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Effectiveness of the current system

Overall conclusion

The first half of our Phase 1 report examines the effectiveness of the current system, and concludes that broadcasting on the main terrestrial TV channels has partially, but not completely, fulfilled the requirements of the Communications Act. There are some important shortcomings in effectiveness, partly driven by the actions of broadcasters and partly because viewers have drifted away from the more challenging types of programming traditionally thought to be at the heart
of UK television.

Question 1: Do you agree with this overall assessment of the current system?

Output

We have examined the output of the main terrestrial channels in detail, and found that while levels of spend and original UK production have been stable, a risk-averse approach has reduced innovation and narrowed the range of programming. News, drama and new 'cross-genre' formats have prospered but dedicated arts, current affairs, education and religious programming is under threat.

Question 2: Do you agree with our interpretation of the data provided to us by broadcasters, and the key findings we have set out?

Impact

We also looked at the changing audience share and reach of the main networks, concluding that changes in the market could be threatening the ability of the main networks to continue to deliver the components of PSB as set out in the Communications Act.

Question 3: Do you agree with our analysis of audience trends, and the challenges posed by digital TV and changing viewer behaviour?

Value

We examined the views of the general public and of broadcasting professionals, and found that there is strong public support for programmes of social value as well as those they like to watch themselves. Social value is attached to soaps, sport and drama as well as news and information.

Question 4: Do you accept this interpretation of the role of television in society?

Relatively low value is attached by the public to dedicated programming in arts, religion and education. We found there was a preference for including the interests of and portrayal of minority groups in mainstream programming, rather than in specialist programming.

Cable/satellite channels and the internet are not yet seen by many as suitable vehicles for the provision of what are thought to be the main components of PSB.

Question 5: What are the implications of these responses for broadcasters and for this review?

Interaction between terrestrial broadcasters

Both the public and the broadcasting professionals we spoke to told us that a range of broadcasters should exist to compete for quality as well as for ratings.

Question 6: Do you agree that competition for quality between the main terrestrial networks is an important aspect of the current system, but that it has been put under strain by increasing competition for viewers, even from the BBC?

Maintaining and strengthening PSB

We have set out some ideas for maintaining and strengthening PSB in future, and would like your reaction to them.

A sustainable rationale

We argue that in a digital world, many of the consumer market failures that justify intervention in the broadcasting market will disappear. In contrast, we suggest that there are enduring citizenship concerns which will continue to call for some public intervention in the television market.

Our suggested definition of PSB is informed by these concerns, and can be described in terms of some broad purposes and core characteristics, which we set out in the main body of this report.

We also argue that to be effective, PSB programming should have reach and impact - it should continue to be consumed by and influence large audiences and, as such, it will need to be both popular and challenging, serious in intent and accessible in style.

Question 7: Do you agree with this analysis, and think that this definition provides a good basis for considering the future provision of public service broadcasting and the means of funding and delivering it?

Question 8: Can the challenges of reach and impact be successfully met in a digital world of fragmenting audiences and revenues?

Immediate issues

We have identified a number of immediate consequences of Phase 1 of our work.

These include the need to move away from a genre-specific approach to regulation; more focus by the commercial networks on the most highly valued aspects of PSB; the need to introduce a new approach to measuring, monitoring and assessing PSB; and the need for the BBC to reaffirm its position as the UK standards setter for high quality PSB provision. We also note the importance of achieving digital switchover as a means of delivering better choice, competition, quality and range to consumers. We have identified the need to conduct further work on broadcasting for the Nations and Regions, and the provision of a safe environment for children.

Question 9: Do you agree with these conclusions about the immediate priorities, and are there other issues you think we should be considering?

Propositions for transition

Finally, on pages 11-12 we have set out ten propositions for further consideration in Phase 2 of our work. We invite responses on all of these as a core part of our Phase 2 work.

Question 10: Do you agree with our propositions? What considerations should we take into account in our further analysis of them?

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