Strategies of Public Service Media As Regards Promoting a Wider Democratic Participation of Individuals

COUNCIL CONSEIL OF EUROPE DE L’EUROPE

Strategies of public service media as regards promoting a wider democratic participation of individuals

Compilation of good practices

Group of Specialists on Public Service Media in the Information Society (MC-S-PSM)

H/Inf (2009) 6

Strategies of public service media as regards promoting a wider democratic participation of individuals

Compilation of good practices

Report prepared by the Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

Directorate General of Human Rights and Legal Affairs Council of Europe Strasbourg, June 2009 Édition française : Les stratégies des médias de service public visant à promouvoir une plus large participation démocratique des individus

Directorate General of Human Rights and Legal Affairs Council of Europe F-67075 Strasbourg Cedex http://www.coe.int/

Executive summary ...... 5

Introduction ...... 5 Mandate and work of the group . . . . 5 The promotion of democratic The promotion of democratic Content and structure of the participation as part of the participation and the report ...... 5 remit of public service media ...... 6 transparency of public authorities . .6

Public service media and the promotion of democratic participation ...... 7 Statutory requirements/internal Strategies to promote, facilitate Means used by PSM in order to policies related to PSM strategies and develop services for interact with the citizens ...... 11 regarding democratic widening democratic participation . . Audience/reach of new PSM participation ...... 7 10 services ...... 15

Good practice examples of PSM programmes/services aiming at wider democratic participation of individuals ...... 19

Conclusions ...... 45

Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

Executive summary This report examines the general ap- creasingly take account of the and everything they need to know will proach of public service media possibilities the new technologies remain one of the most significant towards the promotion of a wider open up. This ranges from making use tasks in which PSM can contribute to democratic participation, dealing with of additional spectrum available the promotion of democratic partici- statutory requirements and internal through the digital switchover, facili- pation of the individual members of its policies regarding this goal, PSM strat- tating the public’s access to content public and in which very useful use egies related to it, means that PSM use through non-linear offers, to increas- can be made of the new communica- to interact with the citizens, as well as ingly interactive services offered via tion technologies. On the other hand, audience/reach of new PSM services. the internet. PSM could fulfil a vital role in educat- Furthermore, the document gives a ing active and responsible citizens, number of concrete examples of PSM In order to survive in the present-day providing not only quality content but programmes or services that aim to media landscape, PSM must increas- also a forum for public debate, open to widen democratic participation of in- ingly strive to move away from one- diverse ideas and convictions in soci- dividuals, most of which are based on way communication to reinforced dia- ety, and a platform for disseminating the possibilities offered by the new logue and afford the public access to democratic values. One of PSM’s roles media. These examples are organised varied information as well as a possi- should be to foster citizens’ interest in into subsections that reflect the differ- bility to engage and participate in the public affairs and encourage them to ent levels on which a promotion of democratic debate. In order to con- play a more active part. tinue to be of relevance in today’s democratic participation can be To achieve these objectives, PSM must achieved by PSM and which, among media environment, they will have to be creative and quickly and decidedly adapt its strategies and internal poli- others, can be differentiated according cies to the new technological and to the level and form of interaction of make advantage of new technological possibilities. They will also continu- social context. Member states, for their PSM with its public and among the part, must set a clear remit for PSM and public itself. ously need to strive for distinctiveness from other media and might need to ensure appropriate conditions to PSM are aware that their role in pro- be ready to move on once it is clear enable them to use new technical and moting democratic participation of in- that this distinctiveness has been technological means to better fulfil the dividuals is a crucial one and an eroded. remit, as stipulated in Council of important reason for their special Europe Recommendation CM/Rec status in the European media land- Informing the public in a truthful, ob- (2007) 3 on the remit of public service scape. The strategies PSM follow in- jective and credible way about politics media in the information society.

Introduction

Mandate and work of the group two reports on the subject-matter, broadcasters in promoting wider dem- namely: ocratic participation of individuals The terms of reference of the Group of with the help of new interactive tech- Specialists on public service media in Report by Gregory Ferrell Lowe, nologies, or information provided by the information society (MC-S-PSM) “The Role of Public Service Media for the European Broadcasting Union include the task of preparing a com- Widening Individual Participation in (EBU). pendium of best practices on how European Democracy”; public service media promote a wider Report by the Institute of Euro- democratic participation of individu- pean Media Law (EMR), “The Public Content and structure of the als, inter alia with the help of new in- Service Media Promotion and Facilita- report teractive technologies. tion of a Wider Democratic Participa- The report is divided into two main During its current working period of tion of Individuals”. parts. The first part deals with the 2007 and 2008, the group has taken The present report is based on the in- general approach of PSM towards the various steps in order to gather infor- formation gathered through these two achievement of the goal of promoting mation on good practice examples of reports and the examples of good wider democratic participation of indi- public service media in the field of practice mentioned there. The two viduals, dealing with statutory require- democratic participation. In particular, reports enable a more thorough ap- ments and internal policies regarding it has made use of the work of outside proach to the subject. This report also this goal, PSM strategies related to it, experts which have drafted specialist draws on other sources, such as a means that PSM use to interact with reports on the topic. As a result of this hearing held at the Council of Europe the citizens, as well as audience/reach work, the group has had at its disposal in 2005 on the role of public service of new PSM services. The second part

5 Strategies of public service media as regards promoting a wider democratic participation of individuals

of the report then gives a number of multiple-step way, with a general focussed towards democratic partici- very concrete examples on PSM pro- remit generally defined by the legisla- pation. In particular the BBC Agree- grammes or services that aim to widen tor and more precise regulations ment specifies that one of the BBC’s democratic participation of individu- defined or agreed upon at another public purpose remit is for “sustaining als, most of which are based on the level – by the legislator again, by the citizenship and civil society” and re- possibilities offered by the new media. administration, by agreement flecting the United Kingdom’s nations, Following a structure proposed by between the State and the public regions and communities. Mr Lowe, these examples are organ- service media organisation through a ised into subsections that reflect the contract or using self- and co-regula- The promotion of democratic different levels on which a promotion tory instruments. participation and the of democratic participation can be The question of how member states transparency of public achieved by PSM and which, among when defining the public service remit authorities others, can be differentiated according specifically deal with the issue of pro- In its terms of reference for the MC-S- to the level and form of interaction of motion and facilitation of a wider PSM, the CDMC included a topic con- PSM with its public and among the democratic participation of individuals cerning the contribution of public public itself. has separately been addressed in the service media in the information above mentioned study “The Public society in increasing the transparency The promotion of democratic Service Media Promotion and Facilita- of public authorities and facilitating participation as part of the remit tion of a Wider Democratic Participa- their scrutiny. In its report from its No- of public service media tion of Individuals” of 28 April 2008, vember 2007 meeting, the CDMC which is based on country reports and This report contains concrete exam- asked the MC-S-PSM to deal with this prepared by the Institute of European ples (best practice models) on the pro- matter in connection with the present Media Law (EMR) on behalf of the motion and facilitation of wider report. Council of Europe. The study covers democratic participation of individuals the situation in Denmark, Finland, Ger- The issue in whether and how PSM which is enhanced by national public many, Latvia, Slovenia and the United should aim at promoting the transpar- service media operators through their Kingdom – all of which represent good ency of public authorities and facilitate offerings (programmes or other con- practices of public service media as their scrutiny is a highly complex one, tent). In this respect it is relevant to regards promoting a wider democratic and the answer to the question consider the extent to which the participation of individuals. depends essentially on how one public service media operators have a defines the task that is called for. dedicated strategy on promoting The study shows that the strategies of It is for instance relatively clear that democratic participation and the the public service media in these insofar as the PSM remit includes, as it extent to which such strategies are countries to promote, facilitate and universally does, an obligation to based on requirements in the public develop services that promote a wider inform the public and comment about service remit or internal policies. democratic participation of individuals only to a certain degree are based on politics and general interest topics, The general situation in the member specific requirements on democratic they will, while fulfilling their remit, states concerning the public service participation in the public service promote the transparency of public remit in the information society is ad- remit. Whereas the public service authorities by informing the general dressed in the report “How Member remit for the Finnish and Danish public public about these authorities’ activi- States ensure the legal, financial, tech- service broadcasters YLE and DR spe- ties. In the same manner, PSM can nical and other appropriate conditions cifically include requirements on dem- promote the public’s understanding of required to enable public service ocratic participation, the remits of the political processes at local, national or media to discharge their remit” (No- German, United Kingdom, Latvian and European level and therefore enhance vember 2008) prepared by the Council Slovenian public service broadcasters the public’s possibilities of under- of Europe Group of Specialists on are defined along more general lines. standing government and critically ap- Public Service Media (MC-S-PSM). The scope of the public service remit praise its activities. As a general rule, member states have varies between these national broad- The fundamental obligation of PSM to taken into account the need of public casters. This is also the case for the dif- be objective and neutral in its report- service broadcasters to provide their ferent United Kingdom public service ing is particularly important with public service offer on new media plat- broadcasters. Thus the remit of chan- regard to the activities of public au- forms when defining the remit, nels 3 and 5, in that it requires “the thorities. Under no circumstances though the exact definition of the provision of a range of high quality should a PSM take upon itself the gov- public service remit varies widely and diverse programming” may not ernment’s own role in promoting its amongst the member states. Several necessarily relate to the wider demo- activities, lest it loses its distance to the examples of member states can be cratic participation of individuals. The government of the day and its ability identified where the public service remits of Channel 4 and, particularly to inform impartially as well as its cred- media remit is defined in a two- or the BBC, are on the other hand more ibility. If transparency is understood in

6 Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

this sense, public authorities are them- media. Different member states may merous examples within this report selves responsible for making their have different answers to this ques- such as information services, parlia- work transparent and this is not an action. mentary TV channels and even PSM in- tivity PSM should engage in to. Also, it For the purposes of this report, it itiatives to help the public engage in is obviously not a common task of PSM appears that as long as the promotion civic campaigning, can also be under- to act as an access point for govern- of transparency of public authorities is stood as examples on how to promote ment services or for offering the public understood in the sense of PSM in- transparency of public authorities. If facilities to collect information on gov- forming and commenting about politi- transparency is understood in this way, ernment activities or receive access to cal issues and helping the public then the present report can therefore official documents. The obligation of understand and move within the dem- also be understood as a report on how objectivity and neutrality also influ- ocratic system, it has a very close rela- PSM promote the transparency of ences the decision on whether PSM tionship with the activities of PSM in public authorities. should engage in investigative jour- promoting wider democratic partici- nalism on the same terms as private pation of individuals. In this sense, nu-

Public service media and the promotion of democratic participation

If public service media are to diversity and pluralism – on the other collectivities in contemporary democ- strengthen their role in promoting hand. racy. For PSM the public should be un- wider democratic participation of indi- There are four principal obligations for derstood as citizens as well as viduals, they must keep and PSM as can be deduced from norma- consumers and treated as active part- strengthen some of their present fea- tive theories about media-society rela- ners rather than passive recipients. tures and develop new ones. Also, they tions: the informative and control This section focuses on four main should formulate relevant strategic obligation; the representation obliga- issues related to PSM and the promo- objectives, allocate the resources nec- tion; the forum obligation; and the tion of democratic participation, nota- essary to achieve those objectives, and participatory obligation. The participa- bly: (1) Statutory requirements/ craft tactical designs that concretise tory obligation, which is of particular internal policies related to PSM strate- the objectives in programmes and interest for this document, is the meat gies regarding democratic participa- services. Objectives and tactics are of the matter for widening individual tion; (2) Strategies to promote, conceived in light of expectations involvement in democracy. It also re- facilitate and develop services for wid- about the functions of PSM in support- quires the most effort and investment ening democratic participation; (3) ing democratic needs. The enactment for development because it is at the Means used by the PSM in order to in- of all these functions, and the corre- heart of cultivating partnership teract with the citizens; and (4) Audi- lated fulfilment of strategic objectives, between PSM and the publics it must ence/reach of new PSM services. It on the one hand, require defending serve. This obligation is about the covers the situation in a limited traditional roles, especially the social degree to which people are able to number of countries (Denmark, Fin- role and identity of citizens, and on the impact decision-making by political land, Germany, Latvia, Norway, Slove- other, emphasises the development of representatives; it can also be seen as nia and the United Kingdom) the degree to which people influence partnership relations between PSM examined by the Institute of European production in media content. providers and the publics they serve. Media Law and by the European In diverse and pluralistic societies the Broadcasting Union. The role of PSM is grounded in the media have a significant role in both public service remit, which despite its constituting and mediating the public classical connotations has demon- sphere. The role of PSM is primary to Statutory requirements/internal strated ample capacity for continual ensure the good health and necessary policies related to PSM strategies development while still preserving the development of this. The public regarding democratic ethos that grounds its social legiti- sphere is produced in and by public participation macy. Public service media are crucial communication about issues, events for building social capital by ensuring and processes of common interest. Denmark intercultural understanding and cross- The future of PSM requires the institu- cultural dialogue. In an era of media tion to evolve into an effective and ef- The DR strategy is supported by the abundance and market fragmentation, ficient partner with the publics it legislation as well as the current public PSM are essential to ensure unity and serves. That is a cornerstone for widen- service contract regulating the activi- cohesion – on the one hand, as well as ing the participation of individuals and ties of DR.

7 Strategies of public service media as regards promoting a wider democratic participation of individuals

In Chapter 3 of the Act on Broadcast- DR shall focus on the production of There are also six other aspects to ing (2006) the role of public service public service broadcasting services public service in the law (promotion of media is described as follows: specifically developed for such plat- Finnish culture, educational and mi- “The overall public service activities shall pro- forms. nority language programming, multi- vide, via television, radio and Internet or similar, culturalism, cultural interaction and the Danish population with a wide selection of Finland broadcasting of official announcements). The first one is probably the programmes and services comprising news Since January 1, 1994, the existence most fundamental, because without coverage, general information, education, arts and all activities of YLE have been democracy all the other aspects of and entertainment. Quality, versatility and diver- based on a law, Act on Yleisradio. Origi- public service mentioned in the law sity must be aimed at in the range of pro- nally, this law defined the duties of the would be more or less insignificant. grammes provided. In the planning of company as well as public service programmes freedom of information and of ex- (Chapter 3, Section 7) as follows: Following this principle defined in the pression shall be a primary concern. Objectivity law, YLE has developed its strategies “The company shall be responsible for the pro- and impartiality must be sought in the informa- and internal policies to meet those vision of comprehensive broadcasting services tion coverage. The programming shall ensure that legal obligations and to promote the for all citizens under equal conditions. As special the general public has access to important infor- democratic participation of individu- duties involving public service, the company mation on society and debate. Furthermore, par- als. shall: ticular emphasis shall be placed on Danish language and culture. The programming shall 1. support democracy by providing a wide Germany cover all genres in the production of art and variety of information, opinions and debates on culture and provide programmes which reflect social issues, also for minorities and special Besides the general stipulation in the diversity of cultural interests in the Danish groups; 1 […]” Article 5 (freedom of expression and society” (emphasis added). information) of the Grundgesetz (Basic However, in the latest amendment of Law), according to which the freedom In the Public Service Contract between the law (635/2005) this section was of reporting through broadcasting is the Ministry of Culture (on behalf of changed and updated, so that since guaranteed (paragraph 1, sentence 1), the Danish parliament “Folketinget”) January 1, 2006, the new definition has the Grundgesetz holds no specific pro- and DR the important role of DR been: vision on the PSM’s programming. Ac- related to democracy is elaborated. “The company shall be responsible for the pro- cording to the interpreting jurisdiction In Chapter 1 of the Public Service Con- vision of comprehensive television and radio of the Federal Constitutional Court tract, the Ministry of Culture has stated programming with the related additional and (Bundesverfassungsgericht ), Article 5 that DR, in the programmes and serv- extra services for all citizens under equal condi- only defines the remit along general ices offered, inter alia shall strengthen tions. These and other content services related lines. citizens’ capacity efficiency in a demo- to public service may be provided in all tele- The German Bundesländer (Federal cratic society: communications networks. States of Germany) are responsible for DR shall provide access to impor- The public service programming shall in partic- the regulation of broadcasting as part tant information on society and de- ular: of their sovereignty, they have signed bate; 1. support democracy and everyone’s oppor- several interstate agreements, one of DR shall through programme tunity to participate by providing a wide variety which is the Rundfunkstaatsvertrag. content and services encourage par- of information, opinions and debates as well as This Rundfunkstaatsvertrag lays down ticipation in the public debate and the opportunities to interact;” 2 the general principles for private and democratic process; public service media operators (please The text of the law has been adapted see §§1 to 10 Rundfunkstaatsvertrag) DR shall contribute to popularisa- to the age of the Internet by mention- and contains particular regulations for tion of the new digital media by creating also additional and extra services both institutions (please compare ing new programmes and information in all telecom networks besides broad- §§11 to 19 Rundfunkstaatsvertrag for services likely to make viewers, listen- casting. In addition, while the law still public service media operators and ers and users familiar with the technol- requires YLE to support democracy by §§20 to 47 Rundfunkstaatsvertrag for ogy, thereby inspiring them to use it. providing information, it now empha- private broadcasting companies). The Public Service Contract very sises that this also has to be done by Under the terms of the recital clause, clearly prescribes that DR shall use all providing opportunities to public par- the parties of the agreement acknowl- relevant digital and interactive media ticipation and interaction , which is a edged that public service media is in- to fulfil its obligations. DR shall offer quite new and to some extent difficult debted to the process of free public service content – i.e. content by task for a traditional public service formation of public and individual way of text, sound and images broadcaster. opinion. §3 of the Inter-State Treaty on meeting cultural, social and demo- Broadcasting defines general program- 1. . cratic needs in the Danish society – on 2. ming principles (e.g. the respect for all relevant technological platforms. . human dignity), without providing a

