The Norwegian Radio Reform

HENRIETTE FOSSUM

On 2 October 1993 the Norwegian Broad- present aspects of and future prospects for casting Corporation (NRK) launched its the radio offer from NRK. new radio, with three profiled channels. The event had in advance been characterized as no less than a revolution in the his- Historical Background tory of NRK Radio. Two weeks previously From 1933 when NRK was given mo- P4, the first private commercial radio chan- nopoly on broadcasting, until 1981 with nel with national coverage, had started the advent of local radio, the radio history broadcasting. The almost simultaneous oc- of our country was characterized by re- currence of the two events was no coinci- markable stability. During this period we dence. NRK was and has the ambition to had only one radio channel with national continue to be the leading public service coverage, NRK P1, which in addition was broadcaster in Norway. To meet the moun- given the responsibility of running the se- ting challenge from an increasing number venteen regional offices started during the of competitors and ensure its hegemony, seventies. radical changes were considered necessary in order to get rid of old political regulations and to modernize the institution and From One to Two National Radios its output. The fifty years of protection and peace With hindsight, and at least to outsiders, abruptly changed with the deregulations of the reform seems inevitable and the chan- broadcasting in 1981. The number of local ges undertaken obvious. But they met with radio stations exploded, within a few years considerable resistance; commentators cha- it exceeded 300. To the NRK management racterized the changes as cultural apart- it was clear that something had to be done. heid1, and listeners complained that the Four years later, in 1985, NRK officially new program offer completely violated opened its second national radio channel, their daily routines. The reform and the re- P22. Political disagreement had delayed the sistance against it can only be understood opening. The debate concerned whether in the light of our broadcasting history. I the new channel should compete with or shall therefore start with a brief overview complement the old one and where it of the historical background and of the should have its main editorial base. Against main competitors. Then I shall describe the wishes from NRK, it was decided that how the channels were profiled in response the two channels should be competitors to the competition, and round off with and that the headquarter of P2 should be

59 placed in Trondheim, the third largest city Whereas one of the two major deci- in Norway. According to the ruling ideo- sions concerning P2 thus turned out to be logy of decentralization, the new channel sound, the other one, that the programmes would thereby reflect the realities of our should be competitors, was not. As I have society in a different way from the old indicated, in spite of the decision the two channel, P1, seated in the capital together channels developed distinct profiles and with the administration and NRK TV. became in reality complementary. Most of The enforced move to Trondheim has the time the listener could choose between proved to be an advantage. Many consider light programmes at one channel and more the mother institution in Oslo to be too serious or informative ones at the other. rigid, bureaucratic and narrow in its myo- However, both had to be all round chan- pic focusing upon the capital and its imme- nels covering the traditional public service diate surroundings. At safe distance, the duties, such as information, education and new radio centre for P2, Tyholt, had more entertainment. NRK was therefore forced opportunity to evolve in a different direc- to have two news editorial offices, one in tion. It became less bureaucratic and with a Trondheim and one in Oslo. According to stronger feeling of unity, as reflected in the management, this resulted in much better cooperation across editorial lines. It double work, making it an expensive and developed into a magazine channel and ac- inefficient solution for the NRK. It was quired a distinct programme profile, al- definitely not a good way to meet an in- though by malevolent tongues conde- creasingly competitive environment. scendingly referred to as tabloid radio. Above all, it put more emphasis on local news across the whole of this elongated, Deregulation thinly populated country, crisscrossed by Local radio was permitted in 1981, initially mountains, valleys and fiords setting the on an experimental basis. In line with regu- conditions for considerable regional plural- lations for all the broadcast media in Nor- ity. It did indeed become a national chan- way, advertising was prohibited. In 1987, nel in a different way from P1, thus fulfill- new legislation opened for local broadcasting the intentions of the politicians when ing on a permanent basis and allowed ad- they placed it in Trondheim. vertising as a source of income. From its P1 was and still is the only channel beginning local radio has been the battle- technically equipped to carry the regional ground for several conflicts. A major one programmes. It may therefore seem has been the continuing tug-of-war be- strange that P2 should developed into the tween those who hold the view that local regional channel. The explanation to the radio mainly should be based on idealist apparent paradox is found in the way NRK engagement and regard it primarily as a is organized. The regional offices hold a way of enhancing local democracy, and special position in the NRK hierarchy, as those more interested in exploiting the they are not part of any of the radio divi- considerable economic potential in this sions, but sort directly under the general area. Most of the time, the latter have director3. To ensure regional output on the proved the strongest. Even though the national channel, a net of P2-reporters was regulations on local radio encouraged local established at the regional offices across attachment at least half of the pro- the country. grammes had to be produced within the

