Consultation Title: BBC Trust Service Review: BBC One, BBC Two, BBC

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Consultation title: BBC Trust service review: BBC One, BBC Two, BBC Three and BBC Four To: tvreview@bbc.co.uk Name of respondent: Carol Comley, Head of Strategic Development Representing (self or organisation/s: British Film Institute

BFI response to BBC Trust Service Review: BBC One, BBC Two, BBC Three and BBC Four

February 2014

Executive summary

1. The BFI believes that the four BBC television channels covered by this Review of are fulfilling the terms of their Service Licences effectively.

2. The range of film and drama shown provides a wide spectrum of different genres for audiences, and also demonstrates that the different channels are committed to innovation.

3. However, we believe that the BBC could do still more to increase the variety of recent British and specialised films which it screens, especially on BBC One and BBC Two.

4. The format of the film programme on BBC One, currently Film 2014, could be refreshed as it has remained broadly the same for many years.

5. In short, the BBC has more powerful access to audiences than any other broadcaster; an increased commitment to British film, both through screening films and refreshing their film programmes would be invaluable for both audiences and the UK’s creative industries.

6. BBC Four’s commitment to foreign-language dramas such as Borgen and The Bridge, is particularly welcome.

7. Across the four channels, we believe that the BBC is not delivering sufficiently in representing diversity as regards both ethnicity and disability.

8. With the Licence Fee declining in real terms, the main challenge for the television services is a financial one. We would like the BBC’s four main television channels to maintain their commitment to their Service Licences as currently formulated. This is likely to maintain seeking to cut overheads in other BBC areas of activity.

9. As the way in which people watch television channels continues to change, the BBC should continue to ensure that all four channels are available for audiences on the widest possible range of devices. The Trust should examine the extent to which the Service Licences are fit for purpose in the light of such change.

About the BFI 1. In 2011 the BFI became the lead organisation for film in the UK. It is now a Government arm’s-length body and distributor of Lottery funds for film.

2. Our mission is to ensure that film is central to our cultural life, in particular by supporting and nurturing the next

generation of filmmakers and audiences. The BFI serves a public role which covers the cultural, creative and economic aspects of film in the UK.

3. It delivers this role:

 As the UK-wide organisation for film, a charity core funded by Government

 By providing Lottery and Government funds for film across the UK

 By working with partners to advance the position of film in the UK 4. In October 2012, the BFI published ‘Film Forever, Supporting UK Film 2012-2017’, which set out its strategy for the next five years, following an extensive industry consultation. 1 It described the activities underpinning the BFI’s three strategic priorities:

 Expanding education and learning opportunities and boosting audience choice across the UK

 Supporting the future success of British film

 Unlocking film heritage for everyone in the UK to enjoy.

5. To that end, the BFI helps ensure that public policy supports film and, in particular, British film. 6. Founded in 1933, the BFI is a registered charity governed by Royal Charter. The BFI Board of Governors is chaired by Greg Dyke. 7. We are seeking to build a strong, long-term strategic partnership between the BFI and the BBC as we clearly have complementary aims around both film and television. We are now in active discussions with the BBC to put in place such a partnership which would deliver significant value to the public who fund both organisations and we hope that this will include benefits for viewers of the four BBC channels which are the subject of this Review.

http://www.bfi.org.uk/about-bfi/policy-strategy/film-forever

Responses to the two consultation questions:

Service Licences

1. How well are BBC One, BBC Two, BBC Three and BBC Four performing against the terms of their Services Licences?

 What are your views on the quality of the offer across the four services?  What are your views on the range of programmes shown by the four services across the genres (factual including arts and music, drama, entertainment, comedy and sport)?  What type of programmes, if anything, make the BBC television services stand out from commercial channels?  Are the services making an effective contribution to delivering the BBC’s six public purposes?  What are your views on whether the services deliver good value for money?

General Context including for film

For the BFI, the BBC’s four television channels, informed by its current public purposes, play a vital role in serving audiences, including for film, and the creative economy in a number of different areas. They make an essential contribution to the diversity of film and moving images which are available to the public across the UK and in reflecting life in the Nations and Regions of the UK as required by the BBC’s public purposes.

As lead body for film, the BFI recognises that, in particular, the £11m per annum that the BBC invests in the development and production of new British films helps ensure that a varied diet of theatrical films is available to audiences across all its four principal channels.