8 Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

dedicated strategy to promote democ- are dictated by the programme priori- points and activities of any kind of mi- racy. ties of the present year and are codi- norities. §11 paragraph 1 Rundfunkstaatsver- fied in inner normative documents as The constitutional basis for the afore- trag defines the remit of public service the Employees Code of Ethics, struc- mentioned demands made on the broadcasters in more detail: they tural units’ regulations on professional broadcasting system is found in the should act as “a medium and a factor activities, and job descriptions of crea- RTV Slovenia Act. Article 5 of this Act in the process of free formation of tive employees. stipulates: public and individual opinion”. There- It is obvious that the rapid technologi- Journalists and editors of RTV Slovenia and fore, broadcasters have to provide a cal development and the changes of others directly involved in the creation or pro- comprehensive overview of all impor- viewers’ and listeners’ habits pose duction of RTV programming shall in their work tant international, European, national challenges to public service media opin particular: and regional issues in order to erators. They should become more di- – adhere to the principle of truthfulness, im- promote understanding and integra- verse, open and interactive. These partiality and integrity of information; tion (§11 paragraph 2 Rundfunkstaats- requirements are specified in the inner vertrag). development programmes of both – respect human individuality and dignity; §11 Rundfunkstaatsvertrag in conjunc- media. – adhere to the principle of political balance and pluralism of world views; tion with the operator’s guidelines and In his management policy, the new Di- the declarations of self-imposed obli- rector General of Latvian Television – adhere to the principle of constitutionality gations on programming are the basis characterised the change of status and legality in the formulation of programming, of a dedicated strategy to promote de- from public broadcaster to public elec- including the prohibition on incitement to cul- mocracy. tronic medium as a conceptual devel- tural, religious, sexual, racial, national or other opment direction. He looks upon this forms of intolerance; ensure impartial and inte- Latvia medium as a complex, multi-medial gral provision of information, such that citizens As Latvian normative acts and public company, which uses up-to-date tech- have the possibility to freely form their opinions; broadcasters supervising institutions nologies, thus making it more widely – adhere to the principle of political inde- only partially envisage the interactive and diversely available to every inhab- pendence and autonomy of journalists; institute participation of individuals, it mostly itant of the country, as well as foster- professional ethics for reporters and the consist- depends on the initiative and inner ing an active dialogue with a wide ent distinction between information and com- policy of the broadcaster itself. Many range of society and narrow interest mentary in journalistic reports; protect children factors have an impact on these proc- groups. and young persons from content that could esses, starting with the managers’ un- have a harmful effect on their mental and physi- derstanding and interest, and ending Norway cal development, and respect universal human with technical and financial resources values. to implement ideas. One of the articles in the national public service broadcaster (NRK) Code Apart from that, political and ethnical For a long time, one of the lowest of Conduct states: minorities claim special protection of public broadcaster financing levels in the law. According to the constitution, Europe made any process of innova- “NRK shall be instrumental in promoting public there are two autochthonous ethnical tion complicated in Latvia. debate and assist the entire population to minorities living in Slovenia – the However, there have been quite a lot acquire sufficient information to play an active Italian and the Hungarian minority. of projects in Latvian television and role in democratic processes” (NRK Code of The most recent RTV Slovenija Act radio, which stimulated broadcasters’ Conduct, Article 1 b). dealing with the public service broad- dialogue with people, involving them Further on it is stipulated that caster provides for special radio and in discussions on questions of social TV programmes to be offered for Ital- “the company shall be present in, and shall importance, as well as giving people ians and Hungarians and also for the develop new services for, all important media the opportunity to advance their Roma ethnical minority (compare platforms so as to reach the widest possible au- opinion to the political elite. The inter- Article 3, Section 1, fourth paragraph dience with its overall programme services” activity in both media concerns not of the RTV Slovenija Act). The Slovene (NRK Code of Conduct Art. 2 d). only socio-political questions, but also example of the public service broad- allows consumers to organise their en- caster is certainly a role model for the tertainment on-demand, choosing Slovenia whole of Europe. films, music, theatre performances Everybody in Slovenia is aware that they like. the very reason for the existence and United Kingdom These activities, as already mentioned, development of a public service The Communications Act 2003 speci- are mostly ascribable to the initiative broadcaster in Slovenia is to encour- fies that broadcasters must fulfil of broadcaster’s managers and the age democratic dialogue, to promote certain criteria, and sets down the production personnel. The basic prin- national creativity and to provide public service remits for each of the ciples and solutions of these activities space for presenting opinions, stand- commercial terrestrial broadcasters,

9 Strategies of public service media as regards promoting a wider democratic participation of individuals

which – as noted above – vary. These Strategies to promote, facilitate reinforcing the involvement of requirements are backed up by licence and develop services for the general public in debates on our conditions. According to the Commu- widening democratic democratic society nications Act, s. 266, broadcasters participation belonging to the country as a must produce statements of pro- whole. gramme policy (SoPPs) annually, as Denmark DR creates value for the culture by well as an annual review of the per- DR as the leading public service media formance for the preceding year by providing shared experiences for operator in Denmark sees its role reference to the relevant SoPP (SARs). the Danes closely related to the Danish demo- The BBC must under its Charter and creating, supporting and reflect- cratic society. As it was stated in the DR Agreement, s. 21, likewise produce a ing broad and narrow arts and culture raison d’être from 1994: SoPP and an annual review: the BBC supporting and challenging the Trust reviews compliance with the DR – serving the public by empowering the in- Danish identity, language and history; SoPP in its annual report (s. 45 Agree- dividual to play an active role in a democratic in international contexts too. ment) Ofcom has produced guidance society on SoPPs. DR creates value for the individual by In 2005 the DR raison d’être was refor- inspiring people to assume re- Ofcom under s. 264 Communications mulated by the Board of Governors, sponsibility, act, and improve their Act 2003 has the obligation to ensure and it now describes how DR provides lives that public service broadcasting as a value for the society, for the culture whole satisfies certain conditions laid and for the individual: making the incomprehensible un- down in the Communications Act, in- derstandable and relevant The mission of DR is to inform , enter- cluding the obligation to entertaining and by generating tain and inspire . “provide, to the extent that is appropriate for fa- enthusiasm. DR provides programmes and services cilitating civic understanding and fair and well- DR’s strategy to promote a wider dem- for everybody. DR gives the general informed debate on news and current affairs in, ocratic participation is thus closely public plenty to choose from, plenty to and in the different parts of, the United related to the concept of broad public think about, to puzzle over, to laugh at, Kingdom and from around the world” service. DR is obliged to provide both to feel provoked by, to absorb them and the requirement that the services the broad programming which brings and to adopt as their own. offer Danes together and the more special- “a sufficient quantity of programmes that reflect DR aims to be the frame of reference ised programming for individuals and the lives and concerns of different communities for the whole population, helping us people with special interests. DR is the and cultural interests and traditions within the to understand ourselves, our times only media corporation committed to United Kingdom …”. and the people around us, and ena- provide programming and services to bling us to act accordingly. everybody in Denmark regardless of Note that all broadcasters must race, gender, income, geography etc. comply with the requirements that DR must constantly provide the and DR sees this unique role as a fun- news must be impartial: in the case of general public with an independent, damental precondition for its ability to complaint the Ofcom Content Board high-quality alternative to the com- generate value for the Danish society. will review impartiality but it has rarely mercial media. The broad programming is accom- found a violation of this requirement. DR fulfils its mission by It has been suggested that this impar- plished for instance by P3 and P4, the tiality requirement has been instru- generating value for society, cul- most popular radio stations in mental in the disengagement of some ture and the individual Denmark and DR’s main TV channel DR1, which brings Danes together to a groups, as it may operate to stifle dis- setting standards of credibility, wide range of programming such as senting or marginalised opinions. One independence, balance, variety and the most watched daily news show, question Ofcom has posed recently is quality whether the impartiality requirement Friday night entertainment and DR’s providing quality in every pro- needs to be relaxed at least in relation high quality drama series on Sunday gramme genre to some, non-terrestrial broadcasters. nights. building bridges in the media At the same time DR caters for the indi- landscape of the future in Denmark. vidual and for people with special interests through a number of focused DR generates value for the society by channels, programmes and services on promoting dialogue and under- radio, television and web. standing across divides The interplay between broad and spe- stimulating the population to cialised programming is key to DR’s speak out, get involved, and meet efforts to promote a wider democratic others participation at all levels for those who

10 Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

are already involved as well as those shall give full information. According provide for the necessity of interactiv- for whom participation is harder. It is to Section III paragraph 1 ZDF-Richtli- ity, which would allow for feedback also a key element in DR’s strategy that nien, programmes have to convey the from the viewers and listeners. The democratic participation is a very principles of a democratic and social normative acts don’t envisage the ne- broad concept and that promoting constitutional state founded on the cessity for public broadcasters to func- user participation and involvement on rule of law. Programmes are obliged to tion in a multimedia environment. a broad range of issues stimulates the criticise undemocratic attitudes (Sec- More detailed programme production competences and the desire to partici- tion III paragraph 1). Within the pro- policies is stipulated in the document, pate in the democratic processes. grammes, common will to democracy which states the National remit priori- shall find expression and diversity of ties for the present year; for every next Finland opinions should be expressed (Section year the broadcasters elaborate the There is currently only one public III paragraph 2). In addition, all parts of project of the National remit and coor- service media operator in Finland, society shall have free access to the dinate it with the National Radio and Yleisradio (YLE). It results that it has a programmes (Section III paragraph 3). Television Board. de facto monopoly of public service ZDF is obliged to work and inform impartially (Section III paragraph 5). Dif- operations in Finland. YLE has a dedi- United Kingdom cated strategy to promote, facilitate ferent points of view have to be All public service media have a strat- and develop services that promote a presented equally (Section III para- egy to fulfil their relevant public wider democratic participation of indi- graph 6). Considered together, these service remit as shown in the state- viduals. provisions form a dedicated strategy to promote and facilitate democracy. ment of programme policy (SoPP) published annually, but the scope of Similar provisions can be found in Germany this remit varies between the broad- ARD’s guidelines and Deutschland- German public service media (PSM) casters (see s. 265 Communications radio’s declaration of self-imposed ob- have a dedicated strategy to promote, Act 2003; BBC Charter, Article 3 and ligations on programming. In the facilitate and develop services that Agreement, s. 5). Thus the remits of context of ARD’s annual report 2006, promote a wider democratic participa- channels 3 and 5, in that they require for example, the organisation gives an tion of individuals. ‘the provision of a range of high account of its activities of the past year quality and diverse programming’ are Under the terms of §11 paragraph 4 of and presents its programming pros- not as closely related to the wider the so-called Interstate Treaty on pects for the oncoming years 2007/ democratic participation of individuals Broadcasting (Rundfunkstaatsver- 2008. In order to guarantee compre- 3 as those of the BBC and Channel 4. In trag ), public service media operators hensive provision of information on particular the BBC Agreement speci- are responsible for a detailed program- current affairs, ARD offers more than fies that one of the BBC’s public ming regulation by laying down rules six hours of news programmes every purpose remit is for “sustaining citizen- and guidelines (e.g. Grundsätze für die day. This offer provides a broad over- ship and civil society” (s. 6 Agreement) Zusammenarbeit im ARD-Gemein- view of all current issues and enables and reflecting the United Kingdom’s schaftsprogramm „Erstes Deutsches people to form their individual nations, regions and communities. Fernsehen” und anderen Gemein- opinion. schaftsprogrammen ; ZDF-Richtlinien für Sendungen ). These guidelines define Latvia Means used by PSM in order to the aim of programmes in more detail interact with the citizens According to Latvian law on radio and and provide for instruments of imple- television, the basic principles of pro- mentation. gramme production are stated by the Denmark This should be exemplified by ZDF’s National remit. The basic principles of In general DR makes use of all relevant „Richtlinien für Sendungen ” (ZDF the National remit are reflected in the means to interact with DR users (which Guidelines for programmes). Section I law on radio and television, as well as amounts to practically all citizens in paragraph 3 ZDF-Richtlinien lays down in broadcast licenses. These normative Denmark). The traditional phone-ins that programmes should enable each documents are based on general are widely used in a large number of individual to form its free opinion. For values of a democratic society, Euro- radio shows in all genres to facilitate instance, in order to accomplish this, pean Union regulations and priorities public debates and interaction with there has to be a clear distinction of a national character. Thus the flow the listeners. An example is “Poul Friis” between newscasts and comments of comprehensive information, edito- – a very popular daily one-hour live (compare Section I paragraph 5). rial independence and plurality of programme on radio channel P1 Under the terms of Section II para- views is guaranteed. All of that is nec- dealing with subjects of current inter- graph 2 ZDF-Richtlinien, programmes essary for the formation of individual est. Poul Friis is the programme host opinion about processes in the coun- and starts each programme with an in- 3. ! " for the full text of the try, Europe and the whole world. How- depth interview with the guest, who is Rundfunkstaatsvertrag. ever, the normative acts do not a politician, an opinion leader, a chair-

11 Strategies of public service media as regards promoting a wider democratic participation of individuals

man of an association or a specialist on poses and DR intends to further ent from its broadcast programming. the selected current topic of the day. develop this concept in the future. In 2006, the YLE website was the fifth At programme start and several times In 1972 DR opened a special public most popular in Finland with average during the interview Poul Friis invites access department named the “Tape of 768 000 hits per week. The Internet the listeners to phone in and contrib- Workshop” and invited Danish citizens is already a very strong medium ute with comments and discuss with to make their own radio programme among the young and middle-aged the guest in the studio. After 15 to 20 on a subject related to their personal Finns. The oldest citizens (74+) typi- minutes of interview the phones are life, ideas and engagements and to get cally prefer other forms of communica- open and any citizen thus has a chance these programmes broadcast on the tion. to table his or her ideas and comments national network. Professional DR pro- According to an YLE audience survey on the topic of the day. ducers assisted to allow the citizens to in 2006, the three most important Interaction through text messaging make use of all the powerful tools of public service functions were: 1) pro- and e-mails has grown significantly radio communication. The “Tape viding official information and prepar- during recent years, and DR’s website Workshop” had a capacity of producing for emergencies, 2) broadcasting ( ) is the home for numer- ing 120 programmes a year with an to all people in Finland regardless of ous initiatives to stimulate debate and average duration of 30 minutes. Later place of residence, and 3) providing re- interaction. Dr.dk/debat is a large sub- a similar public access department was liable and independent news. This il- site devoted to debate at all levels and established for TV programmes. lustrates how YLE was considered on all topics related to radio and TV Professional radio producers were sec- above all else as a public broadcaster, programmes or as pure internet serv- onded to the Tape Workshop on rota- providing news and information – ices. The daily “P1 Debate” for instance tion basis for one year periods and which is of course a crucial function for combines a radio show with debate on over the years more than 40 radio pro- any truly democratic process. dr.dk. Especially for the younger gen- ducers got a new insight in the value On the other hand and perhaps in eration dr.dk is the home for a number of involving ordinary people in pro- some contradiction, another function of communities and clubs, where users gramme production, an experience very closely related to the democratic can interact and participate, and DR is they brought with them in their future interaction of the citizens, which is continuously exploring new ways professional broadcast activities. Con- programmes inspiring debate on where users can interact with each sequently it gradually became quite current social issues, was ranked tenth other and with DR. common to include substantial inputs in considered importance, which means that it was seen as less impor- As one example DR won in 2004 the from non-professionals in the DR radio tant than for example delivering live prestigious Prix Italia for “Dogworld”, a programmes and after 17 years of international sports events. surreal cartoon community where active life the tape Workshop was Danish, Swedish and Norwegian closed in 1989. People had got access In addition to services for the Finnish- youngsters aged 10 to 17 let their to participate in DR programmes speaking majority of citizens, YLE is virtual tamagochi-like dogs chat, without the need of a special public obliged to serve also minorities and gather points in games, dig for bones, access department. special groups with particular pro- buy and trade items with each other gramming especially for them. This and explore the Dogworld together. Finland was considered as the 6th most impor- The users of Dogworld influence the YLE is still above all else a broadcasting tant public service function. development of the community in a company, providing radio and televi- So, the company operations are most number of ways and interact with each sion programming to the whole of Fin- of all about providing programmes other – among other things the “news- land. According to the company’s 2006 and services for citizens, but YLE is not papers” of the community and a annual report, it reached 92% of Finns particularly strong in direct interaction number of debates. “Dogworld” is still with television and 67% of Finns with with citizens. YLE has recently tried a 4 active and provides a basic introduc- radio every week. However, in most new sort of promotion and publicity tion to democracy for young people. cases broadcasting tends to be more campaign (YLE Kulmilla) which has about distribution than interaction. DR has also in recent years been very opened YLE facilities in different cities This is probably one of the reasons successful in bringing our shows and for the public and brought some YLE why YLE provides also in the internet characters to life through events in personnel also from capital Helsinki to an increasing amount of interactive “real” life. This way DR is able to inter- meet with regional audiences in services related to its broadcast pro- act more closely with the Danes and person. But these events are rather gramming. In addition, it has created the participants plays a much more rare and can be treated as exceptional. new and interactive media services active role in the creation of pro- It is interesting that the law now and participatory platforms in the in- grammes. DR has used this combina- obliges YLE to support the citizen’s op- ternet, which are relatively independ- tion of programmes and events in a portunity to interact with each other wide range of genres intended for 4. # # "$ # ; but does not even encourage YLE as a both democratic and entertaining pur- # # "$ " . company to interact directly with its

