw the birth of a third channel in 1972, two years before the dissolution of the structure in 1974. From this date to 2000, each channel had its own direction structure. The first channel (TF1) was sold to the private sector in 1987 (in these years, the channel with the most audience was the other public channel Antenne 2). In 1986 a French/German public channel was created, ARTE, originally broadcast on cable and satellite, the fall of the private channel La Cinq freed some frequencies that it had used each day after 19:00. In 1994 a new public channel, La cinquième was created to use the remaining time on the same frequencies. La cinquieme and ARTE subsequently shared the same channels with the exception of satellite, cable, and internet channels where both could be broadcast all day long. In 2000 all the public channels were united into one structure, France Télévisions.

Ireland

In Ireland a system of TV licencing and advertising to fund public services operates. RTÉ the incumbent offers a range of free to air services on TV and Radio. The Sound and Vision Fund is operated by the Broadcasting Authority of Ireland, this fund receives 5% of the licence fee. The fund is used to assist broadcasters to commission public service broadcast programming. It is open to all independent producers provided they get a free to air or community broadcaster's backing, including TV3, Today FM, BBC Northern Ireland, RTÉ, Channel 4, UTV etc. An off-shot of RTÉ, TG4 is an independent Irish language broadcaster that is funded by the government through subsidy, and through advertising revenue.

United Kingdom

Main article: Public service broadcasting in the United Kingdom

The United Kingdom has a strong tradition of public service broadcasting. In addition to the BBC, established in 1922, there is also Channel 4, a commercial public service broadcaster, and S4C, a Welsh language broadcaster in Wales. Furthermore, the two commercial analogue broadcasters ITV and Channel 5 also have significant public service obligations imposed as part of their license to broadcast.

In the UK there are also community broadcasters, there are now 228 stations with FM broadcast licenses (licensed by OfCom) Community radio stations typically cover a small geographical area with a coverage radius of up to 5km and run on a not-for-profit basis. They can cater for whole communities or for different areas of interest – such as a particular ethnic group, age group or interest group. Community radio stations reflect a diverse mix of cultures and interests. For example, you can listen to stations catering to urban or experimental music, while others are aimed at younger people, religious communities or the Armed Forces and their families.

North and South America

Argentina

State presence in television had a strong history, not in the way of European style public service radio or television. The private sector has taken an active role in the development of television in Buenos Aires. In opposition, state broadcasters tend to be federal and technical innovative, such as the Argentinian Canal 7, the first 60 years old national TV station.

Canada

In Canada, the main public broadcaster is the national Canadian Broadcasting Corporation (the CBC), which operates two television networks (CBC Television and Télévision de Radio-Canada), four radio networks (CBC Radio One, CBC Radio Two, Première Chaîne and Espace musique) and a number of cable television channel including two 24-hour news channels (CBC News Network and RDI) in both of Canada's official languages. CBC's television operations are funded in part by advertisements, in addition to tax dollars from the federal government. However, the cable channels are commercial entities owned and operated by the CBC and do not receive any direct public funds, however, they do benefit from synergies with resources from the other CBC operations. In recent years, the CBC was frequently battered by budget cuts and labour disputes.

In addition, several provinces operate public broadcasters; these are not CBC subentities, but distinct networks in their own right. These include the English-language TVOntario and the French-language TFO in Ontario, Télé-Québec in Quebec, public radio station CKUA in Alberta, and Knowledge in British Columbia. Some of the provincial broadcasters operate through conventional transmitters, while others are cable-only channels.

Canada is also home to a number of former public broadcasting entities that have gone private. CTV Two Alberta, which is licensed as a educational television station in Alberta, was once a public broadcaster, owned by the Alberta government, until the channel was sold to CHUM Limited in 1995. Since that time, although it is still licensed as an educational station, it broadcasts primarily entertainment programming favoured by advertisers and viewers. CJRT-FM in Toronto also operated as a public government-owned radio station for many years; while no longer funded by the provincial government, it still solicits most of its budget from listener and corporate donations and is permitted to air only a very small amount of commercial advertising. One television station, CFTU in Montreal, operates as an educational station owned by a private not-for-profit consortium of educational institutions in the province of Quebec called CANAL. Saskatchewan Communications Network (SCN) was once a cable-only educational and cultural public broadcaster owned by the Saskatchewan government until it was sold to Bluepoint Investment Corporation in 2010.

Some local community stations also operate non-commercially with funding from corporate and individual donors. In addition, cable companies are required to produce a local community channel in each licensed market. Such channels have traditionally aired community talk shows, city council meetings and other locally oriented programming, although it is becoming increasingly common for them to adopt the format and branding of a local news channel.

Canada also has a large number of campus radio and community radio stations.

Public broadcasting in the United States is as old as broadcasting itself. Most early public stations were operated by state colleges and universities, and were often run as part of the schools' cooperative extension services. Stations in this era were internally funded, and did not rely on listener contributions to operate; some accepted advertising. Networks such as Iowa, South Dakota, and Wisconsin Public Radio began in this way.

