The promotion of independent audiovisual production in Europe IRIS Plus IRIS Plus 2019-1 The promotion of independent audiovisual production in Europe European Audiovisual Observatory, Strasbourg, May 2019 ISSN 2079-1062 ISBN 978-92-871-8950-9 (print edition) Director of publication – Susanne Nikoltchev, Executive Director Editorial supervision – Maja Cappello, Head of Department for Legal Information Editorial team – Francisco Javier Cabrera Blázquez, Julio Talavera Milla, Sophie Valais European Audiovisual Observatory Authors (in alphabetical order) Francisco Javier Cabrera Blázquez, Maja Cappello, Gilles Fontaine, Julio Talavera Milla, Sophie Valais Translation Marco Polo Sarl, Stephan Pooth Proofreading Michael Finn, Johanna Fell, Philippe Chesnel Editorial assistant – Sabine Bouajaja Marketing – Nathalie Fundone, [email protected] Press and Public Relations – Alison Hindhaugh, [email protected] European Audiovisual Observatory Publisher European Audiovisual Observatory 76, allée de la Robertsau, 67000 Strasbourg, France Tel.: +33 (0)3 90 21 60 00 Fax: +33 (0)3 90 21 60 19 [email protected] www.obs.coe.int Cover layout – ALTRAN, France Please quote this publication as Cabrera Blázquez F.J., Cappello M., Fontaine G., Talavera Milla J., Valais S., The promotion of independent audiovisual production in Europe, IRIS Plus, European Audiovisual Observatory, Strasbourg, May 2019 © European Audiovisual Observatory (Council of Europe), Strasbourg, 2019 Opinions expressed in this publication are personal and do not necessarily represent the views of the Observatory, its members or the Council of Europe. The promotion of independent audiovisual production in Europe Francisco Javier Cabrera Blázquez, Maja Cappello, Gilles Fontaine, Julio Talavera Milla, Sophie Valais Foreword Independence is a much-loved concept, to a great extent akin to freedom. Young people aspire to it and countries celebrate it. In the cinema and audiovisual sector, the term indie film evokes images of unlimited creative freedom and rebels up in arms against the studio system, but also of art films with limited budgets and distribution. It is also true that yesteryear’s punks may become today’s moguls. A fitting example of this is Hollywood, which became the “Promised Land” of cinema when filmmakers initiated an exodus in order to liberate themselves from Edison’s pharaonic grasp. Now it is a synonym for the major studio system. But what is really behind the word independence? According to the Cambridge Dictionary, it is the ability to live your life without being helped or influenced by other people.1 But in an interconnected sector such as the one in question here, is it really possible to achieve total independence? It is like anything else, as Woody Allen would argue. In film, like in real life, we are not independent as such; we are or we become independent from something or somebody. Parents telling you what to do, an invading country or a bank which holds a mortgage on your house, you name it. The concept of independence means different things depending on the context. Indeed, the cinema and audiovisual industries use different definitions. Legislation also varies the definition of the concept of independence depending on the aim pursued. The EU’s Audiovisual Media Services Directive, for instance, speaks of independence vis-à-vis broadcasters. Interestingly, this means that, at least in theory, a big Hollywood studio production will be independent for the purposes of this directive. This publication aims at providing an overview of many relevant issues concerning the independent production of films and audiovisual works in Europe, including market figures, international and national rules, interprofessional agreements and case law. The first chapter attempts to set the scene, providing a definition of independent audiovisual productions and a historical background to the concept. It also explains the characteristics of independent production (the size of independent production companies, types of works concerned, and the issue of rights ownership), describes the role of independent production for cultural diversity and democracy and presents a TV fiction case study. The second chapter describes the international and European legal framework, most notably the quota provision included in the AVMSD but also the MEDIA sub- programme of Creative Europe. Chapter three gives an overview of how independent production is regulated at national level, with the focus on definitions, financial investment in independent production and quota obligations, and direct and indirect public funding for independent production. The chapter four describes examples of interprofessional agreements between producers and public service broadcasters of three selected countries (Germany, France and the UK). Chapter five deals with case law, and 1 https://dictionary.cambridge.org/dictionary/english/independence. presents two interesting court decisions from the CJEU and from France. The final chapter discusses the state of play, setting the accent on current and future challenges for the independent production sector. Our special acknowledgment goes to Elena Lai, Secretary General of The European Coordination of Independent Producers (CEPI), Alexandra Lebret, Managing Director of The European Producers Club (EPC), and Benoît Ginisty, Executive Director of the Fédération Internationale des Associations de Producteurs de Films (FIAPF), for their valuable help and input during the preparation of the report. Strasbourg, May 2019 Maja Cappello IRIS Coordinator Head of the Department for Legal Information European Audiovisual Observatory Table of contents Executive summary ......................................................................................................... 1 1. Setting the scene ..................................................................................................... 3 1.1. Definition and role of independent audiovisual productions ......................................................................................... 3 1.1.1. Historical background to the concept of independent production ........................................................ 3 1.1.2. Scope of the definition ........................................................................................................................................... 5 1.2. Characteristics of independent production ........................................................................................................................... 7 1.2.1. The size of independent production companies ........................................................................................... 7 1.2.2. The types of works concerned ............................................................................................................................. 7 1.2.3. Ownership of rights ................................................................................................................................................. 8 1.3. The role of independent production for cultural diversity and democracy .............................................................. 8 1.4. Sizing independent production: the TV fiction case study .............................................................................................. 9 1.4.1. Background: TV fiction production in the European Union ...................................................................... 9 1.4.2. Approaching the market share of independent production ................................................................... 11 2. International and European legal framework ..................................................... 15 2.1. International legal framework ................................................................................................................................................ 15 2.1.1. UNESCO ..................................................................................................................................................................... 15 2.1.2. Council of Europe .................................................................................................................................................. 15 2.2. EU legal framework ..................................................................................................................................................................... 18 2.2.1. Audiovisual Media Services Directive ............................................................................................................ 18 2.2.2. Creative Europe ...................................................................................................................................................... 22 3. National frameworks ............................................................................................. 27 3.1. Overview ......................................................................................................................................................................................... 27 3.1.1. Definitions ................................................................................................................................................................ 27 3.1.2. Financial investment in independent production and quota obligations ......................................... 28 3.1.3. Direct and indirect public funding for independent production .......................................................... 31 3.2. Case study analysis.....................................................................................................................................................................