12 Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

owners, the citizens (see question 2). increase through its programming the however, this kind of communication Perhaps because the members of the gender equality between women and is rather unidirectional. YLE Administrative Council are elected men in the Finnish society. This means The second means is more bidi- by the Parliament it has been thought at the basic level that program-makers rectional and can itself be divided into that this provides citizens a sufficient should pay attention to the interpreta- two sections: way to interact with YLE indirectly tion of the roles of men and women through the elections. and there should be space for a set of – One form of interaction is the com- (A recent case example of questiona- values which is based on equality. munication between public service ble manner of interaction between While the programmes mentioned broadcasting operators and their YLE and the citizens can be found in above are most of all for internal use users, e.g. users participate in interviews with experts via the Internet; the process of digitisation of televi- among the YLE program-makers, YLE sion. YLE had tested all the types of Values 8 is perhaps a sort of a new tool – The other means is the mediation digital set-top-boxes available in the for promoting the main ideas of public of communication between user market but did not publish the list of service ideology not only for the YLE groups, e.g. public service broadcast- devices which could not show YLE pro- personnel but also to the general ing operators offer a platform for their grammes with digital subtitles. The list public. It is a simple list of five things user groups to enable them to have a was published by YLE only after it had which YLE intends to support and discussion via the Internet. first been published by the leading cherish: “Finnishness”, reliability, inde- Apart from the main strategy, Finnish newspaper [Helsingin Sano- pendence, diversity and high quality. mat ]). public service media operators have initiated several studies on different Germany Besides providing different program- issues related to social aspects. One of ming services for different audiences, To illustrate the means, the term “inter- these studies is the ARD/ZDF online YLE has created a number of internal action” should be defined in more study 2007, in which operators pre- policies and strategies to support and detail. Interaction means the active pared a report on the use of online of- promote services that support citizen’s communication between public ferings in Germany. (see: democratic needs. service media operators and citizen. " ). In the con- For example, the YLE Programme Regu- In 2004, the Bundesländer decided to text of this study, ARD and ZDF ques- 5 lations emphasise the independence allow public service media operators tioned 1 820 people about their and integrity of YLE programmes, to use online offers to get in touch behaviour patterns concerning the use which are supposed to be also impar- with their users (see §11 paragraph 1, of the Internet. tial and balanced within reasonable sentence 2 Rundfunkstaatsvertrag). timeframe – and when possible, all the These online offers have to provide Latvia perspectives to the disputed issue programme related content and have In Latvia the interactivity of public should be included into the same pro- to be linked to the programme. In con- media with their consumers takes gramme. All these regulations aim for sideration of these facts, the means place mainly based on the same a diverse offering of high quality infor- used by the German PSM can be classi- methods as in the rest of Europe. The mation, which is trustworthy and a re- fied into two main categories: (1) the main instruments of interactivity are liable basis also for political debate use of interactive technologies for the television and radio programmes, and decision-making. offer, and (2) the use of traditional during (as well as before and after) There is also an YLE Policy on services ways of interaction of viewers with which telephone or SMS voting, ex- for minorities and special groups, 6 programmes (e.g. televoting, tradi- change of opinions and posting the which states that “providing services tional public opinion polls during a questions are available. for minorities and special groups telecast, etc). means that people in these groups Despite the complexity of this topic, Another popular means of interactivity must be treated as equal members of this is not the place to enter into in a is the internet, through which people the society”. In practice, YLE is provid- detailed or exhaustive examination of are offered wider and more diverse ing services only to “significant” mi- both scopes. Therefore, this report possibilities to communicate with pro- nority groups in their own languages, concentrates on the means using in- gramme makers or other participants, but for smaller groups they are devel- teractive online offers. These offers to take part in the internet discussions oping services in basic Finnish. themselves can be classified into 2 cat- and forums, expressing their attitude The YLE Gender Equality and Diversity egories: and asking their questions, finding out Programme 7 aims primarily to influ- additional information about pro- The first means can be character- ence the company programming gramme themes and their coverage. ised by the transfer of traditional forms policy. Its objective is that YLE should of analogue communication (e.g. Both Latvian television and radio have internet archives, where listeners and 5. # # " . newsletters) into the digital world; # " % viewers can find wider information 7. Available only on YLE intranet (in Finnish). 8. # # " . about themes of interest, as well as

13 Strategies of public service media as regards promoting a wider democratic participation of individuals

watch and listen to the programmes Slovenia ence of journalists and programme they have missed. The public broadcasting service in workers against unsubstantiated accu- sations. Worth mentioning also is that Sometimes, especially where commu- Slovenia provides several opportunities for support, encouraging and im- the document “Professional standards nication between public service media and ethical principles of journalism in broadcasters and rural or elderly plementation of democratic needs of citizens. A formal and institutional the programmes of RTV Slovenija”, as viewers and listeners is concerned, well as the activities of the ombuds- feedback is given in written form. framework for their liberties is provided by the RTV Slovenija Act and the man (whose reach still needs to be In addition to everyday communica- statute of RTV Slovenija based thereof proven in practice, since this is a com- tion with the people, meetings with along with specially derived docu- pletely new institution), are a specific different target groups on different ments like “Professional standards and feature in Slovenia and cannot be levels are organised in order to identify ethical principles of journalism in the found in every European country thus consumers’ opinion about pro- programmes of RTV Slovenija” along representing a solid concept for build- grammes, to determine their themes with stipulations of the Media Politics ing democratic standards. and quality standards. The sociological Act of the Republic of Slovenia which Unfortunately, there are no supple- research is done not only on audience provides an even stronger protection mentary instruments used to promote, ratings, but also on different aspects of compared to similar regulations in facilitate and develop services that programming in a more detailed other European Union countries by support the citizen’s democratic needs manner, segmenting the interests of granting the right to correction. Each in Slovenia. different audiences. media and the electronic media are no exception in this, are obliged upon the United Kingdom Public service broadcasters periodi- demand by the involved to publish a cally have consultations with Latvian counterstatement to the reports and All PSM are broadcasters and use the non-governmental organisations, in statements, which have been pub- broadcast media to communicate via order to identify interests and desires lished – in an equal length and at the their programming. The BBC website is of different population groups, repre- same place. This causes particularly one of the most visited websites on sented by these organisations. great problems to electronic media, the Internet. Additionally, all have websites which support and in some Once a year, Latvian television offers and the measure, which has probably cases go beyond their programming. an internet questionnaire to its been meant for supporting demo- These websites allow for interactivity; viewers and a press poll concerning cratic dialogue and the right to truth it is possible to sign up for updates the most popular programmes of the as well as objective reporting failed. It through a variety of communications previous year. Almost all prizes, except causes the objective danger that pro- media (e.g. mobile phones, e-mail). special prizes, that are awarded are fessional or even investigative journal- Viewer response may also be via based on viewers voting. ism shall be replaced by an “opinion mailbox” without the option of appeal. phone and text, though in the light of In the run-up to the elections, public In this sense it would be necessary to recent problems with premium rate service media operators organise amend the act and include more spe- phone-lines (mainly used for voting on public discussions of potential and cific definitions, since it has also popular shows or for competitions), present politicians. In some discus- opened doors to abuse. both broadcasters and viewers may be more cautious about this mechanism. sions, viewers are enabled to partici- Since 1 January 2008, there has been a pate and ask questions of their special institution of ombudsman op- Ofcom now undertakes a consumer concerns to politicians. erating within the public service experience survey which may include Every year, public service broadcasters broadcaster RTV Slovenija in order to some citizenship concerns; it also has and the National Radio and Television protect the interest of the public. The an online forum. The relationship Council organise workshops and con- elected ombudsman with a 4-year between consumer and citizen has ferences, during which discussions on term being not recallable and autono- had its impact in Ofcom which was ini- public media activities and on themes mous – although within the public tially concerned only with consumers’ related to supervision are held. service broadcaster (it is a body of the concerns. Ofcom has taken some general manager and reports to the action to clarify the matter, not least by Unfortunately, in Latvia digital tele- Programme Board of the public service consulting on the relationship vision has not yet been introduced in broadcaster and thus directly to the between consumer and citizen. As republic broadcasting. Public services public) – should provide the protec- quired under the Communications are still broadcasting with the ana- tion of the viewers’ and listeners’ inter- Act, it also is involved in trying to stim- logue system. It is therefore not possi- ests, respond and mediate in their ulate media literacy. Ofcom has also ble to use the additional interactivity name, supervise any violation of the carried out a number of studies with offered by digital technologies. How- legal framework and ethical code, regard to PSB and the genres of pro- ever, the state is determined to intro- while on the other side he would also gramming which might be seen as duce digital coverage by 2012. protect the integrity and independ- particularly important to the citizen. A

14 Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

clear example of this is its report on obligations, as the recent concern re- Table 1 below.) This means that 21.4% the future of news. In this, it is carrying garding children’s television provision of the Internet population in the coun- on work carried out in its time by the on ITV illustrates. tries covered have visited a Member’s ITC. Nonetheless, it should be noted Indirectly encouraging the provision web property at least once during that that some commentators have been of quality and innovative program- period. The BBC, MTV3 (Finland), DR concerned about how the citizen is ming are awards for groundbreaking (Denmark) and NPO (the Netherlands) represented within Ofcom. There is a television, such as the Royal Television have the strongest Internet appeal consumer panel, but not one dedi- Society (RTS) awards where there are among users, with a monthly reach of cated to the interests of the citizen. Cit- numerous categories reflecting news more than 35%. izens’ interests fall within the remit of provision. There are, of course, other There is a great gap between mem- the content board. Although the awards at both national and interna- bers’ Internet properties, and the scale content board has, in principle, a tional level. Outside the constraints of of reach ranges from more than 55% policy setting role, its main focus to the broadcasting and film industries, to less than 2%. However, the vast ma- date has been the review of com- the Politics Society likewise makes jority of the entities reach one in ten plaints about breaches of the content awards for political broadcasting (in- Internet users. code. Of necessity these complaints cluding satirical work). tend to focus on specific instances (such as the use of bad language) rather than look at the issue of quality, Audience/reach of new PSM 9 or the impact on citizens’ democratic services needs. Ofcom’s view is that it has In March 2008 EBU members regis- 9. This section refers only to the EBU members limited powers in relation to “Tier 2” tered an average reach of 21.4%. (See both public service and commercial.

Table 1. EBU Members’ national Internet reach* (March 2008)

BBC Sites (United Kingdom) 55.5 MTV3.FI (Finland) 35.6 DR.DK (Denmark) 35.6 Publieke Omroep (Netherlands) 35.4 NRK Sites (Norway) 31.3 TV2 Danmark (Denmark) 30.7 TV2 Sites (Norway) 30.6 YLE.FI (Finland) 29.5 Groupe TF1(France) 24.0 Sveriges Television, SVT (Sweden) 23.1 ORF.AT (Austria) 22.4 ARD Sites (Germany) 17.7 VRT Sites (Belgium) 17.2 SRG SSR idee suisse (Switzerland) 15.6 ITV Sites (United Kingdom) 14.8 FTVi (France) 14.4 RTE.IE (Ireland) 12.5 RTP.PT (Portugal) 11.2 RAI Sites (Italy) 10.8 10.1 5.9 5.8 RTBF Sites (Belgium) 2.1

0.0 10.0 20.0 30.0 40.0 50.0 60.0 % Reach * Defined as the percentage of the total universe accounted for by total site visitors. Source: EBU based on comScore Media Metrix.

15 Strategies of public service media as regards promoting a wider democratic participation of individuals

Table 2. Evolution of members’ Internet properties*

NRK (NO) Groupe TF1 (FR) RAI (IT) Publieke Omroep (NL) RTP (POR) FTVi (FR) YLE (FIN) RTVE (ES) SVT (SE) RTE (IE) ORF (AUT) SRG-SSR (CH) TV2 (NO) MTV3 (FIN) DR (DK) BBC (UK) ITV (UK) RTBF (BE Fr) TV2 (DK) ZDF (GE) VRT (BE Fl) ARD (GE) Channel4 (UK)

-8.0 -6.0 -4.0 -2.0 0.0 2.0 4.0 6.0 8.0

* Source: EBU based on comScore Media Metrix.

Table 3. Reach evolution – youth audiences*

BBC Sites (UK)

Groupe TF1 (FRA)

ARD Sites (GE)

FTVi (FRA)

ITV Sites (UK) Mar-08 Channel4 (UK) Mar-07

RAI Sites (IT)

RTVE (ES)

0 10 20 30 40 50 60 70 % Reach (15-24 years) * Source: EBU based on comScore Media Metrix.

As regards the development of reach over the past seven months. (See Table with a growth of 6.7% between August for members’ online entities, the ma- 2 above.) The Norwegian public broad- 2007 and March 2008. Among the jority of the sites show a positive trend caster NRK has increased the most, broadcasters that have suffered the

16 Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

largest losses in audiences’ attention their sites. (See Table 3, page 16.) More 10%, RTVE and ZDF seem to have in recent months are ARD in Germany than half of the 15- to 24-year-olds in more difficulties in reaching younger and Channel 4 in the United Kingdom. the United Kingdom visited the BBC people. web property at least once, and the The BBC and Groupe TF1 are the most reach for TF1 is 23.7%. While most successful in attracting young users to properties have a reach of more than

Table 4. Time spent on online video consumption – Youth vs all audiences (January 2008)*

15-24 539

Germany All audience 396

15-24 475

France All audience 361

15-24 474

UK All audience 352

0 100 200 300 400 500 600

* Source: EBU based on comScore Media Metrix.

Most broadcasters have lost reach suming online content. The data dem- videos they view. TF1 and Channel 4 among young users over the past year. onstrates that young users spend lead in terms of videos per viewer, but, TF1 (+3.5%) and RTVE (0.8%) are the more time streaming or downloading users seem to spend less time on each only broadcasters to have gained videos than average users. 15-24 year video. The web property where young ground, while the others show de- olds spent some five hours or more on users spend most of their time is creases in the share which range from online consumption in January 2008, i. Channel 4, 230 minutes in January 1.2 to 9.2 points. e. approximately 115 minutes more 2008. Channel 4 offers a free catch-up than average users. Young people not streaming service, 4oD, with television, Online video consumption only spend more time consuming films and music content available 30 Young people spend more time online online video; they also watch more days after broadcast. The site includes and have a higher consumption of videos than do average users. a large number of full length pro- online video content than do older It is important for broadcasters to have generations. The computer has a strong Internet presence, and the grammes, which is probably driving become a part of their everyday life, online video reach for members’ web the time per viewer. Other sites seem and the success of sites like YouTube properties shows that TF1 (15.4%) and to be used for shorter format pro- have led to an explosion of sites pro- the BBC (14.4%) are the most success- grammes and clips. viding audio and video content online. ful in attracting younger users with Media companies are revising their their content output. ITV, FTV Interac- The conclusion based on the data is entire business models to increase the tive and Channel 4 all have a monthly that users go to Channel 4 and FTVi spread and availability of video mate- reach of about 3% monthly reach. sites to look at fewer but longer rial. Table 6 on page 18 shows the average videos, while at the BBC and TF1 sites Table 4 above shows the amount of time young viewers spend on online users tend to spend less time but on time that Internet users spend con- consumption and the number of more videos.

17 Strategies of public service media as regards promoting a wider democratic participation of individuals

Table 5. Monthly reach of online video content on members’ sites – youth audiences*

Groupe TF1 15.4

BBC Sites 14.4

ITV 3.3

France Televisions Interactive 3.0

Channel4 2.7

0 4 8 12 16 20

% Reach Web Pop: 15-24 years * Source: EBU based on comScore. Note: The ZDF web property did not register sufficient reach to be included in the data reporting this period.

Table 6. Time spent on online video consumption on members’ sites – youth audiences (January 2008)*

16.4 Channel4 230

6.7 FTVi 98

14.6 Groupe TF1 59

6.7 BBC Sites 31

3 ARD Sites 22

6.4 15

0 40 80 120 160 200 240 Videos per viewer Minutes per viewer * Source: EBU based on comScore.