The BBC plays a vital role as an investor in the development and production of British independent films with a budget of £11m per annum. During the current Charter period, the BFI (and before that, the UK Film Council the previous Lottery distributor for film), has co-invested in a wide range of feature films with BBC Films including Fish Tank, Alan Partridge: Alpha Papa and Philomena.2

Without such investment by the BBC, audiences for the BBC’s four channels would suffer from a significant reduction in the range of British films on offer. We therefore want to see a strong and well-funded BBC Films as a key part of the BBC throughout the next Charter period. High-end drama for

television, which increasingly shares many of the production values of film, is also an important means of providing quality and diversity for audiences. We hope that the BBC will maintain and strengthen its investment in this genre and we would also like to see more choice as regards films for children beyond the holiday blockbusters.

The BBC are in a unique position to help the growth of the creative industries, a key area of growth for UK plc, by helping to grow indigenous audiences that are more adventurous in their viewing habits, and more ready to take a risk and develop their taste.

The BBC has more powerful access to audiences than any other broadcaster. In this context an increased commitment to British film, both through screening films and refreshing their film programmes would be invaluable. The BFI and BBC jointly invest in many British films annually and we could increase their chances of commercial success through a greater commitment to acquisition and through better, more exciting coverage of our own indigenous film industry.

In addition, BBC One and BBC Two remain important outlets for showing popular British films and specialised films from all eras -- ranging from Harry Potter, to Ealing comedies to early Hitchcock.

However, the BFI believes that the number of UK films broadcast by BBC1 and BBC2 could be increased to provide even more choice for audiences as a proportion of the total films shown. The following chart shows that in 2012, the figure for BBC1 was just 17% and for BBC2 29%.

These figures suggest that these two channels have a unique opportunity to strengthen the BBC’s public purpose to stimulate creativity and cultural excellence in respect of film.

Channel Number of Number of UK Number of Recent UK films UK films films recent UK films as broadcast broadcast as % of films %of total total broadcast* films broadcast

BBC One 231 39 17 22 10

BBC Two 463 134 29 44 10

* A recent film is one which has been theatrically released, or intended for theatrical release, in the UK since 2004

The time at which films are shown is also important. As the following table demonstrates the volume of film shown in peak time has been in decline over the last decade:

Film as a percentage of peak time programming hours by channel, 2002-2012 25

10 BBC One BBC Two 5

0 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 BBC One 7 9 8 8 20 13 19 19 4 2 2 BBC Two 5 4 6 3 10 6 7 5 3 4 4

Source: BFI statistical yearbook

BBC1

The core remit for BBC1 ‘‘ is to be the BBC’s most popular mixed-genre television service across the UK, offering a wide range of high quality programmes. It should be the BBC’s primary outlet for major UK and international events and it should reflect the whole of the UK in its output. A very high proportion of its programmes should be original productions.’’

We also note that the Service Licence stipulates, among other things, that ‘‘ BBC One programmes should exhibit some or all of the following characteristics: high quality, original, challenging, innovative and engaging, and it should nurture UK talent.’’

While the BFI believes that in general BBC 1 fulfils this remit well, we think that the programme devoted to film, currently entitled Film 2014, could be refreshed. The format has now been around for many years and we feel now is the time to reinvigorate this important programme and at an appropriate time slot. We also note that in 2012, the BBC Trust requested a reduction in the number of episodes of the Film

programme.3 The BFI would like to see the controllers of BBC One (or BBC Two) explore the possibility of a new film programme which had a brief to cover a wider range of films.

The BFI believes that, beyond film, the BBC1 scores highly in these categories, particularly in drama which, according to the Service Licence, ‘‘ especially in peaktime… should be one of the biggest creators of BBC’s One’s impact with its audience as demonstrated by programmes ranging from popular soaps such as ‘‘ Eastenders’’ to dramas such as ‘‘ Death in Paradise’’ and ‘‘ Sherlock’’ . Programmes such as ‘‘ Outnumbered’’ and Citizen Khan demonstrate the BBC 1’s commitment to innovation and identifying new talent.

BBC Two

BBC Two’s remit is ‘‘ to be a mixed-genre channel appealing to a broad audience with programmes of depth and substance. It should carry the greatest amount and range of knowledge- building programming of any BBC television channel, complemented by distinctive comedy, drama and arts programming.’’

