Select Committee on Culture, Media and Sport Written Evidence


Memorandum submitted by the Royal National Institute of the Blind

1.  INTRODUCTION

  1.1  Royal National Institute of the Blind (RNIB) is the leading organisation representing the needs and interests of the two million people in the UK with a sight problem. The organisation provides over 60 services. It works directly and indirectly with blind and partially sighted people, representative organisations, visual impairment professionals, national and local government, the broadcasting and entertainment sector, and a range of public and private organisations.

  1.2  Since its Needs Survey* in 1991 showed that 94% of blind and partially sighted people watch television RNIB has taken an active role in highlighting access issues. It has worked to try to ensure access to programmes, services and equipment, both by direct work with broadcasters and manufacturers and by influencing legislation. RNIB's role has become particularly important since the introduction of digital television, which provides considerable opportunities with the availability of more channels and services, and better picture and sound quality. However, for the majority of blind and partially sighted people these advantages are offset by the problems in accessing services and equipment.

  1.3  RNIB has recognised the access issues related to digital television and through previous consultations and direct working with service providers (including the BBC) and manufacturers has ensured that some of these issues have been, and continue to be, addressed. However, it is essential to have relevant legislative and regulatory frameworks to ensure that all issues are addressed, particularly to ensure that access issues are automatically included in any future technology developments. The BBC Charter is, therefore, a key part of this future framework.

  1.4  RNIB was pleased that its campaigning on the 2003 Communications Act resulted in Ofcom having the responsibility for ensuring that many access measures would be covered by codes of practice or an appropriate regulatory framework. It is essential for the broadcasting industry to recognise and address the problems caused by digital technology. Many of the issues covered by the Communications Act are relevant to the BBC through its Royal Charter.

  1.5  RNIB has worked with many BBC departments to raise awareness of the needs and interests of blind and partially sighted people, and to try to develop good practice guidelines. RNIB, therefore, welcomes the opportunity to have input into the Committee's inquiry in order to contribute to the debate about the future of the BBC, and has responded where issues specifically impact on the lives of people with a sight problem.

2.  WHAT SCOPE AND REMIT SHOULD THE BBC HAVE IN THE DIGITAL FUTURE?

  2.1  Public Service Broadcasting: As the UK's major public service broadcasting organisation, and one that is publicly funded, the BBC has a responsibility to adopt and implement good practice. Public Service Broadcasting plays an important role in the provision of television programmes in the UK by ensuring there is a variety of high quality programming across a range of channels. Public service broadcasters have a significant role to play in developing access services for sensory impaired viewers on all television platforms. They should take the lead, and have an on-going role, in providing the high quality audio described programmes that blind and partially sighted people expect. RNIB recognises that the BBC is now operating in an increasingly fragmented market and that it needs to ensure that it can remain competitive without losing its ability to provide a unique contribution to the life of the UK and the wider world. However, development within the new broadcasting environment must not mean a lowering of standards.

2.2  AUDIO DESCRIPTION

  2.2.1  RNIB recognises that the BBC has been in the forefront of developing access services for blind and partially sighted people, particularly since the launch of digital television. The work it has done on technical solutions for the delivery of terrestrial audio description has been invaluable. In addition the BBC started providing audio description at the same time as other digital terrestrial broadcasters, although it was not covered by the relevant legislation. Although the BBC has given the commitment to match such services it is essential for access provision, including targets, to be included in the new Charter.

  2.2.2  However, RNIB does want to ensure that in the future the BBC does meet the spirit of its Charter, and the aims of public service broadcasting. This is not currently the case with the audio description digital satellite. Unfortunately it took from 2001 until December 2003 for one channel (Five) to transmit its audio description via satellite as well as terrestrial. As at April 2004 the other broadcasters have not made this provision. It is bad enough that these are all public service broadcasters (BBC, ITV and Channel 4), but worse that they include the only publicly funded broadcaster. The BBC has deliberately chosen to withhold a service that would considerably enhance the viewing experience for satellite viewers with a sight problem. The lack of this audio description has been made worse for blind and partially sighted satellite viewers by the fact that from mid-2001 until late-2003 this was the only way of receiving audio description. The first terrestrial receiver with audio description capability only became available in December 2003, despite the terrestrial broadcasters transmitting a description service since mid-2000. (As at April 2004 there is no audio description on digital cable television.)

  2.2.3  It is important to understand how audio description makes a programme more informative and/or entertaining. It enables blind and partially sighted people to enjoy a much wider range of material, including some that is difficult to follow without it (eg complex series such as Waking the Dead and Silent Witness). It enables independent viewing and, thereby, takes away the dependence of relying on someone else to fill in the key gaps (or missing the end of a story because there is no-one to ask). Blind and partially sighted people will not get the most enjoyment from and access to television programmes until Government and industry recognise that adequate provision is essential. More audio description of a wider range of programmes would be an incentive for people to move from analogue to digital television.