18 Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

Good practice examples of PSM programmes/services aiming at wider democratic participation of individuals Democracy is not limited to elections; information aspect also refers to the to social movements and involvement. it is an ongoing process, and media ac- transparency function of PSM with This is a new frontier so there are not tivities between elections might be regard to political decision-making. many examples yet. even more important for maintaining Facilitation democratic participation, than media INFORMATION coverage of elections stricto sensu . A range of services are offered by PSM Despite the complexity, PSM compa- companies that enable individuals to Finland – Elävä Arkisto (Living nies are doing a lot to promote, facili- explore a variety of issues and topics in Archive) 11 tate and develop services that support order to learn new things of personal citizens’ democratic needs. Space does relevance. These services facilitate On-demand archives of previously not permit detailed or exhaustive ex- deepening of insight and securing en- broadcast material present an aspect amination. There are dozens of possi- lightenment in ways that are educative of great importance in this category of ble examples at least as good as those rather than educational. The difference PSM services. This is in development offered here. Our examples illustrate lies in the approach to pedagogy. An practically everywhere. YLE’s Living Ar- PSM’s role in democracy, with empha- educational approach is the historic chives ( Elävä Arkisto ) in Finland, pic- sis on participation and PSM’s broader lecturing model while an educative tured in Screenshot 1, page 20, is a role in nurturing democratisation. approach is interactive and communi- good example ( # " ). The company’s editorial Below is a compendium of good prac- cation-based. The election engine staff organises historic material in tice examples of programmes/serv- system is a common example in PSM. topical categories that users can ices promoting wider democratic Online games could also be a useful review and explore at whim. It is thus a participation of individuals. These ex- means to enhance the general knowl- knowledge generating experience and amples are organised in five summary edge and comprehension of the soci- not a purely informative one. Many categories 10 that are treated in turn: In- ety. Such services are particularly PSM companies have the longest his- formation; Facilitation; Collaboration; attractive to young audiences. tories and deepest archives in their re- Democratisation; Mobilisation. Collaboration spective countries. Considerable Information Web 2.0 describes the development of investment has been underway for about ten years to digitise vast cata- Every PSM company provides news social networking online. A host of logues of archived material, and in across platforms. News is a vital service such services are popular today, espe- every PSM company this project will to democracy that is of deep PSB herit- cially YouTube, Flickr, MySpace and Fa- continue for years to come. Such age and broad continuing importance. cebook. Less often remarked but of service links radio and television pro- News services are very familiar, but it is keen importance for constructing grammes, national cultural and social crucial to observe that PSM news is democratic discourse are social net- heritage, in both current and historic unique in casting an equally critical working services offered by PSM com- terms, with on-demand services via eye on economic actors as well as po- panies that integrate broadcast and company web sites. litical actors and due to their non- online services in connection with profit status, in so far as public funding user-created content of thematic inter- Huge on-demand archive containing and editorial independence are secure. est. over 4 000 background articles con- Full scale coverage and in depth infor- Democratisation nected to over 300 hours of television mation is a particular aspect in this cat- programmes and archive films and 700 The role of PSM is not only in promot- egory provided by every PSM hours of radio programmes. The ing individual participation with company. The idea is to organise service is mainly focused on Finnish regard to a specific issue or in a partic- content that is currently in the news in history and culture but the archives ular situation, as important as that is. combination with documents and also include plenty of international The role of PSM is also of broader im- other materials to give users robust material. The archive is constantly portance in supporting the on-going opportunities to develop a deeper un- being updated and new material is project of democratisation which nur- derstanding beyond the transitory added. tures perspectives, routines and in- surface story. On-demand archives of volvements that construct democracy The archive is organised into various previously broadcast material present in society. categories (Finland, World, Sports, an aspect of great importance in this Culture and entertainment, Home and category of PSM services. This is in de- Mobilisation leisure, Children, Top-rated, Latest). velopment practically everywhere. The The last category to be treated focuses 11. Helsingin Sanomat 17.10.2004, p. C5; 10. These five categories have been proposed by on services that assist citizens in per- # " ; # "& & G. Lowe (see above, page 6). sonal efforts to be active with regard # & & &'&" .

19 Strategies of public service media as regards promoting a wider democratic participation of individuals

Screenshot 1. Finland –Elävä Arkisto (Living Archive)

The categories are divided in subcate- TV series and television pro- some still pictures and television pro- gories relating to specific topics. The grammes grammes from the YLE Archives. The subcategories itself are again subdi- Eurovision song contest oldest available radio programmes vided into various subjects with the were from the 1930s, but most of the Symphony orchestras connected archive films. For example, materials were from the 1940s, 1950s the category World is divided into: Famous filmmakers and 1960s. Among other interesting Art, famous painter and men of programmes, this service made availa- One subcategory on crucial letters ble to all people for example the only events in men’s history such as Roma- known recording of Adolf Hitler nian revolution, Chernobyl accident, Older films and TV spots having a private conversation. Watergate scandal, 9/11, Tsunami Films about the world of science from its beginning to the present date Despite its innovation and high cul- One subcategory on wars and Cabaret, theatre, magic shows tural value, it seems that YLE Arkki was armed conflict, containing material of not a big and immediate success. After the battle of Stalingrad, D-Day, Viet- Other related matters a year in the web it was not familiar nam war, Falklands war Besides the video on demand section, even to all of YLE employees. The One subcategory divided into re- there is also a radio section “The Living service continued for a couple of years gional history sections such as Euro- Archive Internet Radio”. Over the web without much publicity. Then, at the pean history, American history, Asian radio it is possible to listen to a stream 80th birthday of YLE on 9 September history, Latin American history, African of old radio programmes 24 hours a 2006 it was re-launched with an history day. updated concept, additional content The YLE programming archive services and a new name: YLE Elävä Arkisto One subcategory on famous his- on the Internet were launched in Sep- (Living Archive). torical persons like Einstein, Yuri tember 2003 under the name of YLE Gagarin, Margaret Thatcher, Anna The service is offering now 550 hours Arkki. This service contained primarily Politkovskaya, Princess Diana of radio programming, 160 hours of radio programmes from the past, films and TV programming. The oldest One subcategory on social phe- which were offered both in a form of films among approximately 1 000 nomena such as socialist life in Cuba, continuous web radio service as well video clips were 100 years old from the Rainbow Warrior incident, youth as on-demand services under different 1906. Every programme or pro- prostitution in Japan, Mormons in themes with additional background gramme sample was supported with Utah. information. Some parts of the YLE an article which connected the mate- Arkki web radio programming was rial with its context in time and place. The category Culture and entertain- also broadcast on FM in Kuopio, Turku In addition, the historic materials were ment is divided in subcategories on: and Lahti. also organised in differentiated the- Musical artists, music clips and Besides about 700 radio programmes matic and topical categories. Besides rock stars (400 hours), YLE Arkki offered also the programmes, the new service

20 Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

contained 2 500 photographs, 2 200 people from past decades as well as add about 20 audio or video clips to articles providing background infor- different phenomena of life have the service. Programmes are selected mation and 250 different thematic offered thematic structures for the based on suggestions from the audi- packages. The web radio service with editors of the archive. ence, weekly voting system and the archive programmes still remains as a Although the number of audio clips in ideas from the archive editors. part of the service, but its role is now the service was at first almost twice as less central. large as the number of video clips, The concept update, new looks and The main purpose of the Living there are now more video than audio services as well as additional publicity Archive has been to make available the clips available in YLE Elävä Arkisto. Re- have now made the Living Archive a common cultural heritage from the ar- cently the service published its 5 000th great success story in Finland. YLE chives to as many Finns as possible video clip, while the number of audio Elävä Arkisto website has about 80 000 using the means of the new technol- clips is now also over 3 000. Altogether visitors in an average week, and the ogy to give the citizens an idea of the the service offers 680 hours of radio pages are loaded about a million times past of the nation through the pro- and 750 hours of television program- every week. The service and its editors grammes and their context. For ming from the past decades. In an have won numerous awards during example big news events, interesting average week, the archive editors may the last two years.

Screenshot 2. France – La Chaîne Parle- mentaire and Public Sénat

France – La Chaîne Parlementaire and of France. The channel broadcasts 24 to ARD’s TV programme and is free of Public Sénat hours from the Assembly followed by ads and sponsorship. Amongst other This is a prime example of the role of 24 hours from the Senate in a pre-ar- things, ARD provides for several multi- PSM in promoting transparency in po- ranged order. On 31 March 2005 the media on-demand services related to litical decision-making. La Chaîne par- channel obtained its own TNT fre- the newscast “Tagesschau”. lementaire is a French public service quency. The channel provides for “Tagesschau” is the oldest and most television network responsible for online videos of the debates, too, popular evening newscast in Germany, broadcasting activity from the Na- which are available in the categories with its 8 o’clock format. It reached an tional Assembly of France and the “Videos relating to the different pro- average of 5.96 million viewers per day Senate of France. It is available grammes”, “Most frequently watched in 2005 and an average of 5.73 million through digital terrestrial television videos” and “What’s currently on”. daily viewers in 2006, which relates to “TNT”. It was created in 1999 on the approximately 20% of market shares 12 request of the National Assembly of Germany – ARD within that period of time (see France. It started by broadcasting ARD offers a specific online service twice a week, Tuesday and Wednes- ( ) which is based on the $ ). Beside audio and day, in the afternoons on France 3. On internet presence of the nine regional 12. ! 8 February 2000, the channel started public service broadcasters. In terms of ! &$ &$ &$ &$ broadcasting activity from the Senate content, the provided offer is related ()) $$ ' .

21 Strategies of public service media as regards promoting a wider democratic participation of individuals

video services, live streams and ani- translating the “Tagesschau” (see more use this possibility, as it allows mated graphics, one of these multime- above) into sign language. This partic- watching the favourite TV programme dia services is an on-demand archive ular service enables deaf people to in appropriate format and good qual- of all “Tagesschau” broadcasts since take an active part in the process of ity. January 2002 ( formation of opinion and guarantees " " "$' ). This them free access to information. The Slovenia – Dedicated parliamentary service allows Internet users to watch Phoenix “flagship” of updated infor- TV channel all “Tagesschau” broadcasts either in mation is the newscast “Der Tag”, The RTV Slovenija Act anticipates “a real time or to watch singular news broadcast from 11 p.m. to midnight special national television channel in- reports selected in advance. Users are every day. The duration of one hour tended to provide live transmissions of enabled to have a review of former guarantees comprehensive and pro- sessions of the National Assembly of events of the day. Furthermore, this found reportages. In the format “Vor the Republic of Slovenia and its offer links a television programme to Ort”, Phoenix broadcasts live inter- working bodies”. This novelty became an on-demand service. It enables users views, press conferences, plenary ses- fully operative only with the beginning to gather customised information in sions, etc. By providing broad of 2008 as immediately after admis- order to fill gaps in knowledge con- information, people become more sion of the Act there were neither tech- cerning former political and social oc- aware of current events and are nical solutions (full equipment with currences. Generally speaking, this enabled to take part in public discus- cameras in all relevant rooms of the service helps to create general knowl- sions. Parliament) nor available frequencies edge and calls peoples attention to (terrestrial frequencies in the state daily news. LATVIA – PSM news and current affairs were already taken). In the meantime programming all the technical problems were solved Germany – Phoenix The news services of the public broad- – the Parliament is fully equipped for Phoenix is a public service television casters actively communicate with this task and on the field of distribu- broadcaster, operated by ARD and their viewers and listeners, inviting tion the public service uses digital fre- ZDF. The legal basis of Phoenix is de- them via internet ( "" quencies and a combination of special termined in the third Amendment to ' ! , Latvian Television and channels on cable networks. the Inter-State Treaty on Broadcasting. " ' " , Latvian Radio) To make the viewing of the work of the Through this Amendment, ARD and to inform them – the broadcasters – by Parliament more familiar and so im- ZDF are permitted to operate two ad- phone or letters about important plicitly also the democratic participa- ditional special interest channels. socio-political events, as well as to tion of individuals it is important that Today, Phoenix is one of the most express their attitudes about the the channel, besides the plenary ses- popular news channels in Germany. In events, personalities and decisions sions of the Parliament, also broad- terms of content, Phoenix’s remit is covered in news. casts all the more important session of stipulated in the principles of pro- Listeners to Latvian Radio have the parliamentary committees where gramming, which lay down that the possibility of listening to all radio pro- most of the parliamentary life unfolds channel should conduce to the forma- grammes on Internet too. Users are and so offers to the interested public a tion of opinions on political issues, able to listen to radio programmes view into the essence of parliamentary background information should be from previous years, starting 1 July work. The scheme of the channel is furnished and even complicated 2004, which are archived (see broader – it summarises and broad- matters shall be presented in a coher- " ' " ). The Latvian casts the sessions of the European Par- ent manner. In addition, Phoenix acts Radio news service website regularly liament. RTV Slovenija was in the as a non-party television broadcaster publishes the latest news, Latvian Tele- framework of EBU in 2006 the initiator which aims to inform in a balanced vision has made a big step towards of a special seminar on which the rep- manner. quality Internet television, in co-opera- resentatives of European public PSM tion with one of the biggest Latvian In- services and representatives of parlia- Therefore, its programme is focused ternet portals, Apollo, creating the mentary channels exchanged their ex- on the coverage of events by report- archive website of Latvian Television periences of covering the work of age, news broadcasts and documenta- (see " """ ). Not only Parliaments and agreed on closer co- tion. By offering uncommented live the most important present pro- operation. They will begin to exchange television coverage of political or grammes are archived, but these pro- longer reports on the most important other events that are important for so- grammes of previous years are also sessions and decisions of national par- ciety, Phoenix provides impartial infor- gradually digitised (starting with the liaments, which will strengthen the mation, which allows spectators to first video recordings from the 1970s). sense of importance of parliamentary form their opinion without the exer- Most importantly, this archiving is democracy and different experiences cise of any (editorial) influence. carried out in high resolution, which (also innovations) through it; it would In addition, Phoenix provides a con- provides a quality picture on a full also influence the way the European comitant service for deaf people by screen monitor. Viewers more and Parliament is covered (and the proce-

22 Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

dure of its elections) so that this could based on audience questions to a earlier popular programme strand also be brought closer to the citizens. panel of politicians and other public called The Great Debate (1999-2003) figures and are held in a different loca- which provided dialogue about news Slovenia – The “Europe in Person!” tion each week. Question Time Extra items especially focused on civic radio programme extends the coverage of the debate on issues. The Today version features an BBC News 24, with discussion of view- issue of the day, typically related to na- Radio Slovenia offers a useful example ers’ comments sent in by e-mail and tional or international political con- that illustrates PSM effort to provide a text. A children’s version of Question cerns that effect Britain. The online site distinctive service within traditional Time has also been broadcast. includes an archive of past issues and broadcast media and not only in the an overview of the issue currently new media context. In the Europe in The BBC’s long-running programme under debate. This is a typical PSM Person! programme, the producers Newsround is the only news pro- service. Also increasingly typical the search out people across Europe who gramme aimed at, and featuring news Today case offers participants oppor- give voice and personality to the rich and current issues of interest to, chil- tunity to influence the radio pro- variety and ordinariness of life in dren. As a late afternoon, post-school gramme’s substance and approach via Europe today. The programme works programme, it has in the past reported their questions and input, and by sug- to lower boundaries in perceptions by a number of breaking news stories gesting issues for future programmes. cross borders in representation. Much ahead of the main evening news bulle- Such examples could also be treated emphasis in the 12- to 15-minute fea- tins. More recently, the Newsround under the Collaboration category. This tures is keyed to the person’s views on programme “The Wrong Trainers”, is important to observe because much Europe and ideas about different Euro- dealing with child poverty, won an RTS that PSM is doing is multi-dimensional pean societies. Award and, according to the BBC, trig- gered national debate. – it is explicitly cross-platform and cross-genre. Finally, although this United Kingdom – News and current Digital developments have allowed example links PSM radio and internet, affairs programming broadcasters to broadcast more news the aspect is generalisable to televi- (for example, BBC News 24, a 24-hour All the United Kingdom’s public sion programming where similar news and current affairs channel), as service broadcasters carry news and formats are common, as well. well as develop specific channels fo- current affairs programmes, and the The Today website offers a large cussing on matters of public interest majority of the United Kingdom’s pop- variety of audio interviews audio re- and concern. BBC Parliament is dedi- ulation gets its news from a PSB serv- ports, podcasts and contact opportu- cated to the coverage of politics and ice. According to Ofcom research, nities relating to both current political regularly broadcasts live or recorded approximately half of consumers con- affairs and historical events of national coverage from the United Kingdom sider that news programmes make or international importance. The Parliament, the Scottish Parliament them feel part of the democratic proc- online site is structured in the follow- and the Welsh and Northern Ireland ess. As well as the national news pro- ing category groups: Assemblies. It also has a programme grammes, both the BBC and ITV focussing on developments in the Today : offers the main current provide regular regional news bulle- European Union: The Record Europe . topics at a glance. Updated reports, in- tins; and the BBC also has a network of terviews and news of the day are pre- local radio stations providing local Most television and radio program- sented in a well arranged manner. news and discussion of national, re- ming in the United Kingdom is now gional and local issues. supported by the broadcasters’ web- Listen Again : Lists audio clips sites, which provide further informa- from the most recent programmes Aside from the news bulletins them- tion on issues covered in the emitted by Radio 4. This way, custom- selves, long-running national pro- programmes as well as dealing with ers can listen again to programmes grammes dealing with politics and issues not featured, and also allow which have been emitted 7 days back. matters of public interest include users to submit their own comments Moreover, there’s also an Audio Ar- Today (Radio 4 breakfast-time pro- on current stories and to suggest chive where audio files have been gramme that has been running for topics. saved from 2003 on. more than 50 years and is almost an institution in its own right), Newsnight Latest Reports : Pictures and (BBC2 current affairs programme United Kingdom – BBC – “Today” audio files from reports are available in broadcast on weekday evenings), The website the categories Politics, Science and Na- Week in Westminster (Radio 4 weekly Radio 4, the BBC’s national talk and ture, Arts & Culture, International, Mis- political review), Panorama (BBC1’s current affairs radio channel in the cellaneous; flagship investigative documentary se- United Kingdom, produces the Today Interview of the week : You can ries), Dispatches (Channel 4 investiga- programme which is a good example, listen to interviews with political and tive documentary series), Any in this case linking radio and the inter- social decision makers such as Kofi Questions (Radio 4) and Question Time net ( # ). The Annan (on how urgently Africa needs (BBC1). The latter two programmes are Today website is the legacy of an to solve the Kenyan Crisis), Culture

