The Connors Report: "The Right of the Australian Citizen as Taxpayer and Audience" Seven years have passed since the But multicultural broadcasting, as on passage of the Special Broadcasting 0/28, is unique because it takes a mix of Service (SBS) provisions of the Broadcast­ programs and schedules them for a broader, ing and Television Act 1942. Now the varied audience (para. 3.59). With Connors Report, released on 25 March 1985 respect to other multicultural and and named after Xavier Connor, Chairman of broadcasting terms the glossary in Part the Committee of Review of the SBS, One of the Report is particularly useful. provides the most complete analysis to date of the SBS and the performance of its A New Statutory Authority television and radio services. The Report Currently the SBS under Section 79D fills a mammoth three volumes together of the Broadcasting and Television Act with an 85-page Synopsis and Summary of 1942 is empowered to "provide multilingual Recommendations. broadcasting services" and to "provide The Committee's eight terms of refer­ broadcasting and television services for ence permitted a thorough review of the such special purposes as are prescribed". SBS's administration and its services. The Committee recommends the establishment Broadly speaking, the terms of reference of a new organisation to replace the SBS. asked whether maintaining the SBS is This organisation should be set up as a justified given the existence of other statutory authority to be called the services, particularly those of the ABC "Multicultural Broadcasting Corporation" and public broadcasters. The Committee (MBC). The legislation governing the new was also asked to review the principles body should be similar to the Australian and structures necessary to ensure Broadcasting Corporation Act 1983. With firstly, greater community participation respect to funding, the Committee rules and consultation with the SBS and out advertising or sponsorship on the secondly, provision of English language MBC's radio and television stations. In learning. addition to the name change, the Committee The Committee makes a considerable has made specific recommendations for the number of recommendations which, if the establishment of community consultation Government adopts them, will have bearing mechanisms. Additionally a number of on virtually every aspect and department recommendations deal with internal matters of the SBS's operations in the future. such as management and the recruitment, The SBS is currently involved in assess­ staffing and training of personnel. ment of the Report’s impact on such various areas as community consultation The SBS-ABC Relationship and participation, program policy and Appearing three years after the scheduling, promotion and publicity of publication of the Dix Report and a year programs, staffing and industrial after the establishment of the Australian relations, technical issues and funding. Broadcasting Corporation, the Connors This paper is more concerned with the way Report takes up the issue of whether there in which the Report is likely to affect is a case for an amalgamation of broadcast planning. Australia’s two major public sector The Committee's Report has a high broadcasters. The initial observation of level of sympathy with the concept of the Committee is that efforts made by both multiculturalism (see Chapter 3: "Multi- the ABC and the SBS to meet the Dix culturalism and Broadcasting"). The recommendation of "maximum possible Report notes the origins of the SBS in immediate collaboration" have been ethnic radio operated by ethnic communit­ minimal. The managements of both bodies ies on an entirely voluntary basis. approach the question of amalgamation with Comparisons are made with services in limited interest. Canada (for Eskimos and Canadian Indians), It is all too evident to the the United Kingdom (for West Indians and Committee that a myriad of historical, Asians), and the Netherlands and West emotional, attitudinal and structural Germany (for "guest workers"). Many factors keep the two bodies frozen in countries have ethnic broadcasting, such separate camps. The majority of submiss­ as is practised on 2EA and 3EA which cater ions opposed any amalgamation of the ABC sequentially to different ethnic groups. and the SBS. Of 670 submissions which

(1985) 5 CLB 26 mentioned the issue, over 69 per cent and 4EB in Brisbane, are fully ethnic opposed amalgamation, with around 18 per public stations. The subsidies amount to cent in favour and less than 13 per cent $655,000 and are distributed through the taking a neutral or undecided view (para. SBS. In contrast the cost of the SBS's 5.32). Opposition to amalgamation was 2EA and 3EA stations amounts to many largely based on negative factors such as millions. In Its own words, the Committee claims that the ABC itself had poor "came down firmly in favour of public management and lacked sensitivity to broadcasters as the major means of provid­ multiculturalism. Those favouring ing ethnic radio program services in parts amalgamation based their view on the of Australia not covered by the EA economic argument and a fear that ethnic/ stations" (para. 2.23). multicultural broadcasting would remain Having rejected the concept of a apart from the mainstream as long as the national ethnic radio network, the Commit­ SBS continued to exist. But even with tee goes on to recommend the establishment respect to the economic perspective on of a "National Program Packing Unit” to amalgamation it remains unclear from the produce program material - particularly Report whether significant savings would news, current affairs, features and be made from the two budgets which In information - for distribution to all 1984-85 amounted to $340 million to the public broadcasters, the ABC and commer­ ABC and $39 million to the SBS. cial stations wanting to use them. It In its conclusion, the Committee also recommends an increase in the funding regards amalgamation as an ideal towards for ethnic public broadcasting to $1 which both organisations should conscient­ million for 1985-86, but advises that low iously work. To ensure that result, it coverage community