The concept of a "non-commercial, educational" station per se does not show up in U.S. law until the 1940s, when the FM band was moved to its present location; the part of the band between 88.1 and 91.9 MHz is reserved for such stations, though they are not limited to those frequencies. For example, WFIU-Bloomington, Ind. has its FM frequency at 103.7 MHz. Houston's KUHT was the nation's first public television station, and signed on the air in 25 May 1953 from the campus of the University of Houston.^[11] This phenomenon continued in other big cities in the 1950s; in rural areas, it was not uncommon for colleges to operate commercial stations instead (e.g., the University of Missouri's KOMU-TV, an NBC affiliate). In the United States, public broadcasting is decentralized and is not government operated, but does receive some government support. Some of the funding comes from community support to hundreds of public radio and public television stations, each of which is an individual entity licensed to one of several different non-profit organizations, municipal or state governments, or universities. Sources of funding also include on-air and online pledge drives and the sale of underwriting "spots" (typically 15–30 seconds) to sponsors. Public radio and television stations often produce their own programs as well as purchase additional programming from national producers and program distributors such as National Public Radio (NPR), Public Broadcasting Service (PBS), Public Radio International (PRI), American Public Television (APT), American Public Media (APM), and Public Radio Exchange (PRX). U.S. federal government support for public radio and television is filtered through a separate organization, the Corporation for Public Broadcasting (CPB).

Public broadcasting is sometimes also referred to as public media, in an effort to capture the expansion of public broadcasting content from radio and television into digital technologies, in particular the web and mobile platforms. While some consider public media to be analogous to public broadcasting, others use the term more broadly to include all noncommercial media.

Individual stations and programs rely on highly varied proportions of funding. Program-by-program funding creates the potential for conflict-of-interest situations, which must be weighed program by program under standards such as the guidelines established by PBS. Donations are widely dispersed to stations and producers, giving the system a resilience and broad base of support but diffusing authority and impeding decisive change and priority-setting.

Television

In the United States, the Public Broadcasting Service (PBS) (formerly National Educational Television) television network operates on a largely viewer-supported basis (see telethon), with commercial sponsors of specific programs. Over time, sponsorship announcements ("underwriting") have slowly transformed into something resembling regular (commercial) TV advertisements, though they are usually shorter and have a more muted tone than what normally appears on commercial and cable TV, and many organizations still only receive a short thanks for their contributions. Underwriting may only issue declarative statements (including slogans) and may not include "calls to action". Most communities also have Public-access television channels on local cable television systems, which are generally paid for by Cable television franchise fees and sometimes supported in part through citizens donations.

US public broadcasting for television has, from the late 1960s onward, dealt with severe criticism from conservative politicians and think-tanks, which allege that its programming has a leftist bias.

Radio

A public radio network, National Public Radio (NPR), was created in 1970, following the passage of the Public Broadcasting Act of 1967, which established the Corporation for Public Broadcasting. This network is colloquially though inaccurately conflated with public radio as a whole, when in fact public radio includes many organizations. Independent local public radio stations buy their programming from distributors such as NPR; Public Radio International (PRI); American Public Media (APM); Public Radio Exchange (PRX); and Pacifica Radio, most often distributed through the Public Radio Satellite System (PRSS). Around these distributed programs, stations fill in varying amounts of local and other programming. Some stations and producers receive no federal funding.

Public radio stations in the U.S. tend to broadcast a mixture of news and talk radio programming along with some arts, culture, and music. Some of the larger operations split off these formats into separate stations or networks. Public radio's music stations are probably best known for playing classical music, although other formats have been used, including the time-honored "eclectic" music format that is rather freeform in nature common among college radio stations; jazz is another public radio programming staple.

Local stations derive some of the funding for their operations through regular pledge drives seeking individual and corporate donations, and corporate underwriting. Some stations also derive a portion of their funding from federal, state and local governments and government-funded colleges and universities (in addition to receiving free use of the public radio spectrum). The local stations then contract with program distributors and also provide some programming themselves. NPR produces some of its own programming. PBS, by contrast, does not create its own content. NPR also receives some direct funding from private donors, foundations, and from the Corporation for Public Broadcasting.

Oceania

Australia

In Australia, the Australian Broadcasting Corporation (ABC) is owned by the Australian Government and is 100% taxpayer funded. The multicultural Special Broadcasting Service (SBS), another public broadcaster, now accepts limited sponsorship and advertising. Imparja is an Aboriginal community broadcaster in Australia that receives funding from the Federal Government. Most of its programs are bought from Australia's commercial broadcasters, and it only airs a small amount of local content.

In addition, there is a large Australian community broadcastingsector, funded in part by Federal grants via the Community Broadcasting Foundation, but largely sustained via subscriptions, donations and business sponsorship. As of June 2005, there were 442 fully licensed community radio stations (including remote Indigenous services) and a number of community television stations (most operating as Channel 31 despite being unrelated across different states). They are organised similarly to PBS and NPR stations in the US, and take on the role that Public access television stations have in the US.

New Zealand

In New Zealand, the former public broadcaster BCNZ (formerly NZBC) was broken up into separate state-owned corporations, Television New Zealand (TVNZ) and Radio New Zealand (RNZ). While RNZ remains commercial-free, about 90% of funding for TVNZ comes from selling advertising during programmes on their two stations. TVNZ continues to be a public broadcaster; however like CBC Television in Canada it is essentially a fully commercial network in continuous ratings battles with other stations.

Programmes offered on TVNZ include popular US-produced shows like Desperate Housewives, ER, Lost, Cold Case, and Dancing with the Stars. TVNZ operates five stations: TV ONE, TV2, TVNZ 6, TVNZ 7 and TVNZ Sport Extra and hold majority ratings in the country. Because of its high ratings some of the most expensive advertising slots in the country are on TV ONE and TV2. TVNZ 6 and 7 are fully funded and advertisement-free.

The Government owns a network of reserved channels for non-commercial regional access broadcasting, and some of them have been awarded to local community trusts to provide public service and access television. Examples are Triangle TV in Auckland and Wellington; and Channel 7 in Taranaki.

List of public broadcasters

American

Canadian

· Canadian Broadcasting Corporation

· CBC Television

· Télévision de Radio-Canada

· CBC Radio One

· CBC Radio 2

· CBC Radio 3

· Première Chaîne

· Espace musique

· Bande à part