23 Strategies of public service media as regards promoting a wider democratic participation of individuals

Screenshot 3. United Kingdom – BBC Radio 4 – The Today programme

Secretary Andy Burnham (on plans to ists start discussions based around the date. The answers are published give every school child five hours of big issues of the day and then corpo- online. “high quality culture” per week) and rate the customer’s views into future Minister Liam Byrne and Conservative programmes. A typical discussion Denmark – DR Damian Green (debating the validity of topic is for example: “Should school There are numerous examples of pro- Britain adopting Australian immigra- leavers be made to pledge allegiance grammes and services aimed at stimu- tion practices) to Queen and country at citizenship lating a wider democratic participation ceremonies?” About Today : Offers video docu- and there is a long tradition in DR for mentaries chronicling “A Day In The Contact Today : Offers the oppor- involving citizens in programming – Life of Today” and showing the pre- tunity to text the Today team com- not only as vox-pop but as sources of senters of the Today programme in ments, complaints, etc. knowledge, experience and opinions. front of the camera Worthy of mention are the daily radio Today at 50 : Offers a journey FACILITATION programme “Poul Friis” on P1 with through the ages by letting famous phone-in debates on current topics, people describe their memories about Austria – ORF public debates combining radio or TV great moments in history, as reported ORF has an online initiative where shows with internet debate and “Dog- by Today . users can post their most relevant world”, where young people between Message Board : Gives viewers questions to the main candidates of 11 and 17 years of age are learning de- and listeners a chance to participate in the principal political parties. The ORF mocracy through playing games. discussions and debates on what’s cur- team then selects 20 most interesting The DR internet portal is rently in the news. Every day, journal- questions addressed to each candi- an important instrument for public

24 Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

Screenshot 4. Austria – ORF

debates on democratic and political Every Thursday evening the pro- latest elections for the Folketing in issues. For essential topics DR creates gramme “Debatten” on TV channel October 2007, DR made a concerted special debate sites with access to pro- DR2 has a live political debate to focus effort to stimulate interest and partici- gramme material – radio and TV pro- on a topical issue and the debate con- pation in the election for everybody in grammes, news-clips etc on demand tinues on dr.dk where it can go on for a Denmark. Through the overall slogan or as podcasts – links to additional long period and where people who “Understanding your choice” (“Gør det background material and invites the were not able to watch the pro- noget valget er til at forstå” ), DR’s cover- internet users to participate. Examples gramme on air can get it on-demand age of the election was aimed at on such debate topics are the Danish or as a podcast. making the election understandable and relevant for everybody. As a part engagement in the war in Iraq, General coverage of parliamentary work Muslims in Denmark and how you can of this DR launched a number of initia- To make the political debates available influence public planning of public tives specifically aimed at promoting a to everybody and to stimulate interest areas in your town. wider democratic participation. These in the political life in Denmark, DR included: transmits during daytime live from For several years DR had a weekly TV every assembly and debate from the On the day the election was programme with a 30-minute inter- Danish parliament (the Folketing) on called DR launched a major campaign view with a minister, politician or other one of its main channels (DR2). to allow the Danes to express their influential person. After the 30 opinions, upon which were the most minutes the discussion continued as a Specific actions in pre-election phases important issues in this election. View- radio programme, where the viewers – DR’s role when there is a democratic ers, listeners and users were invited to now listeners – could phone-in and election is one example on how DR cast vote on 10-15 issues and to con- table their ideas and comments and tries to promote a wider democratic tribute with their own issues. During discuss with the guest in the studio. interest and participation. During the the first 2 days more than 40,000 votes

25 Strategies of public service media as regards promoting a wider democratic participation of individuals

Screenshot 5. Denmark – DR

were cast and the results fed into DR’s big parties youth organisation were stand in relation to them. Another general coverage of the election. P4 brought together for 24 hours to solve game establishes a dilemma and two the most popular radio station in Den- the central political issues and find a players work through the implica- mark initiated a number of local de- common vision for future Danish soci- tions. Other games encourage users to bates where the central issues were ety. The event was covered around the analyse political spin in publicity clips brought to life through local cases and clock through webcam, DR’s News and statements. DR is currently devel- discussed by local candidates and au- Channel DR Update and in news pro- oping similar games related to coming dience. The debates were broadcast grammes on radio and television. parliamentary elections. live on P4. The most advanced and compre- “The battle between values” Finland – YLE – Vaalikone (Election Engine) 13 hensive overview in Denmark of all Another unique example provided by candidates in the election was estab- DR, which has been developing online Election Engine in its current form can lished by DR and made available games with a distinctly public service be described as a Finnish invention online on dr.dk. The overview was fully character: in 2006 DR hosted a compe- made in YLE. The election engine searchable and had a number of fea- tition and the top four winners are enables citizens to discover which can- tures designed to make it easy for eve- available at didates most closely represent their rybody to compare opinions and * (pictured above, Screen- personal views and interests. Candi- political views and select their favour- shot 5). Værdikampen (“The battle dates fill out a questionnaire which ite candidate. between values”) is related to a contro- users later fill out as well and then click In 24 hours for Denmark (“Et døgn versial political issue in Denmark (the on a dialogue button. The “machine”, for Danmark” ) was an initiative aimed right-wing government’s sceptical po- at promoting interest in politics sition towards progressive values). 13. # " $ +" ; $$ +$ ; '# among the younger part of the popu- Players learn what the values are ' $ + $ $ + lation. Six leading politicians from the about how where they personally )))$

26 Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

Screenshot 6. YLE’s Election Engine, Finland

which is a software programme, com- number of election engine users was depth analysis of topics beyond news. pares the user’s answers to each of the almost 50%. There are specials on “climate change”, candidates standing for election and Although the election engine was in- ; “cultural diver- reveals the ‘distance’ between the user troduced in Finland by YLE, the sity and migration”, and the candidates. The site offered by problem is that the company does not ; “Europe today” the Finnish PSM operator, YLE, for the have any special rights to this kind of ; and “education”, last parliamentary election is a good service. After nine “engine-assisted” – to name a few. All specials can example of this type of Facilitation: elections in Finland, there are now so be accessed via the right-hand naviga- # " $ +" . many election engines available on tion bar. A striking example is the re- By now, practically all other major the web that the whole idea may prob- cently-launched special on world media outlets in Finland have also ably soon suffer a sort of inflation and religions at . created their own election engines, related fatigue among users – espe- With its five parts, on Christianity, which means that if candidates now cially when different engines give you Islam, Judaism, Buddhism and Hindu- want to be available in all main elec- different results. The YLE election ism, the special provides a wealth of tion engines, they must answer several engine can remain important only as insights into the beliefs and concepts different sets of questions in advance. long as citizens find it better and more of each of the religions. It also takes a According to a recent study regarding trustworthy than the other options. close look at the daily lives of believers election engines, about 25% of the and religious groups in North Rhine people who voted in the Finnish par- Germany – ARD (NDR and WDR) Westphalia with their specific situation liamentary elections in 2003 had used In addition to current affairs focussing and also their conflicts. The range of at least one election engine in order to on North-Rhine Westphalia, WDR.de on-demand audios and videos from find a suitable candidate to vote for. produces online specials covering many of WDR’s programmes and chan- Among the younger people the background stories and providing in- nels makes this special on world reli-

27 Strategies of public service media as regards promoting a wider democratic participation of individuals

gions a true multimedia experience. level, NDR television informed its audi- WDR also organises, off-air events in There is also a content area specifically ence in even more detail by splitting the public sphere, e.g. “ Hallo Ü-Wagen ” geared towards children. Like all WDR. its prime-time programme geographi- (WDR 5), which invite citizens/the au- de specials, cally into different “windows”. dience to public places (squares, offers various participatory elements. streets, etc.) to become involved in dis- WDR encourages and invites users to To encourage citizens to contribute cussions, which – complemented by communicate with editors and among and participate in political and societal the opinions of experts – are broadcast each other. Many of the current debates and developments, NDR tele- live. reports offer a guestbook feature and vision offers a specific programme make it possible to comment on called “Kühn & Kollegen” which invites WDR Radio provides, last but not least, events. As an example of the focus on citizens to voice their interests and ac- off-air events especially for the young- religious events taking place in the re- tively supports citizens in defending est listeners. They take place in schools spective region, NDR covered compre- and maintaining their rights. Further or pre-schools and are connected to hensively on television, radio and on- information is available at the programmes “Lilipuz macht Schule” , line the 97th German day of Catholics "& & ,,*-.$)$, / ( ! ! in Osnabrück . Further information is ( . ) and “Bärenbude-Klassen- zauber ” ( available at: The radio programmes of WDR con- 3 ' ). $ tribute in various forms to the process During the general election in 2005 in of forming political opinions, e.g. via Germany – ZDF Germany wdr.de participated in the interactive call-in programmes like the joint election special of ARD, which weekly “ 1LIVE-Sektor” ( 012% ) In advance of the elections to the was hosted on the main news site dedicated especially to the young au- German Bundestag, ZDF offered a pro- , named after the dience and listeners, the weekly “ WDR gramme called “logo! Kinderreporter main evening news bulletin “Tages- 5 Tagesgespräch ” and the weekly “ WDR interviewen Spitzenpolitiker” (see schau” . In addition to normal election 2 Arena” which is partly accompanied ! "$ coverage, with polls, demographics, by off-air events. These programmes ). This pro- profiles of the candidates and parties, mainly reflect current political and so- gramme was especially aimed at chil- the main election issues, etc., the site cietal subjects, while the programme dren and allowed them to put also offered two different yet corre- “WDR 5 LebensArt” focuses on practical questions to politicians. Although the sponding blogs. One was the “profes- aspects of daily service and “ WDR targeted audience of this programme sional” blog, in which political Funkhaus Walraffplatz” specifically (for minors) was not entitled to vote, correspondents of the public service concerns media-related issues. There is political understanding and interest network ARD offered their views and also a specific media-related pro- thereby was already raised at an early analysis of events. The other one was gramme on television, offered by NDR age. Today, this format has moved to the citizens’ blog (“ Bürgerblog” ). Five called “ Zapp ”, which reflects critically KiKA, a special interest channel for chil- users of the wdr.de home page from on the role of the media within the dren, operated by ZDF. This is another different parts of Germany, with differ- process of opinion-shaping. Further in- example for the dedicated strategy ent backgrounds were selected to formation is available at that German public service media op- cover the election campaign and to "& & ,,*-.$, 3 / erators pursue to promote and facili- offer their views regarding the matters ( . tate democratic participation of on which politicians and media were WDR Radio follows with “ Hörspiel plus” , individuals. focussing. an unconventional approach to inter- The coverage of elections and election activity in the form of radio plays Latvia – Public Service Television and campaigns also constitutes a focus for (radio drama), dedicated to a current Radio various offers on-line of, for instance, political or societal debate, comple- Another relevant example of game- NDR. A wide variety of chats with poli- mented by a call-in-programme. oriented play in PSM efforts to facili- ticians, of polls and surveys, specials Another interactive and multimedia tate insight and enlightenment is and dossiers are important elements programme is offered daily by NDR Latvia’s “Latvijas Televizija” ( of content online. radio (“ NDR 1 Radio MV Klartext” ), "" ). Topical questions are In addition, NDR television and NDR which discusses topics with listeners in posed online and people participate in radio offer vast, detailed coverage and the north-eastern Land of Mecklen- offering answers. The results are as- background information concerning burg-Vorpommern . This radio talk show sessed and provided as summary in- elections on the European, federal, offers listeners the possibility not only formation. The answers open new state and regional levels. The aim is to to voice their opinions as in a call-in opportunities for discovery. One raise political awareness and interest programme but also to discuss matters recent topical question was “what kind in democratic participation. As regards among each other, on air, online or by of Latvia do you want to live in 25 the recent election on the regional telephone. years from now?”

28 Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

Screenshot 7. Latvia – Public Service Tele- vision and Radio

Programmes in pre-election periods ticipate in the discussion and ask ques- However, irrespective of the individual tions of their concern. But passiveness, these pre-election pro- From periodical programmes, which unfortunately it can’t be said that lot of grammes are popular among viewers invite listeners and viewers to partici- citizens strive to use this possibility. In and listeners. Their ratings are rather pate actively in the process of express- fact, the programme makers are high. ing opinions, the pre-election mostly forced to ask non-governmen- programmes must be mentioned, tal organisations of the respective Netherlands – Teleac/NOT – Citizen- which are produced before the local region, regional media and already fa- ship Assimilation Test government elections, as well as miliar activists for attendance, in order Latvian Parliament and European Par- to gather substantial number of partic- A further example is the Citizenship liament elections. Mostly, these broad- ipants in the show. It is difficult to say Assimilation Test that was a national casts are discussion programmes, of what the reason for this low activity is. television show produced by Teleac/ which the basis is formed by discus- Most likely, there is a certain distance NOT, the educational public broad- sions and former and present politi- between the “ordinary” population casting foundation in the Nether- cians’ answers to questions of national and governing circles. Sociological re- lands. People participated at home via importance. Sometimes, these discus- searches also reflect in whom people the Internet in taking the national test sions take place in the studio with par- trust. Unfortunately, the politicians, immigrants must pass as a require- ticipation of journalists, experts and parliament members and government ment for Dutch citizenship ( non-governmental organisations, members are very low on this scale. ). Dutch citizens sometimes they take place outside the There is an overall informal opinion got a clear idea of what the govern- studio, are live or recorded. When dis- that, whomever citizens elect government has defined as essential to cussions take place on outside locali- ment, no improvements can be ex- become a citizen, and with what nec- ties, usually the local people are pected as the governing forces only essary understanding of Dutch values invited. Thus, they are enabled to par- care for their parties and themselves. and culture. The test was so popular

29 Strategies of public service media as regards promoting a wider democratic participation of individuals

Screenshot 8. Citizenship Assimilation Test, the Netherlands

that more than a million visitors took it Dutchmen: Is Victoria Koblenko better About the Test : Tells about the in 2005. The results raised so much re- nationalised than Jacques d’Ancona?” background of immigration in general, action that Teleac/NOT forwarded the There’s also a link provided to an immi- the TV game in 2005, the candidates thousands of responses to the respon- gration site where immigrants can get and the experts that were deciding sible ministry and have kept the site information about the Netherlands, and gives information about the ques- live. The interesting thing is that a ma- the test and the application process. tionnaire. Provides a link to “The group jority of Dutch participants failed to of avowed Dutchmen”, a site that lists pass. The program and the site gener- Do the Test : the visitor can go the personal histories of different ated public debate on the meaning straight to the test and fill in the online Dutch people with immigration back- and usefulness of this type of exam. form. ground. The Dutch educational public broad- Do the Test by TV : In 2005, the Links : Provides links to immigra- casting foundation Teleac/NOT pro- test was done publicly via TV and in- tion-relevant sites. vides visitors with the possibility to ternet. The results are published at this take the test immigrants must pass as site. Norway – NRK – The Election Game: requirement for Dutch citizenship. The How to conduct a County Council site has the following structure: On TV : Tells about the television One of the articles in the NRK Code of show that took place in 2005, con- Conduct states: Home : The online test is pre- fronting some candidates on the ques- “NRK shall be instrumental in promoting public sented and differences to the actual tion “who is better integrated?” test are explained. Above, two pictures debate and assist the entire population to are opposed: one of a “real” Dutch Give your opinion : Visitors are acquire sufficient information to play an active person who was born in the Nether- encouraged to give their comments role in democratic processes.” lands and one of an immigrant. The on the questionnaire, the questions A game on NRK’s website ( corresponding text is saying: “Avowed and the whole campaign. ) is The Election Game, which was

30 Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

Screenshot 9. The Election Game on NRK’s website, Norway

published in connection with the million NKR as starting capital. There the player’s political party. Last but not County Council elections in 2007. are 20 000 inhabitants when the game least, the wages for the player and The players are invited to act as a poli- starts, and the objective is to increase other politicians on the County tician and to conduct a County Coun- the number of inhabitants as much as Council have to be paid. cil. Each player must choose to possible. The challenge is to spend the The game covers a four-year period – represent a political party. The political money in the best possible way on the same as an election term – and goals are presented for the different schools, roads, culture and sport, every year the player has to decide parties. The player then receives 100 nursing homes, and the other aims of how to spend the money.

