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Executive summary

1.1 Ofcom and its predecessor regulators have been acutely aware of the problems caused by illegal radio broadcasters (or ‘pirate radio’) for many years, and have been actively engaged in taking such broadcasters off the air throughout that time. However, Ofcom recognises that such enforcement actions by themselves will not provide a total solution to the issues involved. We therefore want to take a fresh look at the issues and consider alternative ways of tackling them.

1.2 This report outlines those issues and undertakes, for the first time, detailed research into the extent of listening to illegal stations and the reasons why people listen to them. It will be followed-up by further work later this year which will consider a wide range of options (beyond enforcement) for tackling this issue. This work is separate from, but closely aligned with, the work currently underway on the wider issues faced by the UK radio industry, as set out in Ofcom’s ‘Future of Radio’ consultation, published earlier this month. We will ensure that any conclusions and recommendations that arise from our work on illegal broadcasting will be consistent with our conclusions and recommendations on the wider future of radio.

1.3 It is important to stress that Ofcom will not be able to tackle the problem of illegal broadcasting alone, as any alternative strategies will require the support and assistance of other public and industry bodies.

1.4 We estimate that there are currently around 150 illegal radio stations in the UK. At any one time, it is believed that around half of these are transmitting in London, within the M25 area.

1.5 Illegal broadcasters cause interference to safety-of-life radio networks, such as those used by air traffic control and the fire service, and are often associated with wider crime and nuisance. They also cause substantial interference to the signals of licensed broadcasters, leading to frustration for listeners (who may be unable to listen to their station of choice) and lost revenues for the affected stations. New Ofcom research suggests that 30% of all listeners suffer interference on FM, which they believe may be caused by other broadcasters or stations. Of those who suffer interference, 14% believe it is caused by illegal broadcasters. In London, these figures rise to 40% and 27% respectively. 64% of listeners affected say they switch to a different station or turn the radio off, while only 2% say they have made a complaint about interference. This figure increases to 8% when listeners believe the interference is caused by illegal broadcasters.

1.6 Ofcom employs a field force to investigate, and take off-air, illegal broadcasters. In 2006, we undertook 1,085 separate operations against illegal broadcasters, resulting in 63 convictions. Investigations are prompted mainly by information received from listeners, licensed radio stations or public services. Ofcom’s enforcement activities are guided by specific duties that we have under legislation, which makes it clear what we need to do to fulfil those duties.

1.7 The first phase of research conducted for this project showed that 16% of adults in Greater London say they listen to illegal broadcasters, with unique music content being the main driver for listening.

1.8 In more detailed research conducted in the London boroughs of Hackney, Haringey and Lambeth, where listening to illegal stations is even higher than the London average, the perception of both listeners and broadcasters involved in illegal broadcasting is that existing licensed broadcasters are failing to cater sufficiently for the needs of the certain sections of the public. Apart from the music they play, listeners tune into illegal stations because they perceive them to be good at serving their community.

1.9 Despite the advent of new radio platforms such as DAB and the internet, the research suggests that illegal broadcasting audiences are unlikely to diminish in the short or medium term.

The full document and associated annexes are available below:

• Illegal Broadcasting - Understanding the issues [pdf]
  Full Print Version
• Illegal Broadcasting - Annex 1: Listening to illegal broadcasting in London [pdf]
• Illegal Broadcasting - Annex 2: An independent report on listening to illegal broadcasting in Hackney, Haringey and Lambeth [pdf]
• Illegal Broadcasting - Annex 3: Research into listener perceptions of radio interference [pdf]

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