60 cover area and the owners had to be local part of the population, and NRK depicted residents, chains of local radios started to a grim, not too-distant future when the last emerge. This happened both through ille- listener to the nations leading public ser- gal trade where radios were bought and vice radio would turn off the set if noth- sold, usually camouflaged as fusions, and ing was done to win the young back again. through a sophisticated network where na- Regional identity is strong in Norway, a tional news, produced by large media com- sentiment respected, if not outright exploi- panies, was bartered for time for advertise- ted by many of our politicians. Few politi- ment in the local radios. Through this bar- cians would therefore object to more re- ter agreement the owners of the news gional programmes. Likewise, political cor- source could offer their advertisers near to rectness dictated that few would protest national coverage. With the limits of the against more programmes for the Sámi po- law so manifestly pushed, the politicians pulation and other minorities. For the same were forced to react. In line with the pre- reason classical music is a hit amongst vailing liberal ideology, the solution was most politicians, even though they tend to simply to move the limit and allow a na- play down their role as part of the elite and tional commercial radio channel. instead take on a role as deep-rooted in the On the FM band, there is only room for people; cultural elites give too few votes as four radio channels with national coverage they have only a marginal place in the Nor- in Norway. NRK held two of these, and wegian egalitarian social democracy. This with the prospects of a commercial natio- dilemma between political correctness and nal channel they had to act fast to get their populism was cunningly evaded in the ap- hands on the last one, to make a third plication by arguing that it was not classic NRK channel. A third channel was an old music in itself that was the main objective wish, dating back to and made explicit in for more time, but that NRK did not have the early sixties when the public service ra- enough programme time to transmit free dios in Sweden (Sveriges Radio) and Den- Euro concerts available through the EBU mark (Danmarks Radio) started their third agreement and through cooperation within channels. In 1987, NRK submitted the first the Nordic countries. application to the Ministry of Culture, ask- Most politicians were positive towards ing permission to establish a third channel. the application, but it was made clear that Their main arguments were the need to re- the profiles of any channel were not to be inforce the offer from the regional offices, changed in a more commercial direction. to make more room for programmes for What really won the politicians hearts was the Sámi population and other linguistic that listeners seemed to get more pro- minorities, to satisfy the needs created by grammes without an increased license. A the new wave of immigration, and to conservative minority objected, claiming strengthen the music offer, especially for that NRKs real intention was to create a classical music. In 1988 a new application channel that could directly compete with followed. The arguments were largely the the local radios; they could not see that same, but in addition time for programmes such a channel was needed. The proposal directed against young listeners was em- was granted by the parliament in 1991. At phasized. It had become clear that NRK the same time it was decided to license P4, had lost listeners amongst the youngest a national commercial radio channel with