Screenshot 10. The Asylum Game on NRK’s website, Norway

31 Strategies of public service media as regards promoting a wider democratic participation of individuals

Norway – NRK: The Asylum Game as respecting democratic values and The problems include; how to leave human rights. The players are pre- their home country when this is not On its website NRK has sented with facts about why persons legal. How to enter Europe on the road The Asylum Game . Players are invited have to flee from their home country to Norway, how to travel, how to ap- to choose a citizen of another country and on the way players have to solve a proach the authorities and what the outside Europe, preferably from Asia or number of problems as they obtain conditions are for the right of asylum. Africa. The goal is to obtain asylum in more information about the countries Norway – a country which is regarded they enter on the journey to Norway.

Screenshot 11. Norway – NRK: The Local Market Place

Norway – NRK: The Local Market Place magazines. These programmes cover The exchange is financed by Eurovi- The Local Market Place is a site on each current affairs events from the young sion members (active members of the of NRK’s regional websites. Visitors are person’s perspective, in language that EBU). Associate members and other invited to comment on and debate the children can understand. By clarifying television broadcasters may gain regional offer of programmes, local the context of and background to access on a contractual basis. news, cases and events. They are also world events, children are given the invited to upload pictures and videos tools to understand the news that they COLLABORATION as part of, or in addition to, the text. are exposed to through the media. The main objective is to ensure that chil- Finland – YLE Extrem Web commu- Slovenia – RTV – Data mining dren are not unarmed in a society of nity 14 communication where information A different angle is evident in an would in any case reach them, and to The Swedish-speaking youth radio online service offered by Slovenia’s help them to understand the concepts channel of YLE, YLE Radio Extrem RTV – Odprti kop 4" of “good news” and “bad news” in their (X3M) opened a new kind of meeting ). Translated “Data mining”, the vision of the world. place for its audience on the Internet service enables each individual user to in May 2004. It is a website where investigate topics of personal interest Followed by numerous children, and content is mainly created and gener- to learn about issues in the news or rel- often used in schools to help pupils ated by the users of the website. Par- evant to the public sphere. This is es- understand current affairs, these pro- ticipation requires registration and sentially a specialised search engine grammes are also watched by adults, obedience to the rules of the commu- programme that functions on the nity. Within less than a year over 5 000 who appreciate the clear, simple ex- basis of closed captioning subtitles young people in the Swedish-speak- planations. and video streams. ing language minority in Finland registered for membership in this web The YNE is part of the Eurovision News community. The popularity of the EBU – Youth News Exchange Exchange (EVN), which permits EBU service exceeded all the original ex- The EBU Youth News Exchange is a members to exchange news items on daily multilateral exchange of pro- a reciprocal basis. Members can review 14. # ; # # " gramme items for children’s news offers daily at " . $ " .

32 Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

Screenshot 12. Slovenia – RTV – Data mining

pectations and today the community programming for young people in YLE, demonstration of young people in has over 25 000 members. so the users – the members of the front of YLE headquarters in Helsinki. community – can give ideas and com- The result was that another channel Most of the users are young people municate directly with the people re- was closed down instead of YLE between the age of 14 and 25, but sponsible for youth programming Extrem. 15 there are also some older users. There both in radio and TV. The system works are many ways to participate in the also the other way round, to provide online community life: you can have France-Germany – ARTE – an open an additional channel to inform discussions in different clubs with platform members about interesting YLE pro- other users about different subjects or gramming. A fascinating development is under- you may for example write your own way at ARTE, the Franco-German PSM web diary. One of the purposes is to It is obvious that this direct connection operator (pictured below). In ARTE offer young people an anonymous dis- with the audience helped YLE Extrem radio (www.arteradio.com) this PSM cussion forum where you can talk also to survive and continue its services on provider uses the creative commons li- about sensitive and difficult issues. But FM in November 2007. At that time the censing approach to all the content. YLE Extrem is of course also trying to current CEO of YLE, Mikael Jungner Especially interesting is the open plat- increase audience loyalty and commit- had announced that the company form nature of the enterprise. Listeners ment to YLE services via this network would probably close down the are producers submitting material platform. present analogue radio services of YLE which is posted on the site. ARTE offers In addition, the web community pro- Extrem on FM and move part of the the space and the contents are posted vides a direct connection between the services into the web in order to save programme-makers and their Swedish money. This plan was cancelled after 15. # & / ( $$ ; speaking youth audience. YLE Extrem loud public outcry from both the 5 67 6% 6898:898:# is responsible for all Swedish-speaking public and the politicians – and even a )$$)$ .

33 Strategies of public service media as regards promoting a wider democratic participation of individuals

Screenshot 13. France-Germany – ARTE – an open platform

with the ambition of building a com- Up-to-date: lists every submitted Grimme-Preis in the category: “Infor- munity partnership between user- material by date of issue for the last mation und Kultur”). One of the speci- created content producers and ARTE four years alities of the format is the so-called radio’s own work and production. Reports: lists audio files themati- “Hart aber fair Faktencheck”, a special Amazingly the operator is able to do cally classified in the following catego- online service, offered by the editorial this with 3.5 employees and a reported ries: staff of the show. Within the scope of this Faktencheck, autonomous experts budget of €175 000 annually (Gire, Personal and intimate reports examine the degree of truth/correct- 2007). Reports about society and every- ness of comments that were made day life during the telecast. These examina- ARTE Radio is a web on-demand radio. tions are available on the Internet one It’s operated by the French part of the Miscellaneous day after the show was screened. Franco-German PSM. It offers a huge Artistic productions. These expert’s examinations are classi- amount of reports and audio files, fied into three categories depending strictly non-commercial and without Germany – ARD on the validity of a comment: a green advertisement. The internet radio does The last example offered from the plus-sign means that the claim made not offer any music or commentary range of ARD activities is the “Hart during the telecast was totally correct; but rather special sounds, composi- aber fair Faktencheck”. “Hart aber fair” a yellow circle implies that the claim tions, montages, mixes. The produc- is a political talk show, which moved, was partly correct and a red minus- tions are usually made by the listeners because of its success, from WDR tele- sign indicates a false assertion. Al- themselves (sometimes in collabora- vision (WDR means Westdeutscher though the classification in only three tion with the Radio personnel) and Rundfunk Köln ; which is one of the nine categories sometimes seems to be too then, after a selection process, put German regional public service broad- cursorily and comments might be online. Every production accepted and casters that together form the ARD) to taken out of their context, it allows published will be paid by the radio. the ARD programme at its peak time. users to get a general overview of The short audio files usually concern The show is one of the most popular claims that had been made during the telecast. Furthermore, interested topics of everyday life, partnership, formats dealing with political issues in Germany. It reaches up to 4.72 million groups are enabled to get an idea of politics, the world, imagination and lit- viewers on average per broadcast the credibility of participants in the erature and are supposed to be funny, which relates to 18.5% of market share. discussion round and therefore this in- emotional, educative or impish. The Because of its enormous popularity, creases transparency of political issues. audio files are always presented with the show was awarded several prizes In addition, because panel members the author’s name, the category of the (e.g. in 2003: “Deutscher Fernsehpreis” know about this online service being creation, the publication time and a in the category: “beste Informations- offered, they will have a clear incentive short description about the file’s con- sendung”; in 2005: Hanns-Joachim- to answer in all conscience ( tent. The site has the following struc- Friedrichs-Preis für Fernsehjournalis- & & ture: mus, and in the same year: Adolf- & ) ' ).

34 Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

Furthermore, an ARD study group In the programme “SeMS”, viewers are cycle of programmes is produced in comes up with concepts concerning enabled to discuss online via SMS, to quite an up-to-date form, trying to new procedures for topic selection of express their opinion about the theme change the public opinion about documentation. This helps to create of the programme, as well as about culture as something hard, serious and even more target-group-oriented doc- any other theme of their interest. sometimes boring. The form of the umentation and therefore increases Needless to say, several problems arise programmes is subordinated to this in- public interest in common public con- in this form of communication. The tention: By the use of online voting cerns. biggest problem seems to be that it is about the theme of the day, public very difficult to keep the young people service media operators try to identify Germany – ZDF to a certain discussion, sustained by the dominating opinion of society on programme producers. Mostly these particular cultural questions. The pro- Beside traditional broadcasting offers, chats, regardless of the programme gramme regularly takes part in Latvian ZDF provides for several online serv- theme, are used for making acquaint- Television internet website forum (see ices related to its broadcasting pro- ances online. Such an environment "" ) urging the gramme. Inter alia, ZDF operates even attracts criminally-minded society to discuss different controver- several chats and blogs, which present people and paedophiles. The simplest sial themes, for example: “Do we need a platform for interested groups to way to combat these phenomena is the Days of Art?”, “What is the amount discuss about daily updated news and the censorship of SMS, which really is you would be ready to donate to the matters (see ! carried out, in order to avoid rudeness 90 th anniversary of the country?”, “Why ;<= ,+$, , ).The and announcements of a criminal do you like or don’t like the Latvian chats offered are particularly popular, character. One thing is to forbid spe- currency?”, “Should the cinema financ- since they facilitate public exchange of cific SMS, but even more important is ing from state budget be increased?”. ideas. This popularity can also be illus- to gradually educate the young indi- These questions are directly oriented trated by the number of people, taking vidual to become socially active and towards active participation of people part in the ZDF chats and blogs: on 15 more responsible. Although the form in socially important questions. They April 2008 there were 356 853 of the programme is very attractive urge individuals on using his or her members registered and 1 254 587 and it is very popular among its target democratic rights, with his or her comments in the discussion forums audience, the programme producers opinion indirectly influencing the ! ;<= $ , must strive in order to focus youth process of decision making in the +$, $, / ( . In order to chats on the theme, which is discussed country. avoid the appearance of a non-regu- in the studio during the programme. lated area, ZDF defined binding guide- The programme is mainly focussed on Finally, different entertainment and lines for the use of its chats and blogs youth themes, which are music, style, music programmes should be men- and imposed data privacy regulations friendship, sex, psychological prob- tioned, in which viewers and listeners ( ! ;<= , lems, sports, etc. are enabled not only to participate in +$,$) ), ); for example, com- evaluation of different games and ments must be made in English or However, SMS is not the only interac- competitions (for example the Eurovi- German, chats and blogs are based on tive link between “SeMS” and its audi- sion Song Contest), but also to influ- the principle of democracy, users must ence. The programme provides for its ence the programmes’ content directly respect freedom of expression, etc. own website (see "" ), by choosing certain contents (for ex- Aside, chats are supervised by ZDF in where one can find a lot of additional ample, definite pieces of music on Sat- order to guarantee a fair and proper information about the programme urday classical music concert on discussion. This service, operated by themes and its presenters. On the Latvian Radio 3 Classic channel, or ZDF, allows users to form a public website, young people are invited to choosing a week-end night film or opinion, in particular by enhancing the send their questions, which are an- theatre show on Latvian Television). exchange of opinions and it facilitates swered during the next programmes. These activities are based on the fulfil- the self-critical examination of the Mostly the questions are very topical ment of audiences wishes, but at the own point of view, which leads to and quite open. This helps to figure same time it is the way, how to gradu- more objectivity. out young people’s loyalty and their ally involve usually unresponsive desire to find answers to significant viewers and listeners in programmes. Latvia – Public Service Television and questions. Radio Cultural and entertainment pro- Participation in award granting grammes with high level of interactivity Youth programmes Annually, Latvian Television organises In Latvian Television, one of the pio- The Latvian Television programme voting and awards its best pro- neers of interactivity is daily youth pro- “100 grams of culture” must also be grammes. Although it is an inside ac- gramme “SeMS”. Here, the notion SMS mentioned in more detail. Although tivity, in recent years, viewers’ opinion is already encoded in the title of the the culture theme in Latvian media is is given a greater role. Now, viewers programme. of a rather conservative nature, this are participating in the process of

35 Strategies of public service media as regards promoting a wider democratic participation of individuals

nomination, as well as in the evalua- also supervisory bodies in place with motivating for mutual contacts but tion of the nominees. the majority of members coming from also providing a better understanding these ethnic minorities) but also that and respect for the nations and life In fact, almost all the main prizes are all these programmes are dubbed or along the border. In this context, there awarded on the basis of viewers’ votes. subtitled in the generally spoken is also the cross-border radio and TV Such a possibility of annual evaluation Slovene language thus providing in- project by neighbouring countries (re- identifies the programmes most hon- formation for the majority population gions) Slovenia, Austria, Italy, the oured by viewers and shows the pro- and fostering understanding and in- Italian part of Switzerland, Croatia, fessionals behind the programmes. At teraction. Bavaria and Hungary called Alps- the same time, it is a democratic in- Danube-Adria which in 2007 cele- strument, which enables the society to It needs to be said that there are also brated its remarkable 25th anniversary express their opinion about their members of other neighbouring of continuous co-operation thus being public medium. nations living in Slovenia (Serbs, considered the longest-running Croatians, Bosnians, Macedonian, Al- project of cross-border cooperation in Slovenia – Public Service Radio and banians), mostly from nations of the the field of public service broadcasting Television former common federal state Yugosla- in Europe. This programme brings into via. Important for their media informa- life democratic participation all of the tion is the free access to radio and TV people across this historically turbu- programmes from their now new lent part of Europe. Nations and cul- countries of origin provided by the tures from this area which have been Slovene cable network operators. divided in times of the iron curtain Plans regarding the so-called open thus belonging to different social programmes in cable systems are systems and social orders started to under way which would also allow establish ties way ahead of the funda- their mutual communication and mental historic changes in Europe. sharing information within the terri- tory of Slovenia and with the most of Multimedia centre (MMC) is the new population. media department within public service broadcaster RTV Slovenija and Specific programmes catering for the Worth mentioning also is the particu- has been created to develop new needs of ethnic groups and Slovenes lar or specific feature of Slovene broad- media. The department provides ap- living abroad casting regarding cross-border plications and possibilities that permit RTV provides for special broadcast territories. Just as there are ethnical user interaction and participation offers dedicated to autochthonous minorities in Slovenia as a result of through various forms of expression – and ethnical minorities. The pro- borders created in the course of his- text, pictures, audio and video; as crea- grammes concerning protection of mi- tory, Slovenia also has its own minority tors or commentators, as writers or norities are produced regardless of the in neighbouring countries; namely photographers, etc. Some of this user- relatively small number of people Austria, Italy, Hungary and Croatia. The generated content (UGC) is used on watching them in relation to the total Slovene minorities in all of these coun- special web pages, dedicated to UGC, number of population. The Italian na- tries are living a full and active life. In and some of it is part of official edito- tional community (the programmes all of these countries (in some more, in rial pages and even radio and televi- are broadcast from the regional studio others less) they also have access to sion shows. The UGC is selected on the in Koper/Capodistria) can be proud of media or operate media of their own. basis of editorial criteria and then its 24-hour radio and 10-hour TV pro- The public service broadcaster in Slov- added to the official web pages. Parts gramme in Italian language (every enia (RTV SLO) brings periodic radio of it are broadcast in the Infochannel day), while the Hungarian minority has and TV programmes in Slovene lan- (split-screen application), as well as in a new and modern broadcasting guage from Italy, Austria and Hungary. various TV shows. centre in Lendava/Lendvai producing A model of excellent collaboration is A web portal makes it possible for 18 hours of radio programme per day the cooperation between the regional users to: and a daily 60 minutes TV broadcast. centres of RTV Slovenia in Koper/Ca- Apart from that, there is also a weekly Comment and/or rate news and podistria and the RAI regional centre radio and TV programme for the Roma Television/Radio shows on the web for the region of Friuli-Venezia Giulia ethnical minority (30 minutes once a (RAI 3), which every day on its regional Write news, which is published in week). programmes directly rebroadcasts a “your news” section. Some parts are A special feature of this programme news programmes in the Italian and later selected by editors and added to offer is that it does not only consist of Slovene language (two each every regular news sections programmes prepared by members of day) thus building not only the atmos- Chat with interesting people, these minorities as subjects (although phere of cohabitation, raising the such as sport champions, celebrities for all of these programmes there are mutual level of provided information, and politicians.

