1 Conflicting digital futures An analysis of the New Zealand digital television debate in relation to public service principles and commercial imperatives Yvonne Brill December 21st, 2012 School of Communication Studies, AUT University A thesis submitted to Auckland University of Technology in partial fulfilment of the requirements for the degree of Master in Communication Studies 1 2 Abstract The freedom to provide a wide range of content from diverse sources allows the media to fulfil its role as facilitator of the public sphere. Having access to a wide range of content from diverse sources is necessary if citizens are to fully participate in the democratic process. However, provision of non-commercial and public service content has proved problematic in New Zealand’s deregulated broadcasting environment. During the 1980s and 1990s the international trend toward deregulated national media markets put public service media under considerable pressure. In a deregulated environment commercial interests flourished, often at the expense of the public interest. This was certainly the case with broadcasting. Since then, New Zealand’s television broadcasting market has struggled to provide a balance of commercial and non-commercial content for a variety of reasons. But the digital era of broadcasting brings with it new opportunities for public service broadcasting provision. A by-product of the government’s decision to begin the switchover from analogue to digital broadcasting was the establishment of two non-commercial digital channels, administered by state-owned broadcaster, TVNZ. However, less than five years after the digital initiatives were announced, both channels had ceased broadcasting and once again the market became dominated by commercial interests. This thesis begins with a political-economic overview of New Zealand broadcasting history. The latter part of the overview traces the emergence of the neoliberal orthodoxy which informed the radical deregulation of the broadcasting sector, as well as ‘Third Wayism,’ which entailed a partial recommitment to public service broadcasting. In this context, the establishment of the Freeview platform and TVNZ’s digital channels, as well as the subsequent demise of these channels are examined. These developments were reported in the mainstream media in certain ways. In this context I provide a case study of how public service broadcasting was framed in news coverage from 2006-2011. This makes it possible to evaluate the parameters of the debate concerning public service broadcasting in the digital era. My conclusion here is that the debate was framed in such a way that public broadcasting was made to appear as if it was an imposition on the taxpayer, and commercially driven broadcasting was positioned as the default. 2 3 Table of Contents Attestation of Authorship 6 Acknowledgements 7 Chapter 1: Introduction 8 1.1 The Public Sphere and Broadcasting 9 1.2 Framing Theory and Critical Media Research 12 1.3 News Work and News Sources 14 1.4 Media Framing of Oppositional Movements and Viewpoints 16 1.5 Framing and Keyword Analysis 17 1.6 Methodology 19 Chapter 2: A Brief History of Broadcasting in New Zealand. 1923-1984 24 State Control: 1923-1960 2.1 1920s: Radio Regulations 25 2.2 1930s: Crown Ownership and State Monopoly Established 28 2.3 1940s: Public Service Rhetoric At Odds with State Control 32 2.4 1950s: Debating Television 35 Public Service Broadcasting 1961-1984 2.5 1960s: Old Habits Die Hard – Residual State Control 36 2.6 1970s-early 1980s: Toward Public Service Broadcasting… Sort Of 38 2.7 Conclusion 45 3 4 Chapter 3: The Market Prevails. 1984-1999 48 The Lead-Up to Deregulation: 1984-1988 3.1 The New Zealand Economy in 1984 50 3.2 Defining Neoliberalism 52 3.3 Neoliberalism Catches on in New Zealand 54 3.4 Changing Political Ideology and Television Broadcasting 57 3.5 Neoliberalism and the Political Economy of Global Media 59 Deregulation and Foreign Media Ownership in New Zealand: 1989-1999 3.6 Deregulation and the Broadcasting Reforms 62 3.7 A Private Broadcaster is Born: TV3 during the 1990s 66 3.8 Pay Television Comes to New Zealand: Sky TV during the 1990s 69 3.9 Conclusion 72 Chapter 4: Third Way Politics and Public Service Priorities: 1999-2008 75 4.1 A Shift in Focus: New millennium broadcasting reforms 76 4.2 The TVNZ Charter: A mixed model attempt 80 4.3 Maori Television Service: A second state-owned broadcaster 85 4.4 A Political Economy of the Changing Media-scape 86 4.5 The Digital Broadcasting Strategy: Sky vs. Freeview 90 4.6 Conclusion 97 Chapter 5: Re-Commercialising Broadcasting: 2008-2012 100 5.1 The Erasure of Public Service Broadcasting 101 5.2 Political economy of media ownership: Reinforcing Sky’s dominance 107 4 5 5.3 Sky, Freeview and Content Provision 111 5.4 Conclusion 115 Chapter 6: Digital Television Broadcasting: News Coverage and News Frames 118 6.1 Freeview Announcement and Reactions 123 6.1a Prominence and Location of Texts 124 6.1b News Sources 125 6.1c News Frames and Narratives 127 6.2 Digital Channels for TVNZ Announcement and