61 private ownership. The new channel had to ting titles like Good morning or Good adhere to the principles of public service afternoon. They take great care in build- broadcasting. ing up presenters, with the aim to develop easily recognizable, personal styles. In ad- The Competitors dition to music, the magazines contain short items, studio links based on notices, The National Commercial Radio, P4 telephone interviews, competitions and License for P4 was given to Radio Hele visitors. The channel has got few reporters Norge (RHN), a company where the Swe- outside their main studios in Oslo and dish Kinnevik is the dominant shareholder. Lillehammer. RHN thereby out competed P4 AS, an- It is a success. Above all is their success other constellation of groups investing in in music formatting envied by NRK, and the rapidly growing media market, where probably by several local radios. So far in particular the Danish media company their highest rate obtained is 25 percent. Aller4 has strong capital interests. RHN The rate is presently stable around 22-23 chose to place their main editorial base at percent of the population7. Lillehammer, where the Olympic Winter Games were held in 1994. In their application, RHN stated that Local Radio the channel would build on the fundament When advertising was allowed in local of public service in its widest sense. In broadcasting, it was predicted that only a their definition of public service RNH handful of big commercial radio stations emphasized news, debate, sports, service would survive. Contrary to expectations, radio, interaction with the listeners and ex- the number of radios has increased. When perience radio5. They also stated that, as a P4 and Petre started, the same predictions consequence of their being a commercial were again advanced, this time with the re- channel, the main ambition was to obtain servation that it might take some time be- high audience figures. Later, they have re- fore the stations would give up. Nearly inforced this by stating that their ultimate three years later, we still await the big shut goal is no less than becoming the biggest down of local radios. A few have disap- radio station in Norway. peared. And the number of issued licenses Their target group is adults between should not be taken at face value; buying thirty and fifty. Music plays the leading and selling broadcast time is widespread, role in nearly all the programmes, with se- and some licenses are empty, applied for venty percent of the broadcast time de- by larger radios to ensure that they can voted to it. All the music is formatted ac- have most of the time on a channel for cording to the AC (Adult Contemporary) themselves. concept, following the principle of the From the point of view of the local ra- least objectional music for the target dios, some of the figures are alarming. group. The schedule consists mainly of in- Since the advent of P2 and NRK Petre teractive programmes, i.e. phone-ins6 they have lost half of their listeners, with (competitions, phone-in debates, greeting audience rates dropping from 25 percent programmes, etc.), news bulletins and vari- in 1992 to 12 percent in 1994. At present, ous magazines. The magazines may be in they are down to 10 percent. But there are the form of flow programmes, with exci- still several sound local radios across the

62 country, following dissimilar survival stra- ment realized that the laudated homogene- tegies, as a consequence of different pur- ity of our society did no longer exist, if it sued aims and differences in available re- ever had, and discarded all kinds of com- sources. After 1992, some of the commer- bined solutions with channels aimed at the cial channels changed their profile. Instead whole of the population. They had three of appealing only to the young, they have channels on their hand, and the only re- engaged in the local community. In this maining possibility where to create chan- way, they have become competitors for the nels specialized on different parts of the regional radios in NRK. But also local ra- population. With this starting point, the dios concentrating only on a young audi- challenge was how to divide the population ence constitute a challenge for NRK. In into sections and how to create the optimal Oslo Radio 1 claims to have more listeners complete offer for each of them. among their target group than NRK Petre. Thus the consumer, the listener came into focus. According to the radio management, perhaps the most important feature Profiled Channels of the reform was the reassessment of the The NRK management could have chosen attitudes held towards the listener. Market to adapt to the new reality by accepting ideas crept into the old social democratic that NRK was to be one among equals. It bastion. It was made clear that thorough did not; probably because it could foresee changes were needed both within the or- a future where the umbilical cord, the li- ganization and in the program offers. The cense system, would be cut. Without ha- aim was to turn the institution from an in- ving developed a system for independent trovert, transmitter oriented institution existence, the institution is vitally depend- into an extrovert, listener oriented, busi- ent on the stable, relatively rich flow of li- ness-like organisation. Throughout the in- cense money. In the long run, however, a stitution listeners orientation was repeated license fee system could not be defended like a mantra. if the share of listeners fell below a critical A new committee, set down in 1991, limit, e.g. fifty percent. In reality the mana- with the mandate to design the new three gement therefore had no option but to channel system had to start with available fight back. It was decided that the best knowledge about the listener. The material strategy for a counterattack was to make consisted of statistics from various sour- profiled channels. ces, in particular NRKs own audience fig- A first suggestion on how to profile the ures, showing reach, share and consump- channels was presented to the management tion time, and a new source the life style- in 1990. Four different models were pre- surveys. The lifestyle survey Norsk Moni- sented, but were all turned down, criticized tor was used extensively in forming the for being too conservative, keeping the ex- new channel system. Norsk Monitor is isting two channels unchanged and just conducted by MMI (Market and Media In- adding a new one. A channel which tried to stitute), in connection with the RISC (Re- combine programmes for young people search Institutes on Social Change) analy- with classical music and news in Samí was ses. The analyses are often presented as not left any chance to attract new listeners, cultural maps or coordinate systems of at- even less to keep them. Most of all did titudes in a population. The two main axes NRK want loyal listeners. But the manage- are modern-traditional and idealist-mate-