36 Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

Submit UGC, such as blogs, forum to teenage girls. It aims to create a dis- from people around the world. Depict- videos, audio, etc., which may also be cussion forum built around interactiv- ing people living in poor conditions published on teletext or on the edito- ity and freedom of speech, a place supplied by users, pictures taken by rial parts of the website or even broad- where young people can communi- mobile phone, etc. Raising awareness cast on radio or television. cate and express their opinion, but about living conditions in other coun- also ask questions to experts concern- tries and at the same time strengthening sex, love, relationships, parental is- ing the BBC’s journalism by integrating sues, etc. UGC. Largest venture ever in relation to Live from Ethiopia – UGC project the governmental elections in autumn – reporting live from Ethiopia without 2006. a fixed agenda. Readers’ questions Ring P1 (call P1) – a forum where submitted by e-mail set the agenda, people can call in to the radio pro- and the villagers tell their stories di- gramme and have their say about vari- rect, using only simple equipment – ous topics. This programme, laptop, digital camera and a satellite transmitted on a national level, has link. At the same time a BBC reporter been given great attention and a web- covered the event for BBC Television The Media centre also offers inter- site has been created in connection and the World Service – the BBC is active services such as quizzes and sur- with the programme. making its journalism more interac- veys, and audio and video content is tive. accessible both live and on-demand. Users can also comment on television United Kingdom – BBC United Kingdom – the BBC – Creative and radio shows. According to the Superbrands Web Archive Survey, the BBC is the most trusted Sweden – Public Service Radio brand on the web. Trusted brands A related example of a PSM web 2.0 which stand out on the online market production in association with televi- From a diversity perspective, SR offers will be more than ever in demand in sion and using archive material, was an arena on the web for radio broad- the next stage of web development. In the BBC’s Creative Archive project in casting free from advertising and inde- an attempt to stay relevant and to 2006 ( " " ). Al- pendent of political and economic reach out to Internet users with its though assessment appears to still be influence. It has a brand with high public service values, the BBC has underway, the thrust of the project credibility and strives to offer a demo- launched a range of new interactive was fascinating as participants could cratic forum both online and through services and projects, such as: access archived BBC materials specifi- its radio transmissions. Examples of cally designated for their use in per- online services to promote diversity, Website and podcasting for dis- sonal productions. This experiment freedom of speech and democracy are: abled persons – website reflecting the was on the cutting edge of what is lives of disabled people, including fea- Web news offered in 16 different often referred to as “remix culture” and tures, quizzes, podcasting, blogging, a languages through the international was very popular. It will be interesting community message board, etc. section of the site. This service has a to see how this type of exciting colla- multi-ethnic and multi-cultural focus Have your say – a part of the borative approach can be developed and is primarily intended for immi- website where users can propose dis- further for promoting individual par- grants and minority groups within cussion subjects, ideas for a news item, ticipation both in and through the Sweden. send their own videos or photographs, media. vote on various topics, etc. Sometimes Web-radio channels in Finnish e-mails are read out direct on air. As in the case of the BBC4 Today pro- and Sami for these two minority gramme, there are many examples of groups: Climate change experiment – in ways that PSM companies are incorpo- partnership with Oxford University – – A web and DAB channel called rating public opinion, personal obser- inviting users to participate in the “Sisuradio” with all programmes in vations, and categorical analyses to fill world’s biggest climate prediction Finnish. out the substance of content in radio project and contribute to the debate and television programmes. All such – A web channel called “SR Sami” on global warming. An interactive efforts are clearly about enabling col- with news and programmes in Sami, project with the goal of raising aware- laboration. It is important to under- the language of the Swedish minority ness and understanding of climate stand that although such happens group, 24 hours a day. change. Over 250,000 users down- quite generally in broadcast produc- P3 Star community – one of the loaded the software to participate. tion today, outside of PSM it is most more popular SR programmes “P3 One day in Afghanistan – a often in conjunction with productions star”, aimed at younger audiences, has project initiated by BBC News Interac- such as the commercial entertain- an online community open especially tive, showing pictures of Afghanistan ment hit, Big Brother. In PSM it is often

37 Strategies of public service media as regards promoting a wider democratic participation of individuals

and fruitfully focussed on civic inter- DEMOCRATISATION start a global conversation about de- ests via current affairs programming. mocracy. Europe and beyond – PSM joint project Since October 2007, ten one-hour “Why Democracy?” films and 18 short films focussing on United Kingdom – various public contemporary democracy have been service media The best current example of what PSM available at the world’s largest ever is doing here is in the Why Democracy? factual media platform. More than 40 Broad engagement with public debate project (www.whydemocracy.net), pic- broadcasters on all continents have is unlikely to occur if only the domi- tured below. Why Democracy? is a col- participated in the project, with an es- nant or mainstream voices are heard. laborative production of public service timated audience of 300 million view- Indigenous minorities have their views broadcasters from across Europe and ers. around the world. These include the reflected via and specific services The films are made by independent BBC (United Kingdom), DR (Denmark), aimed at their regions (e.g. BBC Wales, award-winning filmmakers from YLE (Finland), ZDF (Germany), SBS BBC Scotland; S4C), as well as welsh around the world, including China, (Australia), SABC (South Africa), ARTE language and Gaelic programming. India, Japan, Liberia, USA, Bolivia, Den- (France), NHK (Japan), and many more. These services provide more focus on mark, Afghanistan, Egypt, Pakistan and This is about growing public interest Russia. The subjects of the films take a matters of importance to the relevant and stimulating public involvement in wide-ranging and in-depth look at the region. It should be noted however democracy today. This initiative is sup- world we live in today. They include, that young people and people from ported by the EBU (Eurovision), the for example: other minority groups are disengaged Danish Film Institute, the Ford Founda- from the provision of news, and per- tion, Sundance Institute in the USA, Bloody Cartoons: a documentary ceive mainstream news providers as and many others. In October 2007, ten about how and why 12 drawings in a biased. 16 one-hour films that focus on contem- Danish provincial paper could whirl a porary democracy were broadcast in small country into a confrontation The digital dividend might provide what is reportedly the world’s largest with Muslims all over the world. It asks whether respect for Islam combined more scope for local television, though ever factual media event. These can with the heated response to the car- see criticism of Ofcom’s approach now be screened online and there is toons is now leading us towards self- which is to put public service interests ample opportunity to join in dialogue censorship. How tolerant should we behind a market led approach to allo- and debate. More than 40 broadcasters are participating with an estimated be, it wonders, of the intolerant. And cating freed-up spectrum. 17 audience of 300 million viewers. Each what limits should there be, if any, to participating broadcaster will produce freedom of speech in a democracy. Radio stations, based regionally, tend a locally-based season of film, radio, The Kawasaki Candidate: Can a also to cover regional and local stories. debate and discussion to tie in with candidate with no political experience Typical fare for radio programmes (on the global broadcast of the Why De- and no charisma win an election? Per- both BBC and commercial radio) is the mocracy? documentary films. This will haps – if he is backed by the political current affairs phone in, though the result in 20 short films dealing with giant, Prime Minister Koizumi and his extent to which this encourages in- personal, political and rights issues Liberal Democratic Party (LDP). In the volvement with the public sphere around the theme “What does democ- fall of 2005, 40-year-old, self-employed rather than the reiteration of long-held racy mean to me?” Kazuhiko “Yama-san” Yamauchi’s views is debatable. An exception to peaceful, humdrum life was turned This project is large-scale and long- this comment may perhaps be made upside-down when Koizumi’s LDP term, and also international in com- in respect of the Groundswell series, party chose him at the last moment as plexion. It is also important to observe its official candidate to run for a vacant originated by BBC Radio Nottingham, that the funding and production rep- but picked up by other local radio sta- seat on the Kawasaki City Council. resent a viable example of civil society With zero experience in politics, no tions. In Groundswell , the station as- organisations working co-operatively charisma, no supporters, and no con- sisted local communities to organise via PSM. Given the scope and scale of stituency. The Kawasaki Candidate debates on a matter of neighbour- this initiative, it simply would not be offers up a microcosm of Japanese de- hood concern, the resulting debate possible without the institutional mocracy. then being broadcast. This is citizen- framework provided by PSM with its Dinner with the President: What led current affairs programming emphasis on democratic culture and practice. are the implications for democracy in showing engagement on the part of Pakistan when secular political parties the audience with the subject matter. Why Democracy? is a collaborative pro- have succumbed to the Islamic duction of public service broadcasters agenda? What does it mean when the 16. Ofcom, New News, Future News , 2007 17. Harrison, J., “Ofcom, local TV and public pur- from across Europe and the world. It is army appears to be the only force able pose” (2008) 13 (1) Comm. L 3 a documentary project using film to to contain the opponents of democ-

38 Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

Screenshot 14. Europe and beyond – PSM joint project “Why Democracy?”

racy, the armed Islamists? The film- cious circumstances in U.S. custody umentary, by award-winning producer maker talks to diverse individuals, from during the “war on terror”. Taxi to the Alex Gibney, carefully develops the last labourers to intellectuals, from street Dark Side takes an in-depth look at weeks of Dilawar’s life and shows how vendors to religious right wing politi- one case: an Afghan taxi driver called decisions taken at the pinnacle of cal party members, and from journal- Dilawar who was considered an power in the Bush Administration led ists to industrialists. What is their idea honest and kind man by the people of directly to Dilawar’s brutal death. The of democracy in Pakistan? What is their film documents how Rumsfeld, to- his rustic village. So when he was de- idea of President Musharraf’s vision of gether with the White House legal tained by the U.S military one after- a modern Pakistan? Dinner with the team, were able to convince Congress noon, after picking up three President questions the role a military to approve the use of torture against leader can play in guiding a state to- passengers, denizens wondered why prisoners of war. this man was randomly chosen to be wards modern democracy. Besides, the Why Democracy? website held in prison, and, especially, without offers the following categories: Taxi to the Dark Side: Over one trial? Five days after his arrest Dilawar hundred prisoners have died in suspi- died in his Bagram prison cell. The doc-

39 Strategies of public service media as regards promoting a wider democratic participation of individuals

About: gives a short introduction Polls: Gives visitors the possibility from which he can chose one. After of the topic to vote on current questions. For ex- having made his decision, the partici- Recent News: lists latest news ample. “Who would you vote for as pant is given the right answer together about current events and political inci- president of the world?” Choices rang- with a short explanation. At the end of dents that are of relevance to democ- ing from Ban Ki-moon and Barack the test (after having answered all racy in the world. Obama to Vladimir Putin. Or “Are De- eight questions), the user is offered a mocracy and Capitalism compatible?” closing assessment. It should be criti- 18 short films: the films were or “Is religion more powerful than poli- cally noted that the eight questions, made by emerging filmmakers across tics?” which are posed, are always the same the planet. Innovative and sharp, they and that, therefore, the game might be take a sideways look at our world. Germany – ARD – “50 years of Euro- perceived as becoming boring soon Why democracy House: Why De- pean Parliament” and that the gain of knowledge is lim- mocracy House brought a group of The next example is an ARD-operated ited. On the other hand, this online young people from all over the world online game with a public service game implicates one major advantage, to Cape Town, South Africa, to help character. Under the heading “50 years which is that users get involved in guide and build the project’s online of European Parliament”, the public European policy and European deci- conversation about democracy. From service media operator provides for a sion-making processes. Therefore, the July till October, the House residents game, which helps users to refresh game sparks general interest in Europe lived together, ate together and their knowledge, respectively to in an interactive way. As soon as peo- worked together, creating parts of this acquire knowledge, about Europe, in ples’ interest grows, they can consoli- website and sharing a wide variety of particular the European Parliament. date their knowledge on their own. views about politics, culture, film and After having started the game, users Thus the offered game can be seen as life with each other and with the are asked to answer 8 questions con- a initiator of public interest in Euro- world. Inside the “democratic house” cerning Europe and the European Par- pean policy and therefore, it creates a the visitor can find interesting sub-cat- liament (e.g. “Who was the first more transparent and citizen-centric egories such as: president of the European Parliament?”, policy (see > ! Library: lists everything you want “How many delegates are allocated in ). to know about democracy the European Parliament?”, “What are Debate: provides the opportunity the rights of the European Parliament to engage in a discussion about de- concerning the budgeting?”). The par- mocracy, politics and media ticipant is offered 3 given answers

Screenshot 15. Germany – ZDF – “Logo!”

Germany – ZDF – “Logo!” offered for children. All such pro- tor, ZDF. This programme provides grammes and online services feature news for children with lots of explana- Of course there are many PSM projects news and information designed to tion and background information at a of smaller scale, on-going practice, nurture an appreciation for democ- language level appropriate for chil- and domestic emphasis as well. racy. A good example is Logo! a daily dren’s understanding and in a way that Among the most important of these production of the German PSM opera- is suitable to their interests. Users can are various programme strands

40 Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

see a stream podcast of “logo” in the fore more comprehensible to the An important group of programmes, ZDFmediathek section ! . users: they were encouraged to elect where the public service broadcasters Research has found that adults also their favourite candidate or party since most actively promote the democrati- use the service because the producers they realised that their vote counts a sation of society, are socio-political present complicated things in ways lot. programmes, such as discussions, talk that are easy to understand. shows and analytical programs. Germany – Deutschlandradio A weekly analytical programme is Germany – ZDF – “Europa-Wahl-O- The joint corporation of ARD and ZDF, called “De Facto” and is produced on Mat” Deutschlandradio, offers the so-called the basis of Latvian television news Another example is the “Europa-Wahl- Euro-blog ( ). This service. The main task of this pro- O-Mat” in advance of the elections for special service is provided in corpora- gramme is to help people to study and the European Parliament in 2004. En- tion with several partners (e.g. Bertels- analyse economical and political proc- couraged by the positive experience mann Stiftung, Bundeszentrale für esses within Latvia and the European that has been made with the Wahl-O- politische Bildung, European Commis- Union. The programme producers in- Mat in the run-up of the elections for sion, Goethe Institut, Die Zeit , a vestigate analytically in some of the German Bundestag in 2002 (at that German weekly newspaper, and BRF, most important events or decisions of time, 3.6 million people used the Wahl- the Belgian Broadcasting company). the previous weeks, analysing the O-Mat), ZDF offered this online service First offered during the German Presi- causes and trying to predict the conse- in collaboration with the European dency of the European Union Council quences, which will take place in near Parliament and the so-called Bundes- of Ministers in the first half of 2007, future. „De Facto” can be considered as zentrale für politische Bildung (Federal users here can communicate via inter- one of the opinion makers within the Agency for Civic Education). Due to net on European matters, in particular. Latvian society. The central news pro- the fact, that for many people, elec- The offered platforms for discussion gramme of public television „Pano- tions for the European Parliament are divided into different categories rama”, as well as „De Facto”, are on top appear to be very obscure and the in- and start with a short article which of the rating lists. That proves the stitution is seemingly far away from forms the basis for discussion (e.g. one public loyalty to the news service and their (immediate) concerns, ZDF aimed discussion was about the question to information and analytical conclu- at making the elections more respon- whether the European Union needs a sions which are provided. Very often sive to the general public. The Wahl-O- Constitution). There are up to 245 other Latvian media, when distribut- Mat was mainly targeted at first and comments written from users concerning information, quote facts and opin- second time voters since these groups ing one issue. In order to avoid the im- ions provided by Latvian television of people are the key users of online pression of non-regulated areas, these news service. information offers. Furthermore, these blogs need – to a certain extent – to be The political talk show “What is going population groups tend to be the less regulated by law. Therefore, Deutsch- on in Latvia?” is the most active one in informed concerning political issues. landradio has imposed several guide- this sphere. The programme is broad- In terms of content, users could lines, including a data protection cast every Wednesday evening, reflect- comment on 30 assumptions taken notice (e.g. comments must adhere to ing the most important events of the from official manifestos of the eligible principles of legality; they must be week, which have perturbed all of the parties (for example one of these as- phrased politely and must not contain society. Usually, members of Parlia- sumptions was: “Turkey should any defamation). By offering this plat- ment, as well as representatives of become/shouldn’t become a member form, users are enabled to exchange non-governmental organisations, of the European Union”). The Wahl-O- their views and therefore it helps in the media and experts take part in the Mat then compared constituents’ process of free formation of opinion of show. The show is very controversial answers with the different manifestos individuals and in the formation of a by its nature. Its participants represent and revealed disagreements and public common opinion. People get different views, so that one can expect common grounds. The Wahl-O-Mat the chance to take a firm stand and to sharp discussions, insults, unmasking entailed several advantages: first, es- try to convince others from their point and sometimes unexpected an- pecially first and second time voters of you; this leads to self-criticism and nouncements. It is the most popular dealt intensely with the election for greater objectivity. socio-political show in the country. the European Parliament. Secondly, “What is going on in Latvia?” has its the Wahl-O-Mat allowed users to dif- Latvia – Public Service Television and own website (see " ferentiate between similar but still di- Radio " ), where all the previous shows vergent manifestos. Furthermore, In a country, in which democracy is are archived, and scripts of the previ- users learned about their own attitude only 20 years old, it is very important ous shows are deposited. The shows and were enabled to form their indi- that public media help the population are segmented so that internet users, vidual opinion. Finally, the process of to understand the essence and possi- when entering a key-word, can find all election of the European Parliament bilities of the democratic system, avail- kinds of information about certain became more transparent and there- able to every citizen of the country. themes on the website. In addition,