  2.2.4  Although RNIB concentrates on the needs of blind and partially sighted people in this response it is important to understand how audio description can benefit much larger numbers of people.

    —  The cognitive benefits to older people were covered in the European AUDETEL Research from the early 1990s. Comparison tests were done that showed that people remembered more about storylines and characters after watching programmes that were described.**

    —  It is felt that description helps people with learning difficulties and people for whom English is not their first language.

    —  In addition audio description is beneficial to sighted people whilst their attention is not fully on the television (eg when ironing, cooking, or when watching television in a car—a new development currently being promoted). Audio description can, therefore, enhance the viewing experience for most people, at different times under different circumstances.

  2.2.5  As the only public funded, and the major UK public service broadcaster, the BBC should:

    —  provide more audio description than other broadcasters—aim for 50%, at least, irrespective of the targets outlined in the Communications Act 2003, which are totally inadequate;

    —  provide audio description on all digital platforms;

    —  ensure the widest range of programming, on all its channels, is described;

    —  increase audio description output on analogue television in order to raise awareness amongst the general public as well as blind and partially sighted people. (The current transmission of a described programme on analogue is a good step but most blind and partially sighted people will not be aware of a broadcast as part of the Sign Zone, in the early hours of the morning);

    —  ensure that when described programmes are released on DVD the audio description is included.

  2.3  Older people: The BBC must be in a position to recognise and reflect social and demographic change, particularly as current forecasting indicates that older people will be the majority by the year 2025. It is worth noting that the majority of blind and partially sighted people are over the age of 65. Sight loss (along with hearing loss and certain other disabilities) is related to ageing so inevitably the number of older blind and partially sighted people will increase. It is, therefore, essential to ensure that current planning for audio description, and other access measures, provides a solid basis for the future development of services.

  2.4  Educational programmes: The BBC has provided an invaluable range of educational programmes throughout its history, for schools, through the Open University, and for general viewing. The BBC of the future should continue to provide this essential access to and opportunity for greater social inclusion through its education and learning services, as well as its mainstream programming. It has to ensure that some of its services are reaching everyone at some time, and that it plays a role in the wider Government aspiration of lifelong learning for all.

  2.5  Films: As a result of its history of encouraging and developing drama and films the future investment in British films is another key role for the BBC. It should be able to provide the infrastructure to:

    —  ensure training and encouragement for young, or new, writers and directors;

    —  encourage the creative talents of people with disabilities;

    —  contribute to the mixed cultural life of the UK; and

    —  provide opportunities for greater social inclusion.

2.6  RADIO

  2.6.1  As well as access to digital television it is important that Digital Audio Broadcasting is not overlooked as radio is an essential medium for blind and partially sighted people. DAB offers the benefit of a wider range of channels but listeners still have to cope with displays of text. This will increase when digital text services are offered and these will be inaccessible to people with a sight problem unless leading broadcasters and manufacturers ensure that they can be accessed in alternative ways. The BBC has been in the forefront of DAB development and should use its influence to ensure that these services are actually accessible.

  2.6.2  The BBC is in a unique position of providing a wide range of radio channels, enabling it to plan strategically to ensure that all tastes and interests are covered. Both through network and local radio the BBC must be able to provide the type of specialist programming that is not available from other broadcasters (eg Radio 4's In Touch).

  2.6.3  In the past local radio stations have been in the forefront of developing programming for people with a visual impairment. However, in recent years this situation has changed with fewer opportunities for specialist programming. In addition the areas covered by local radio stations are getting larger, thereby destroying much of the benefit they brought in their early days. Real local news is essential for those people who cannot access their local newspaper. With the possibility of more community radio in the future the BBC has role to play in ensuring that its local provision really does reach out to and involve the community, in order to meet the needs of the whole audience.

2.7  DIGITAL TECHNOLOGY

  2.7.1  The BBC has always been in the forefront of broadcasting technology developments, and has been able to use its research and development resources to ensure that good quality standards are developed and adopted by broadcasters, both in the UK and overseas. The BBC should be able to continue this role, ensuring priority for the access needs of people with disabilities.

  2.7.2  Digital broadcasting offers many opportunities for viewers and listeners but is more complex, and therefore more daunting, for many people. It is even more daunting for people who cannot see on-screen menu information and remote controls/keyboards and read instruction manuals. The BBC should be able to use its unique position in the UK broadcasting world to ensure universal design principles are adopted so that both broadcasters and the public can benefit from the changes that are happening now and that will continue for many years.

  2.7.3  Many blind and partially sighted people are apprehensive of the move to digital television, for a number of reasons but most importantly complexity of equipment, lack of understanding of the need to change, and cost. It is, therefore, essential that digital television and radio services and equipment are fully accessible to people with a sight problem prior to the switch from analogue to digital. All sectors of the broadcasting industry, Ofcom, and the Government have a role to play in ensuring that outstanding access issues are addressed and resolved urgently.