63 rialist. Life style surveys were also used in ted to get back young listeners. The target forming the new radio offers in the na- group is the population under thirty, with tional broadcasters in Finland, Sweden and emphasis on those with modern, materia- Denmark. On the basis of these analyses, listic values. The channel should be mod- the committee decided to create one chan- ern, young, energetic, informal, personal, nel specially directed at young people. This engaging and changing10. Seventy percent was the really completely new channel, and of the broadcast time is devoted to music, it was called Petre (the way P3 is pro- with play lists for most of the programmes. nounced in Norwegian). Of the other two, The division was not without problems, one should be a broad popular channel, the most urgent was where to put sports whereas the other should represent the and programmes in Samí. Sports were first cultural alibi. The new popular channel placed in Petre, mainly because this chan- was in many ways similar to the old P2, nels had the most flexible schedule. Even- whereas the new cultural channel resem- tually, in 1996, is was moved to P1 with the bled the old P1. To demonstrate that the plain explanation that sports had to be on people rather than the cultural elite was put the most popular channel, which is P1. first, it was decided that the two channels Wherever they were put, programmes in should change names. Samí had to become a problem, as only a The popular channel thus became P1 minority of the population understands the Norway Channel. It was supposed to the language. So far the solution has been a attract the largest numbers of listeners of half hour long national news service on all the radio channels in Norway. As men- P2. The channel is in addition divided each tioned, only one channel can be separated morning: in the northern parts of Norway for regional transmissions. The regional programmes in Samí opt-out the other programmes and the so-called silver heri- programmes. NRK would prefer to have tage, i.e. programmes with a long history or one channel solely for classical music and tradition, were placed on P1. The target one for Samí. group is the population over thirty, with Judging from audience figures alone it emphasis on those who feel strong local is difficult to tell whether the reform has identity, those who are more likely to hold been a success, as we do not know what traditional, as opposed to modern, values, the figures would have been without the and on elderly people those above 65. changes. NRK has lost listeners. In 1992 The channel was supposed to be a nice fifty-five percent of the population liste- companion in everyday life, the channel ned to NRK. Today the audience figures that talks with you and listens to you8. show that just below fifty percent listen P2 the Culture Channel was profiled one of their three channels. But not every- for those who would like to get new one do listen to the radio at all; of those knowledge, acquire new insight, listen to that do NRK hold a sixty-two percent debates, satirical programmes, who want share of the market, only five points down challenges and for those who are active from 1992. consumers of culture9. The target group for this channel was modern idealists. Even before it was started Petre the The New Listener Oriented NRK Youth Channel was nick-named the According to the new philosophy, the flow turbo-channel, by the media. It was crea- of the sound on the channels the total

64 sound scape is of foremost importance. site for the changes, in which they have P2s schedule, however, still resembles an succeded. The cost per hour on the na- old-fashioned block format, with the pro- tional programmes was reduced by twenty gramme production made in specialized percent after the changes, from 25 000 to editorial offices. But even here is the target 20 000 NOK per hour12. Also the regional group taken into consideration when the offices, which increased their output with programme and the schedule is evaluated. twenty percent, managed to lower their The difference between the channels is not costs. The rationalization and increased ef- so much which subjects they bring, as they ficiency have not been implemented with- way they view the world. As a producer on out objections. More programme produc- P2 rather jokingly stated: tion has become deskwork as the scarcity of rescources prohibits travels and expen- If all three channels were to report from a sports ar- sive production. As an example, instead of rangement, the reporter from Petre would talk to the features they have to make telephone inter- athlete, the one from P1 would talk to his mother, views or direct broadcast without the re- and the one from P2 would consult a professor in fining editing process. Some claim that this psychiatry and ask why the audience cheers. leads to less variation in the programmes As long as they present the material differ- and reduced quality. The answer from the ently, in three different wrappings, the management is clear: studio and desk pro- three channels can bring the same kind of duction is the modern way of radio pro- information. When the listeners tune into duction. formatted channels, they are supposed to After the reforms NRK Radio deve- know how they will be addressed and loped a new slogan : which type of music to expect. With a flow NRK radio shall give the listeners format they will expect a well known schedule where every item soon will be succee- increased knowledge and insight, ded by music. Programme hosts and repor- increased experience and ters are important in such formats. Even increased happiness.13 though NRK do not make extensive use of lifestyle surveys any longer, the ideas and The first point, increased knowledge and stereotypes has gotten into their bones. insight, follows the traditional Reithinan Presenters, both hosts and reporters, have definition of public service: to educate, in- to identify with the channels target group, form and entertain. The entertainement listeners should feel familiar with them. part of this doctrine has been stressed by The stereotype example is that the reporter NRK in the latter years, but actually the who prefers cappuccino and VSOP fits programme statistics from NRK show a into P2, whereas he who rather enjoys marked reduction in programmes of the black coffee with home-made liquor into is entertaining category from 1992 to 1994.14 a P1 man11. The point is that the presenters Now entertainement is supposed to be a should talk with, not to the target audience part of most programmes, an aspect that is group, a task made easier if s/he identifies to be recognized in how the program with the target group. adresses the audience, most audible With the reform NRK got more time to through the program hosts. fill, but not more money for doing it. Re- Two new programmes, which the radio ducing expenses was therefore a prerequi- management presented with pride, were