41 Strategies of public service media as regards promoting a wider democratic participation of individuals

the main themes of the previous country takes part in this programme, At the same time, Latvian viewers have shows are observed, following the answering to journalist’s questions the possibility to identify themselves events’ developments. Before the about socio-political activities. This with the representatives of other show, the theme of the upcoming pro- programme is aimed at understanding nations and become aware of the gramme is published on the website. the position of the respective official in topical questions, problems and solu- Users are asked to express their the process of tackling important tions of the respective country and its opinion on a definite question of problems. The questions are not only population. Taking into consideration socio-political importance. The prepared by the journalist, but also to that foreigners, who settled in Latvia answers are summarised and thus the a great extent are based on the ques- permanently, take part in the pro- opinion of parts of the society is identi- tions forwarded by the audience. It is gramme, it is possible to discover, fied. possible to send questions via internet what Latvia looks like from the for- During the show, viewers are invited to ("" ' eigner’s point of view. Very often, if the express their opinion on the theme. $$ ) as well as by phone or letters. foreigner comes from a country which On the bottom of screen, three or Programmes on European integration possesses old democratic traditions, more possible answers on the definite issues must be also mentioned. These his/her view on the local problems, as question are faded in and viewers can programmes aim at familiarising the well as on global processes helps to vote by phone. The questions are audience with common concerns and develop Latvian democracy. The “Eu- usually very strict, e.g. “Do you trust problems of the European Union, as robus” invites to use possibilities the present Parliament?”, “Which of the well as disclosing the possibilities offered by different European Union existing political parties should form offered by the European Union. funds and programmes, by illustrating the Government?”, “Should the ‘Pride’ There are two programmes on Latvian practical examples, which already of sexual minorities be allowed in Television, which are devoted to this function. Riga?”, etc. Certainly, the results of this theme, which are “Eurobus” and “Kid- poll cannot be considered as sociolog- napping of Europe”. “Kidnapping of Both programmes can be seen on the ically objective, but from the activity of Europe” in an attractive way tells Internet ( "" ). Viewers are the telephone voters, the public viewers about people in every Euro- invited to call and write their com- opinion as well as the importance of pean country. The initial point of the ments about the theme on the inter- the theme can be felt. There have been programme is the presentation of a net. The answers are given either in attempts to influence the result of the number of stereotypes, formed by writing or in one of the next pro- telephone voting, so that programme Latvians about foreign countries and grammes. If the theme of the pro- producers were forced to state a limit their population, as well as the demon- gramme has been close to one’s of incoming calls from one and the stration of foreigners’ impressions everyday concerns, for example, about same phone number. about Latvia and Latvians. Gradually, the comparatively cheep construction Another programme of socio-political during the programme, it becomes ob- company of precast dwelling houses in genre is “The First Persons of the State”. vious, whether these stereotypes and Estonia, which is founded with the As it can be seen from the title, one of impressions are well-founded or support of European Union funds, the most influential persons in the whether the reality is entirely different. viewers’ attendance is very high.

Screenshot 16. Election coverage of TVP – Poland

42 Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

Poland – TVP ers can vote for the most positive or on politics “Hot seat” (60 minutes), TVP has contributed to promoting de- negative political or other publicly monthly research-analytical pro- mocracy by: active personality which left its hand- gramme with interactive live dialogue print in recent time thus expressing “Target” (60 minutes) to the weekly 20- launching Bielsat Channel , a satel- their attitude towards the develop- minute consumer programme pro- lite channel to promote democratic ments within the society. If looked at moting a critical attitude towards values and human rights in Belarus concretely, such participation voting is quality and level of the market offer (programmes are aired everyday in Be- connected to the presentation, expla- along with an interactive dialogue larusian); nations and comments of actual politi- with market players. Most of these pro- launching the news channel “TVP cal, economical and cultural events, grammes are broadcast in prime time. Info” and scheduling slots to: which are evaluated and criticised by As regards “Hot Seat”, it is mostly the public phoning in. This is an impor- – provide trade unions and employ- about the confrontation of members tant although not also an empirical ers’ organisations with opportunities of public offices and of confrontation sampling of the intersection of the to present their positions on key of opinions between the position and public opinion. Its speciality is that public issues; opposition. It deals with actual themes using the majority of the votes they do of current politics. The show is open – provide political parties with an not only elect the most positive per- for viewer calls. The interest is often opportunity to present their positions sonage of the week, that distinguished larger than the capacity to absorb all on key public issues; itself with a decision, a step forward, or the calls. The show also includes the – enable supreme State authorities an event in the positive sense of devel- base question on the main theme, at directly to present and explain State opment of democracy, but also a which the viewers respond with televi- policy; markedly negative apparition or per- sion voting. This is often a problematic sonage – which should present a re- – ensure possibilities to broadcast part of the show, as television voting is minder or admonition against election programmes by participants – in comparison to calling on the show repeating such practise. In any case it in the election campaign; Telewizja where the viewers must present them- stimulates the participation voting as Polska SA made accessible all pro- selves – anonymous and so the possi- the listeners answer after their own grammes dedicated to parliamentary bility of manipulation from certain accord and prove in what way a certain elections in Poland in 2007. On the interests groups is possible, however, it event has marked them. election website apart from public in- nonetheless motivates thinking. formation, news and debates, also ac- Another example of such interactivity cessible were election news and links is the programme “Studio at 5” broad- The “Target” is an example of an inves- to proper institutions. The reason for cast on the first programme of Radio tigation show that dedicates itself in creating this website was to promote Slovenija (duration up to 90 minutes, detail to an ardent problem, problems society’s participation in elections daily) which focuses on interactive in general and social mistakes. The through wide access to information confrontation with current issues of theme is handled in an investigational and related content ( # # " ). everyday life. This programme is about and documentary manner; while the possibility of direct dialogue with showing pictorial and documentary Slovenia – Public Service Radio and the members of public offices that inserts it confronts various actors in Television have to, in the frameworks of the the studio. Also a group of viewers that are invited into the studio because of There are several programmes and show, answer the presented questions of the listeners and respond to their special interest, affection or experi- services part of the RTV Slovenija pro- ence with the theme at hand, is in dia- grammes which provide a wide demo- criticism. The show often has, when dealing with the most actual ques- logue with them. It is an example of a cratic participation. solid show that stimulates social dia- tions, so many calls that it is not possi- logue, confrontation and clearing and Radio programming addressing issues ble to include them in their entirety solving of problems, the nature of relevant for democracy into the show’s timeframe, often the which is almost never black and white. For example, the complete 2nd pro- members of public offices remain in gramme of Radio Slovenija (Program the studio also after the show has The consumer show, and the format 202) is not based only on a contact ended and continue their dialogue that is used for it, is a novelty in the concept but also constantly provides with the listeners, they also help them- offers of TV Slovenija. It is intended to opportunities for listeners to be di- selves through séances over the inter- give a platform to the criticism of con- rectly involved in creating the pro- net. sumers towards the market offer, help gramme. The programmes are based with grading of products and their TV programmes with a focus on politi- on an interactive concept, which offers and with the strengthening of cally or socially relevant developments opens wide possibilities for participa- consciousness and consumer rights. tion. A special project in this frame- TV Slovenija features several of such The show was made after examples of work is the “personality of the week, contact programmes starting from the some similar successful shows abroad; month and year” project where listen- morning programme to weekly shows its important ingredient is the profes-

43 Strategies of public service media as regards promoting a wider democratic participation of individuals

sional analysis of products (quality, in- institutions and the European Parlia- steps towards taking action: from in- gredients, safety, power-saving, etc.). ment. The goal of the project is to: formation on how to become a school The format was made in co-operation governor and an explanation of the “[…] create a destination for the very best of BBC with responsible offices of the Euro- planning laws, to guides on how to set and third party political content in a multi-media pean Union, which also co-financed its up and run a small campaign or pres- gallery that offers convenient access to live and re- development. In the second half of sure group. Action Network wanted to corded content from debating chambers across 2008, RTV Slovenija in cooperation help people campaign about an issue, Westminster, Scotland, Northern Ireland, Wales with EBU (European Broadcasting make contacts and get advice, and and the European Parliament. The service will strive Union), should organise in Slovenia an finally make a difference in their local to make information around the institutions, their educational seminar intended for all community. representatives and key issues more accessible, public broadcasters in Europe, the in- more interesting and more engaging .” 18 The site had the following structure: tention of which is benchmarking the On top, the three major goals of best formats for such show and raising Along with the project, a blogging site the project were outlined: share your the general quality of the programmes has been opened where senior BBC concerns, find like-minded people, in Europe that are also of vital impor- staff have an open dialogue with make a difference in your neighbour- tance to the democratic participation. people interested in the subject. hood An increasing number of TV pro- At the left hand side, the visitor grammes is getting interactive, with a MOBILISATION could find the link to the main content, special category among them being This is a new frontier so there are not giving information about how to start the entertainment programmes, many examples yet. But one very good a campaign or how to get involved in which are increasingly building on the example is provided by the BBC. some action. A new campaign could response of the audience. Even so is be started by using the “Campaign the offer of the multimedia pro- United Kingdom – BBC’s Action edit page” which was provided by the gramme (on line, Internet) which is Network Action Network. completely based on interactivity, en- At the right hand side, the visitor The BBC’s Action Network ( couraging responses, commentaries could search for already existing cam- ) service (which has and catering to requirements of the paigns in his neighbourhood. Another now closed) provided advice and tools users – meaning the auditorium. This possibility was to search for topics or to people who wanted to run cam- is also a new form of democratisation subject-matters. The actually existing paigns on mostly local concerns. Action and communication within the society campaigns could be visited, com- ). This form has also Network producers leveraged the BBC’s ( " ments could be posted and you could provided a framework for dialogue television and radio networks to publi- vote weather you support or oppose a with expatriates and the external cise the range of self-organising groups special campaign. world in general and is fostering it. who were using its database to store documents and communicate via mes- Furthermore, the site offered several other categories relating to latest United Kingdom – the BBC sages and email alerts. The service maintained distance from Government events, updated articles and campaign news. Digital Democracy – get involved and was careful not to endorse particular campaigns or be directly involved. The growth of social networking and other sites led to the Action Network The BBC’s Action network service pro- being closed and may influence the vided people with the tools and the future decisions of PSM in this area. platform to start a campaign and change something in their local area. Anyone could contribute to the site and most of the content was written by the public and reflected their views. The BBC did not endorse the campaigns or opinions on Action Network. The aim was to help people get involved in their local community, whether through raising an issue that they thought was important or finding a group that they wanted to join. The The BBC has set up an initiative called site also provided a wide range of Digital Democracy. It is a web-based guides to help people take the first project with the aim of opening up dialogue with users about democratic 18. BBC website, Digital Democracy – get involved , institutions, i.e. the United Kingdom April 2008.

44 Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

Screenshot 17. United Kingdom – BBC’s Action Network

Conclusions

The report shows, through representa- there might not be a specific reference switchover (making special-interest tive examples from around Europe, in the remit, it is at least understood broadcasting channels easier), facili- that PSM are very aware that their role that the general (and universal) task of tating the public’s access to content in promoting democratic participa- PSM to inform the public carries with it through non-linear offers, to increas- tion of individuals is a crucial one and an important significance for the dem- ingly interactive services offered via an important reason for their special ocratic processes and the public’s ap- the internet. status in the European media land- proach to them. Some of the examples mentioned, scape. Several member states have It can also be seen from the report that however, also show the ease of use also recognised the need for a dedi- the strategies PSM follow increasingly and often relatively low cost of the cated role of PSM in this regard and take account of the possibilities the new media mean that many services have therefore included specific tasks new technologies open up. This that in traditional broadcasting only related to the topic in their PSMs’ ranges from making use of additional PSB could offer are now easily offered remits. In other member states, while spectrum available through the digital by private commercial or non-com-

45 Strategies of public service media as regards promoting a wider democratic participation of individuals

mercial operators. For instance, the offers for young people, espe- only in elections but also in decision- election machine described as an cially via technical modes they prefer making processes and public life in example is now commonly offered in (internet, mobile phones) that facili- general. Accordingly, one of PSM’s many European countries by different tate their critical understanding of roles should be to foster citizens’ inter- operators. Also, social networking sites media reporting and democratic proc- est in public affairs and encourage might make some PSM offers less nec- esses; them to play a more active part. 19 essary/important, as has been men- objective pre-election reporting The examples provided in this report tioned in the report regarding the on all platforms that increases the show that to achieve the objective of a innovative BBC’s Action Network. transparency of political processes wider democratic participation of indi- General blogs and forums operated by (such as through a comparative analy- viduals, PSM must adapt their strate- PSM might also easily appear as an un- sis of party positions) and also gives gies and internal policies to the new wanted duplication of private offers, viewers, listeners and users the oppor- technological and social context. so a lot of thinking on differentiation tunity to discuss, comment and ex- Member states, for their part, must set will be necessary. It is also not unthink- change opinions; a clear remit for PSM and ensure ap- able that in the future, in many in- games for users that make them propriate conditions to enable them stances, PSM’s role might be to kick- experience the functioning of the po- to use new technical and technologi- start some new innovative offers and litical system and the complexities of cal means to better fulfil the remit and then let other actors provide them. political actions (also for young peo- adapt to rapid changes in the current Some other examples show one-off ple); media and technological landscape, as offers, that temporarily provide a criti- well as to changes in the viewing and cal insight into political policy options specific offer (such as internet listening patterns and expectations of pursued by governments or pro- offers and web radio) that is addressed the audience. moted by political parties (an example to those citizens or residents of foreign of this is the Dutch Citizenship Assimi- origin or nationality and that for vari- In order to achieve these goals, it lation test). ous reasons (such as language barri- appears that PSM must increasingly ers) will not follow the regular media, strive to move away from one-way However, there also can be no doubt keeping them informed about politics communication to reinforced dialogue that informing the public in a truthful, and democracy; and afford the public both access to objective and credible way about poli- international or pan-European co- varied information as well as a possi- tics and everything they need to know operation projects that focus on de- bility to engage and participate in the will remain one of the most significant mocracy issues. democratic dialogue. In order to con- tasks in which PSM can contribute to tinue to be of relevance in today’s One of the important ideas flowing the promotion of democratic partici- media environment, they will have to from this report is that given present- pation of the individual members of its be creative and quickly and decidedly day developments in the media land- public and in which very useful use make advantage of new technological scape/market, communication tech- can be made of the new communica- possibilities. They will also continu- nologies/platforms, public’s interests/ tion technologies. In this regard, it ously need to strive for distinctiveness expectations, and in order to survive must be noticed, however, that the from other media and might need to and maintain their crucial role in dem- majority of offers encountered by the be ready to move on once it is clear ocratic societies, public service media researchers seem to have a strong that this distinctiveness has been have no other solution than getting basis in traditional broadcasting. eroded. Further innovation is to be expected. closer to the public. They should do it, Ideas mentioned in the report such as primarily, by promoting broader dem- The success of PSM in achieving their citizen blogs during election cam- ocratic debate and participation, with goals will depend also on the extent to paigns seem very useful. the assistance, among other things, of which they manage to reach those citi- new interactive technologies, offering zens that tend to be left outside the Longer-term examples on how a pro- the public greater involvement in the political processes. PSM will therefore motion of democratic participation of democratic process. have to work on different platforms individuals is possible, as described in PSM could fulfil a vital role in educat- and might need to design different the report, include: ing active and responsible citizens, services, including services in different dedicated parliamentary chan- providing not only quality content but language where this is necessary to nels, giving viewers a first-hand knowl- also a forum for public debate, open to reach national minorities or immi- edge on the issues debated and diverse ideas and convictions in soci- grants. They might be well advised to decided by the legislator; ety, and a platform for disseminating make use of the possibilities technol- democratic values. At the same time, ogy gives to listeners, viewers and on-demand offer of news and in- PSM should provide adequate infor- users to design and produce their own formation programmes; mation about the democratic system 19. See Council of Europe Recommendation CM/ Internet offer of background in- and democratic procedures, and Rec (2007) 3 on the remit of public service media in formation to TV and radio reports; should encourage participation not the information society.

46 Group of Specialists on Public Service Media in the Information Society (MC-S-PSM), November 2008

content but will again be very cautious overcome, mobile services might have nologies and media evolution and not to indiscriminately duplicate UGC a significant interest for PSM, although taking note of new examples of good offers by private operators. PSM will the group’s research has found little practice. It might also, where and also have to be very conscious of the examples of these in the domain of when relevant, develop a standard- dilemma between devising easy-to- democratic participation so far. setting instrument to help and use, time-saving products in order to The Council of Europe might partici- support member states in their task of reach those parts of the audience that pate in the debate on how to achieve defining the PSM’s remit regarding the are not willing to spend too much time this goal by continuing to deal with promotion of democratic participation or energy on complicated issues and the topic of media’s, and in particularly and in defining their general media at the same time avoid the risk of over- PSM’s role in promoting democratic policy in this regard. simplifying and, again, losing their dis- participation of individuals, regularly tinctiveness. If this dilemma can be appraising the potential of new tech-

Media and Information Society Division Directorate General of Human Rights and Legal Affairs Council of Europe F-67075 Strasbourg Cedex www.coe.int/media