2.8  INFORMATION

  The broadcasting industry (under the auspices of the Government's Digital Action Plan) has identified the need for clear information about digital (multi-channel) television. As a lead digital player, particularly for Freeview, the BBC has a vital role to play in providing information about digital television and radio. As part of its information provision it is essential for the BBC to ensure that access services are included.

2.9  INTERACTIVE

  2.9.1  As one of the benefits of digital television is the provision of interactive (enhanced) services it is essential to ensure that these services are accessible to blind and partially sighted people. Any additional programming that is accessed via an enhanced option should be assessed for audio description in the same way as the main programme. In addition description must be considered for the additional services that can be accessed via an interactive operator, such as NHS Direct.

  2.9.2  It must be noted that at present the access technology that enables blind and partially sighted people to work with computers is not transferable to digital television platforms. It is important to recognise that television interactive services are not generally accessible to blind and partially sighted people. To address all interactive access issues guidelines can be drawn up along the lines of the world wide web accessibility initiative. The Government should be encouraging service providers and manufacturers to work together on the development of such accessible services and equipment, particularly as its agenda includes the delivery of public services via digital terrestrial television. This will not be achievable until all services and equipment are accessible and affordable.

  2.10  Websites have become another tool of broadcasters to deliver information. RNIB welcomed working with the BBC to ensure that its website is accessible to people who use access technology. However, it is essential that the BBC ensures continued commitment to this access, in its desire to extend audience reach and services in an increasingly competitive marketplace. RNIB recommends that people with disabilities are consulted prior to the conception of any new online service to ensure best use of the medium, and to avoid fundamental design errors that might be expensive to correct retrospectively.

3.  IN THE CONTEXT OF SCOPE AND REMIT, HOW SHOULD THE BBC BE FUNDED?

  Whilst RNIB does not feel that it can contribute to the debate about the funding of the BBC it feels it is important to make the following points:

    —  the licence fee ensures that the BBC is accountable to the public, not to commercial interests. This ensures that the needs and interests of viewers and listeners are paramount. This should ensure also that issues such as access services for people with sensory impairments are fundamental to the organisation.

    —  it is important to note that if alternative funding methods are introduced in the future that blind and partially sighted people are not disadvantaged. Currently registered blind people have a 50% reduction in their licence fee. This type of measure must be available also in any future funding scheme, particularly if full access measures are not in place.

4.  HOW SHOULD THE BBC BE GOVERNED AND/OR REGULATED; ROLE FOR OFCOM?

  4.1  The BBC can sometimes seem a cumbersome organisation because of its size and complexity. However, the BBC's ability to provide technical research and development, along with other service functions has enabled it to become established as a leading broadcaster worldwide. Its present structure enables the organisation to offer integrated planning and service delivery. Whatever structure is put in place to regulate the BBC in the future the organisation must be able to maintain and build on its successes and reputation, and ensure that the needs of all consumers are paramount.

  4.2  In order to ensure that the needs of people with disabilities and older people are fully covered the following measures should be put in place:

    —  all BBC Advisory Councils to contain representatives with disabilities, or with knowledge and experience of people with disabilities;

    —  a BBC Advisory Committee on Elderly and Disabled People in order to reflect changing needs, in the light of technological developments and demographic forecasts. This committee would have a responsibility to cover the BBC as both programme/service provider and employer and should work closely with Ofcom's own Committee;

    —  all Statements of Policy to contain specific targets for people with disabilities and the provision of access services, with clear indications of whether or not they have been met and what resources have been allocated.

5.  CONCLUSION

  5.1  RNIB recognises that the BBC has introduced a number of initiatives over the years to reflect the needs of people with disabilities, such as the transmission of specialist television and radio programmes, the appointment of a Disability Correspondent and membership of the Broadcasters and Creative Industries Disability Network.

  5.2  RNIB recognises also that the broadcasting world that will be covered by the new BBC Charter will be very different from that of the past and that the BBC needs to adapt to ensure its future. However, RNIB feels that it is essential for the BBC to remain in the forefront of broadcasting in the UK and as such it has a real role to play in ensuring that older people and those with disabilities are not disadvantaged in the future. A strong, independent BBC is essential for the future of digital broadcasting in the UK.

  5.3  RNIB would welcome the opportunity to discuss the issues further with the Committee to ensure that the new BBC Charter provides the right framework to ensure that people with a sight problem are not disadvantaged in the broadcasting world of the future.

  *  Blind and Partially Sighted Adults in Britain: the RNIB Survey, Volume One (1991).

  **  The European AUDETEL Project: Final Report (TIDE 1994).

14th April 2004





 
previous page contents next page

House of Commons home page Parliament home page House of Lords home page search page enquiries index

© Parliamentary copyright 2004
Prepared 16 June 2004