65 the one hour long news service with News posed to contribute to strengthening the in English and Program in Urdu, Turkish Norwegian language, identity and culture. and Vietnamese on P1. Later, they were re- The committee that worked out the garded as stoppers in the total sound program profiles claimed that they have re- pacage that this channel is supposed to of- defined the public service principles by fer. Now Program in Urdu, Turkish and making them broader. Accessible was a key Vietnamese is shortened to nine minutes word. Whereas BBC use the word in the and moved to P2, and will probably be sense that the institution can be reached by moved again to NRK2, the new television the common man, NRK has chosen an- channel, when it starts this autumn. The other interpretation of accessibility: of a flow, the soundscape is evidently regarded form that can be readily grasped intellectu- as the superior guiding-line in the new ally. The programs should not only be un- three channel system. derstandable, but also in contact with the listeners, reflecting their interests and lives. The management put great emphasis on What about Public Service? NRKs role as the major broadcaster in Public service is contestable concept, if Norway; if it did not succed in attracting not an outright manipulation device, where the majority of the population, it would no various groups try to get their opinion longer be a service to the general public. across as the only legitimate definition. And if NRK was to remain the major Only two radio broadcasters in Norway are broadcaster, it had to get rid of the wide- obliged to adhere to the public service spread impression of a paternalistic institu- principles, NRK and P4. The view, held by tion. After the deregulation, NRK operates the government as well as by the common on a commercial market, competing for lis- citizen, of NRK as the most important teners and programmes. They have to sell public service broadcaster in Norway15 put audience figures to the politicians as well as special demands on the institution. These to the audience following the notion that are not explicity stated, but a result of the popular gets more friends, to ensure more general expectations which have to their source of income, the license fee. be extracted and interpreted from parla- As formats changes it becomes increas- mentary debates and treatment of ques- ingly difficult to evaluate how the public tions concerning programmes in NRK and service broadcasters fulfil their obligations. related issues over the years. For the com- P4 is accused of not having enough culture mercial broadcasters, the public service on their program. culture is a very slippery principles are stated as national coverage, concept, however. Even with a narrow, elit- editorial independence and that the pro- ist definition it is difficult to pin down the gram profile over time has a sufficiently amount of culture in a flow format. varied programmed menue. This should include offers not only for the broad interests, but also for smaller groups such as for The Absolutely DABulous Future young pepople and children and for the Whatever problem NRK Radio is facing at Lappish population and other minorities. the moment, DAB may give the answer. Daily news services should be included, DAB is the solution on the problems with and the programmes are in addition sup- separate channels for Samí and classical