The BFI believes that, in the round, BBC Two fulfils this remit well. However, the BFI believes there is a great appetite by audiences to see more British and independent films and although BBC Two still shows films -- recent examples at the time of writing include I’m Alright Jack and Made in Dagenham -- the volume of films it shows has declined in recent years.

Historically, BBC Two was an important channel for the screening of foreign language films, screened with sub-titles. The number of screenings of foreign-language films on BBC Two has varied significantly in recent years and has not always been sufficient to offset the continuing decline in the number of such films shown on BBC One. This is illustrated by the following tables taken from the BFI Statistical Yearbook.

3 http://downloads.bbc.co.uk/bbctrust/assets/files/pdf/review_re port_research/dqf/final_conclusions.pdf, p.5.

Number of foreign language films broadcast on terrestrial television, 2004-2012

Average audience for peak time film, 2002-2012

BBC Three

BBC Three’s core remit is ‘‘ to bring younger audiences to high quality public service broadcasting through a mixed-genre schedule of innovative UK content featuring new UK talent. The channel should use the full range of digital platforms to deliver its content and to build an interactive relationship with its audience. The channel’s target audience is 16-34 year olds.’’

The BFI believes that BBC Three has made significant progress in addressing its remit more effectively, for example through programmes such as Tough Young Teachers and comedies such as His and Her.

BBC Four

BBC Four’s core remit is ‘‘ to reflect a range of UK and international arts, music and culture. It should provide an ambitious range of innovative, high quality programming that is intellectually and culturally enriching, taking an expert and in-depth approach to a wide range of subjects.’’

The BFI believes that BBC Four delivers strongly on its current remit and that it plays a particularly important role in helping the Corporation to deliver its public purposes in respect of promoting education and learning, stimulating creativity and cultural excellence and bringing the UK to the world, and the world to the UK.

Its programming on film is particularly valuable; recent examples include London on Film and Sound of Cinema: Music that Made the Movies.

BBC Four also has an excellent record of showing high-quality foreign-language films and more recently foreign-language dramas such as Borgen, The Bridge, and The Killing on BBC4. The BFI strongly welcomes the commitment to screening dramas of this kind which have proved very popular with audiences and which demonstrate the channel’s ambition to bring to the screen material that is ‘‘ intellectually and culturally enriching.’’

In addition to programming about film, the BFI would like to see BBC Four (or another channel) develop a programme exploring and promoting the cultural and educational value of television.

Strategic challenges

2. Are BBC One, BBC Two, BBC Three and BBC Four well-positioned to deliver their Service Licence commitments in the future?

Financial

 What would you say are the main risks that BBC Television needs to manage as it delivers its Delivering Quality First cost savings plan over the next few years?  Delivering Quality First is the BBC's plan for how it can best deliver the highest quality content to audiences until the end

of the Charter in 2017 in light of the licence fee settlement agreed with the Government in 2010: See further Delivering Quality First_BBC Trust’s Final Conclusions May 2012 )

The main risks are financial. The value of the licence fee is declining in real terms. We would like the BBC’s four main television channels to maintain their commitment to their Service Licences as currently formulated.

This means seeking to generate efficiency savings in other areas of the BBC’s operations, for example in relation to general overhead. We are pleased that the BBC has introduced measures, for example, in relation to salaries and pay-offs which will help to address this.

Technological

 How well do you think the BBC television services are responding to advances in digital technology and the consequent changes in how audiences are choosing to watch television content on different screens (TV, Desktop Computer, Tablet, Smartphone)?

Overall, the BFI believes that the four channels themselves -- as opposed to separate operations such as the iPlayer -- continue to be effective in their response to changes in technology; for example, through the use of the red button to enhance viewer participation.

The BBC should maintain a commitment to ensuring that all four channels are available across the widest possible range of devices. Given the continuing and rapid development of technology the BBC Trust may wish to revisit the Service Licences to see what more could be done to ensure that these Licences are responsive to the changing way in which people watch the four channels.

Working together

 How well do you think the BBC television services complement each other in the type of programming they show?  How well you think the programmes across the BBC television services reflect the different people, places and interests of the United Kingdom?  How well do you think the BBC television services cover national and international cultural and sporting events?

In the round, we think the four channels need to better reflect the diversity of the UK as regards ethnicity and disability. As the UK population grows more diverse, so this needs to be reflected on screen to ensure that all the

channels meet their Service Licences.

Overall, we would like to see an even stronger focus on education across the four channels and we look forward to working with the BBC to help achieve this through our developing strategic partnership.

Ends.