stations in Sydney and goes two steps beyond the Dix Report by Melbourne should not be funded. The recommending that the ABC and the SBS Government should call for applications should have a statutory obligation to for ethnic public broadcasting station report every six months to the Minister licences in Melbourne as soon as possible for Communications on the steps they have and in Sydney and Perth if demand is taken towards cooperation and coordination established. of resources, and facilities. On this subject it also recommends cross-promotion Australian Content of programs by ABC TV and multicultural Put bluntly, it appears that the television and a close coordination of Committee does not regard SBS television their future program policies and (in contrast to the SBS’s radio stations) schedules as well as a general standard­ as having to date obtained sufficiently isation of their operations. It also high ratings. The Committee goes to some recommends that the Government should length to qualify its views by stating conduct a further inquiry in 1990 into that factors "not measurable with both the ABC and the SBS/MBC to consider statistics" do justify the SBS's the question of their integration. television services. Chief among these In sum, such recommendations will factors is the "respect" which those work to keep the amalgamation option open individuals and organisations making for the joint review in 1990. Naturally submissions said had been engendered for the performance of any new MBC and their heritage. Accordingly the Committee revamped ABC will also have bearing upon recommends that resources be made avail­ that decision. able to allow the SBS to Increase the public's awareness of its services and to The SBS and Public Broadcasters expand transmission time of multicultural The Committee recognised that with television. the limited ethnic radio service that In this writer's view the Committee's currently exists there has grown a observations regarding SBS television's considerable demand for the expansion of ratings significantly strengthen the ethnic radio services. The question local production arguments of the before the Committee was whether to adopt Australian Film Commission with the ABC the recommendations of the SBS or those of and the SBS (see AFC Annual Report 1984: public broadcasters. pp. 12-14). The Committee observes that: The Report observes that currently 16 public stations broadcasting ethnic The 0/28 news normally rates programs are receiving government between 3 and 4. The best rating subsidies. Two of these, 5EBI in Adelaide (Cont’d NEXT PAGE) (1985) 5 CLB 27 ever achieved by 0/28 is 7: for episodes of "Women of the Sun", and for an Australian classic movie - both programs in English and of RECENT PUBLICATIONS Australian origin." (para. 4.50). Comnnunications Update - Newsletter of In recent years high rating the Media and Communications Council, GPO Australian television programs including Box 4264 Sydney 2001. 10 issues per year "Women of the Sim". "Waterfront" and "The are to be published. The 4 page issue Cowra Breakout" have begun to feature number 1 of March 1985 has been released. subtitles, most commonly because they have been co-financed with overseas partners. Freedom of Information - Peter J. With changes to Section 10BA of the Income Byrne. This recently published book is an Tax Assessment Act on the horizon and with analysis of the Commonwealth Freedom of the likely increase in co-productions and Information Act and the Victorian Freedom co-financing arrangements, multicultural of Information Act. As well as providing television may in future be reviewed In an explanation of ■ the provisions of the very different market circumstances. Acts, it includes a practical guide to The Committee is more concerned with using them. (The Law Book Company Limited) current perceived audience, needs and recommends that multicultural television After AUSSAT..? Edited by Keith Smith aim for a level of Australian content of and Liz Fell. Papers of the AUSSAT confer­ 50 per cent by 1988. This will increase ence held in 1984. (Australian Film and substantially its production and purchase Television School). of drama in English or primarily in English. The Committee becomes very Asian Pacific Review of Computers specific when it also provides that Technology and the Law. General Editor - approximately 50 per cent of programs in John Connors. (Longman Professional prime viewing time (6.00 p.m. to 10 p.m.) Publishing). should be in English and of a multicul­ tural nature. Furthermore, the Committee Satelite and Cable Television: recommends that the SBS actively pursue International Protection - Said Mosteshar all avenues for co-productions and joint and Stephen B. Bate An Oyez Longman ventures both within Australia and with Intelligence Report. (Longman Professional broadcasters and producers overseas. Publishing). But to implement these recommendations it’s clear that the local production Annual Report 1983—84 - Australian budget for 0/28 would definitely have to Broadcasting Tribunal. 277p. (AGPS). Increase beyond the current $6 million allocation. Manual - Australian Broadcasting Tribunal. 172p + Appendices (AGPS). Towards 1990 The Connors Report is a well argued and extensively researched document. It Communications Law Bulletin would appear that the Committee was Editorial Board successful in its efforts to obtain public Robyn Durie. Michael Law, comment both during its hearings and from Victoria Rubensohn, Noric Dilanchian submissions made to it from a broad spect­ rum of sources. Administrative Secretary Within three years multicultural Ros Gonczi television will have been extended to all Word Processing capital cities, Wollongong and Newcastle and potentially to provincial centres Gary Ross of Legal Word Whiz through AUSSAT. Australia will then have a Printing second, government funded, national telev­ Allens Pty. Ltd, ision network. It will be interesting to observe the performance of the SBS in Communications Law Bulletin these new fields, and its relationship P.O. Box K541, Havmarket. N.S.W. 2000. with the ABC and public broadcasters. Noric Dilanchian

(1985) 5 CLB 28