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Mechanisms for Setting Broadcasting Funding Levels in OECD Countries

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Mechanisms for Setting Broadcasting Funding Levels in OECD Countries School of Communication Mechanisms for Setting Broadcasting Funding Levels in OECD Countries Research and Analysis Project Report Prepared for Te Manatu Taonga / Ministry for Culture and Heritage December 2005 2 Mechanisms for Setting Broadcasting Funding Levels in OECD Countries Research and Analysis Project Report Prepared for Te Manatu Taonga / Ministry for Culture and Heritage December 2005 3 Contents 1.0 TERMS OF REFERENCE.................................................................................................. 6 2.0 RESEARCH AIMS AND OBJECTIVES/ DELIMITATIONS .............................................. 8 3.0 METHODOLOGY ............................................................................................................. 10 4.0 OECD COUNTRY REPORTS ON PUBLIC BROADCASTING ARRANGEMENTS ...... 13 4.1 AUSTRALIA ..................................................................................................................... 14 4.2 AUSTRIA ........................................................................................................................ 20 4.3 BELGIUM ........................................................................................................................ 23 4.4 CANADA ......................................................................................................................... 28 4.5 CZECH REPUBLIC ........................................................................................................... 34 4.6 DENMARK ...................................................................................................................... 39 4.7 FINLAND......................................................................................................................... 45 4.8 FRANCE ......................................................................................................................... 50 4.9 GERMANY ...................................................................................................................... 53 4.10 GREECE......................................................................................................................... 58 4.11 HUNGARY ...................................................................................................................... 62 4.12 ICELAND......................................................................................................................... 67 4.13 IRELAND......................................................................................................................... 71 4.14 ITALY ............................................................................................................................. 77 4.15 JAPAN............................................................................................................................ 81 4.16 KOREA, DEMOCRATIC REPUBLIC ..................................................................................... 86 4.17 LUXEMBOURG ................................................................................................................ 91 4.18 MEXICO ......................................................................................................................... 94 4.19 THE NETHERLANDS ........................................................................................................ 96 4.20 NEW ZEALAND (AOTEAROA).......................................................................................... 101 4.21 NORWAY ...................................................................................................................... 108 4.22 POLAND ....................................................................................................................... 114 4.23 PORTUGAL ................................................................................................................... 120 4.24 SLOVAKIA..................................................................................................................... 124 4.25 SPAIN .......................................................................................................................... 128 4.26 SWEDEN ...................................................................................................................... 131 4.27 SWITZERLAND .............................................................................................................. 140 4.28 TURKEY ....................................................................................................................... 146 4.29 UNITED KINGDOM ......................................................................................................... 151 4.30 UNITED STATES............................................................................................................ 156 4.31 STATISTICAL SUMMARY OF PUBLIC BROADCASTING FUNDING IN OECD COUNTRIES............ 161 5.0 ANALYSIS OF MECHANISMS FOR SETTING AND COLLECTING/ DISTRIBUTING PUBLIC FUNDING...................................................................................................................... 162 5.1 CLASSIFICATION OF MECHANISMS FOR SETTING AND COLLECTING/ DISTRIBUTING PUBLIC FUNDING ................................................................................................................................... 162 5.2 TYPOLOGY OF FUNDING SETTING MECHANISMS ......................................................... 163 5.3 TYPOLOGY OF COLLECTION/ DISTRIBUTION MECHANISMS ........................................... 164 6.0 OVERVIEW OF KEY ISSUES AND COMMON POLICY THEMES CONCERNING FUNDING MECHANISMS FOR PUBLIC BROADCASTING IN THE OECD............................. 167 6.1 PUBLIC BROADCASTING AND LANGUAGE POLICY ISSUES ................................................ 181 6.2 TYPOLOGY OF POLICY RATIONALES FOR LANGUAGE-SPECIFIC BROADCASTING POLICIES ... 183 6.3 TABLE SHOWING BREAK-DOWN OF COUNTRIES AND LANGUAGE-SPECIFIC BROADCASTING SERVICES .................................................................................................................................. 184 4 7.0 ANALYSIS OF MECHANISMS FOR SETTING AND COLLECTING/DISTRIBUTING PUBLIC BROADCASTING FUNDING. ...................................................................................... 188 7.1 MECHANISMS FOR SETTING LEVELS OF FUNDING FOR PUBLIC BROADCASTING .................. 188 7.2 MECHANISMS FOR COLLECTING/DISTRIBUTING FUNDING FOR PUBLIC BROADCASTING ....... 198 8.0 CONCLUSIONS & RECOMMENDATIONS................................................................... 210 8.1 HYPOTHETICAL PRINCIPLES GOVERNING FUNDING .......................................................... 212 MECHANISMS FOR PUBLIC BROADCASTING:.................................................................................. 212 8.2 RECOMMENDATIONS OF COUNTRIES FOR FURTHER INVESTIGATION ................................. 214 9.0 REFERENCES ............................................................................................................... 215 10.0 ACKNOWLEDGEMENTS ............................................................................................. 224 11.0 APPENDIX 1: RESEARCH TEAM ............................................................................... 226 12.0 APPENDIX 2: QUICK REFERENCE TABLES............................................................ 227 5 1.0 TERMS OF REFERENCE Research and Analysis Project: Mechanisms for Setting Broadcasting Funding Levels in OECD Countries 1.1 Summary of Project The project was intended to assist the Ministry’s policy work on public funding for broadcasting. It involved assessing and comparing funding-setting mechanisms for broadcasting used in other OECD countries. It also investigated the mechanisms that seemed applicable to New Zealand’s situation in more detail. 1.2 Context In December 2004 Cabinet approved a broadcasting policy programme for the remainder of the present decade, “Building a Strong and Sustainable Public Broadcasting Environment for New Zealand”. Based in part on the analysis of broadcasting sector responses to a stock-taking document, the Programme identifies the environmental factors likely to require the development of new policy, now that the policy programme introduced in 2000 has been largely put in place. It sets out a series of proposals for investigation. The Programme was published in February 2005. • Priority Area: “Achieve Adequacy and Certainty of Public Funding for Broadcasting” The first priority in the sequence, however, is particularly important for the achievement of the entire Programme, as it is concerned with how the government’s broadcasting initiatives are funded. This first priority of the Programme of Action, “Achieve Adequacy and Certainty of Public Funding for Broadcasting” contains a single proposal: “Identify a sound basis for determining the appropriate level of public funding for broadcasting, to guide future budgetary priorities within the Programme of Action.” The rationale for including this priority in the Programme of Action is given in the Programme text in the following terms: Since the abolition of the Public Broadcasting Fee, funding decisions have been made on a case- by-case basis to support particular initiatives – an approach that exposes the government to demand-driven pressures for new funding. Conversely, the lack of a distinct stream of income for broadcasting (or a generally accepted overall level of expenditure for broadcasting) leaves decisions on particular allocations more open to the perception of
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