66 music. And with DAB it will be possible to Concluding Remarks listen to car radio in Norway without repeated trouble with interference. Competition was the main objective for On 2 October 1994, exactly one year the radio reform in NRK. And they have after the radio reform, NRK started expe- succeded in creating an alertness among rimental transmissions in DAB, as one of the employees towards their new situation the first broadcasting institutions in Euro- in a broadcasting marked. This alertness pe. Two transmitters, one covering the Oslo can be traced on various levels. So far it is area and one outside of Kongsberg, carries not visible in the program offers, but there a new channel, NRK Always Classical, in are hints on what to expect. The flow for- both digital and analogue modes. Classical mat is at present seen as the only viable music was chosen for several reasons. The way of radio production in a competitive general director of NRK, Einar Førde, sta- environment, a format that encourages ted that a classic channel is regarded as an formatted channels with a continous flow important bait to get people to invest in of music, items and personal hosts. A for- these expensive receivers16. At present on- mat where the listeners recognize and meet ly a handful of digital recievers have been with certain expectations the kind of mu- sold to the public. Classical music is also sic they will hear and how the various one of the best ways to show and compare items will be presented. In order to create the difference between digital and analo- better formats, or better profiles NRK gue signals. NRK often refers to expected need more channels, a request that can competition from a national classical FM only be fulfilled when DAB takes over as network, and in the Oslo-area they already the leading broadcasting system. encounter competition from an existing lo- NRK also wanted to get rid of old po- cal radio, Klassisk radio (Classic Radio). litical restraints. As such the radio reform When the DAB-system is established, has only been a single step in a longer NRK have plans for a NRK Always process. Two other major steps were the News and Sports and they would like to reforms in 1987, when NRK became an have separate national channels for the re- independent foundation, and on 29. april gional broadcasts. Their plans already suc- 1996, when it was converted into a limited cede the number of accessible DAB-chan- company with the state as sole shareholder. nels. The only other broadcaster that is en- As a shareholding company the manage- sured a channel within the DAB system is ment claim it will be easier to lay down P4. NRK will not get a monopoly, but they new strategies and bring them to fulfil- have plans for enough channels to keep ment, without having to go the slow steps other parts out of the system. through the parliamentary system. Whe- At present Norway has been delegated ther the new dynamic organization in two DAB blocks. How many channels NRK will bring us, the audience, better these blocks permit is not yet clear, it de- programmes, we just have to wait and lis- pends both on technical improvements and ten. At least those who intend to invest in what kind of programme content the dif- the new digital recievers. ferent channels are supposed to carry.

67 Notes 9. In Norwegian dem som er innstilt på ny vi- ten, ny innsikt, debatt, kommentarer, ana- 1. Klassekampen 1. oktober 1994 lyse, satire, utfordringer og for dem som er 2. Transmission started in 1979 on an experi- aktive kulturkonumenter. NRK Radio i ny mental basis (Toft 1985). drakt. PR-materiell. 3. Bimediality is strong in NRK. All regional 10. In Norwegian moderne, ung, energisk, offices make both their own radio- and tele- uhøytidlig, personlig, engasjert og forander- vision programmes and items for the natio- lig. NRK Radio i ny drakt. PR-materiell. nal programmes. 11. These examples are stereotypes, and are 4. Both Kinnevik and Aller are among the larg- made from the presentation MMI and the est mediacompanies in Scandinavia. radio management gave when introducing 5. In Norwegian: nyheter/debatt, sport, servi- the new radio. The same kind of example ceradio, delaktighet/lytterinteraktive, opp- was later repeated by a senior editor when levelsesradio. Appendix 2 in Application explaining the criterias for choosing new for the P4-license from Radio Hele Norge. employees. As all stereotypes, they contain a 6. Phone-ins are not only a simple and inex- grain of thruth. pensive format, they can actually be a way of 12. NRK internal newspaper Tidssignalet 6/95:5 improving income. By using special num- 13. In Norwegian: NRK Radio skal gi lytterne bers where the service costs 6-7 Nkr per økt kunnskap og innsikt økt opplevelse minute for the caller. P4 uses these phone- og økt glede. numbers in all kinds of phone-in program- 14. NRK Tall og fakta (Facts and figures) 1992 mes, NRK, as far as I am aware of, only for and 1994 competitions. 15. St. meld. nr. 32 1992-93 Media i tida.: 127. 7. These and all the following statistics on rat- 16. In Norwegian et viktig lokkemiddel for å få ing and share are taken form Lytting på nær- folk til å investere i de foreløpig dyre DAB- radio 1995. Rapport nr. 2. Norsk Gallup mottakerne Aftenposten 11. june 1995. Institutt A/S. 8. In Norwegian snakker med deg og hører på deg. NRK Radio i ny drakt. PR-materiell.