Reactions 137 6.2a Prominence and Location of Texts 137 6.2b News Sources 139 6.2c News Frames and Narratives 139 6.3 Confirmation of TVNZ 7’s Cancellation 148 6.3a Prominence and Location of Texts 150 6.3b News Sources 151 6.3c News Frames and Narratives 159 Chapter 7: Concluding Remarks 163 References 175 5 6 Attestation of Authorship I, Yvonne Brill, hereby declare that this submission is my own work and that, to the best of my knowledge and belief, it contains no material previously published or written by another person (except where explicitly defined in the acknowledgements), nor material which to a substantial extent has been submitted for the award of any other degree or diploma of a university or other institution of higher learning. Signed: Date: December 21st, 2012 6 7 Acknowledgements I would like to acknowledge the assistance of my primary and secondary supervisors in the production of this thesis. My primary supervisor, Associate Professor Wayne Hope provided much needed guidance in both the conception of my thesis topic and throughout the period of my research and subsequent writing. My secondary supervisor Associate Professor Alan Cocker was also of great help during this time and provided greatly appreciated support in the early stages of my writing. I would also like to acknowledge Mike Lichtwark, whose excellent proof reading skills and short notice availability contributed to the on-time submission of this thesis. I would also like to acknowledge the financial assistance provided by a number of organisations including the School of Communication Studies at AUT University, the Office of Pasifika Advancement at AUT University, and the Pacific Islands Media Association for providing much appreciated scholarships, prizes and professional opportunities during my time as a post graduate student. 7 8 Chapter 1: Introduction In many countries the status quo prevalence of neo-liberal ideology has undermined the capacity of television broadcasting to deliver non-commercial public service programming. This kind of broadcasting derives from Jürgen Habermas’ theory of the public sphere. Habermas’ theory of the public sphere originally focused on areas of public space such as early 18th century coffee houses and salons, where individuals could meet to discuss matters of literary, scientific, philosophical and political interest. During this time communication media, which Butsch identifies as printing presses, handwritten notes and the human body, were readily accessible to most citizens (2009, p7). Today, globalisation and mass populations require media organisations to coordinate public spheres. A television broadcasting market with no non-commercial representation means that citizens must rely on relayed information which is shaped by corporate interests. The primary concern of these corporate interests is profit, not the public interest. Even if funding for non-commercial content is provided, public service media can face difficulties working within markets where commercial imperatives prevail. Despite the best intentions of employees, the public service ethos is vulnerable to distortion if compared too closely to commercial providers. During the 1980s and 1990s the international trend toward deregulated national media markets put public service media under considerable pressure. 8 9 The digital era of television broadcasting brought with it new opportunities. New Zealand’s decision to begin the switchover from analogue to digital broadcasting signalled the arrival of a brand new media environment. The government’s decision to facilitate the establishment of two non-commercial digital channels for state-owned broadcaster TVNZ in 2006 allows us to evaluate the position of public service broadcasting at this time. In general, defence of public service principles in the digital environment has not been as strong as the push for commercial imperatives. Consequently, the digital broadcasting environment became swamped by commercial content less than five years after the launch of Freeview, TVNZ 6 and TVNZ 7. This was despite assurances from both government and broadcasters alike that the move to digital would allow greater choice for the viewing public. This thesis begins with a political-economic overview of New Zealand broadcasting history. This is followed by a political-economic account of television broadcasting from 1960 through the period of deregulation in the 1980s and onward. This will serve to contextualise a news frame analysis of media coverage concerning the rise and fall of TVNZ’s non-commercial channels. 1.1 The Public Sphere and Broadcasting Ultimately, the public sphere is where members of a society may determine ‘the public interest’, which should ultimately inform the actions of those holding power in a democratic government. Using slightly different terminology, David Marquand describes ‘the public domain’ as being “symbiotically linked to the notion of public interest, in principle distinct from private interests; central to it are the values of citizenship, equity and service” (2004, p27).