Memorandum submitted by Help the Aged
SUMMARY
"My old TV is packed up and I need to buy
a new one—a big investment for me. On going round the stores
I found myself a bit bemused. Do I want widescreen where some
people look squashed as in a distorted mirror? Will this be obligatory
in future? I looked at an analogue set and nobody said it would
be switched off in the future. There was mention of "a box".
It seemed nobody had time to explain anything."
Letter to Help the Aged
— People over 50 watch more television
than anyone else in the UK. Over 65s watch over five hours per
day compared to around 3½ hours for all ages and just over
four hours for 55 to 64 year olds.
— Many older people remain unconvinced
of the benefit of switch-over. A survey by Help the Aged at the
Pensioners Parliament in July 2005 revealed that 25% of delegates
saw switch-over as an opportunity, but the majority (57%) saw
it as a threat.
— Help the Aged believes that Digital
TV has the potential to deliver, at an affordable cost, a wide
range of useful services to some of the most vulnerable older
people in the UK.
— Across the board, many consumers
remain confused by the process of switch-over with only around
30% aware of the impending change (in advance of the formal announcement).
— As takeup increases, digital TV could
help tackle the digital divide by increasing access to interactive
information and services to older people and to those in lower
social classes.
— For the most disadvantaged groups
to benefit from digital TV as a potential information tool, Government
should not miss the opportunity of developing a cross departmental
programme which would ensure that all older people can use digital
TV as a route into a wide range of activities, services and information.
— We are concerned to ensure that the
process of developing the detailed proposals of support for vulnerable
consumers will be an open one and expect to be consulted on the
detail.
— Help the Aged believes that Switchco/Digital
UK should set up a focus group of older people to consult on the
information it plans to produce for switch-over.
— Help the Aged is concerned that the
voluntary sector will be asked to fill gaps in information about
switch-over, without being funded to do so. We are already receiving
queries about digital TV via our telephone helpline and in writing.
If Government or Switchco/Digital UK want the voluntary sector
to assist in getting information about switch-over to consumers,
we will need financial support to do so.
— The initial consumer leaflets about
switch-over do not inspire confidence that older people's information
needs are being provided for. The use of language such as "scart
cables" and "ADSL" may be appropriate for some
older consumers but care needs to be taken to ensure that information
is inclusive and accessible, avoiding jargon and technical language
as well as being available in a wide range of formats and languages.
— The Government should put pressure
on the industry to begin to better consider the needs of older
people through design of hardware and software.
— Sadly, with new initiatives like
the move to digital TV, a small number of older people are likely
to find themselves being targeted by rogue traders or bogus callers
using digital TV as an excuse to get into the homes of vulnerable
older people. Local police, Government and trading standards officers
must be on their toes to monitor local activity and must ensure
that any such activity is cracked down upon. The DTI must progress
activity on developing a charter mark or equivalent which will
give older people confidence in the aerial installers.
— The Government must launch a major
information campaign targeted at private landlords, care homes
and other housing providers, as well as people living in this
accommodation in order to prepare them for switch-over.
INTRODUCTION
2.1 Help the Aged was set up in 1961 to
respond to the needs of poor, frail and isolated older people
at home and overseas. As a national organisation we campaign with
and on behalf of older people, raise money to help older people
in need and provide direct services where we have identified a
gap in provision.
2.2 Help the Aged have an expert knowledge
of issues around digital television and over the past year we
have worked closely with the DCMS, Switchco/Digital UK and Ofcom
to ensure that digital switch-over does not disadvantage older
people. Help the Aged were members of the Digital TV Action Plan
Stakeholders Group and are currently members of the Switchco/Digital
UK Consumer reference group and the DCMS Consumer Expert group.
2.3 Help the Aged gives advice and information
on a variety of issues to 100,000s of older people every year.
SeniorLine, our free and confidential telephone advice service,
answers 75,000 calls a year, around a third of which concern benefits
issues. The Charity produces easy-to-understand information leaflets
on a wide range of issues and disseminates around 3 million of
them each year.
BENEFITS OF
SWITCH-OVER
Help the Aged believes that Digital TV has the
potential to deliver a wide range of useful services to some of
the most vulnerable older people in the UK. Digital services could
improve television for people with disabilities through the provision
of audio description. It could offer internet and email access
for older people together with innovative and interactive services
which could transform the way vulnerable groups access public
services. Furthermore, switch-over should enhance reception and
could enable the broadcasters to make savings on their transmission
costs.
Some people have been paying (through the licence
fee) for digital services since 1998 but have been unable to receive
them and switch-over will allow the 20-25% of the population without
digital terrestrial coverage to have this option.
However, despite these advantages many older
people remain unconvinced of the benefit of switch-over. A survey
by Help the Aged at the Pensioners Parliament in July 2005 revealed
that 25% of delegates saw switch-over as an opportunity, but the
majority (57%) saw it as a threat. 18% had no view. This is particularly
disappointing for digital switch-over given that those in attendance
represent the more active older people and are therefore probably
more likely than the general population to understand and be convinced
of the potential of digital TV.
Across the board, many consumers remain confused
by the process of switch-over with only around 30% aware of the
up-coming changes (in advance of the formal announcement). There
remains some confusion about the impact of switch-over and of
course, consumers are continuing to buy analogue TV sets.
A small percentage of the population are currently
telling surveys that they will refuse to upgrade to digital TV.
There will be a need to continue to monitor how the "principled
objectors" respond to the process of switch-over as there
are risks of further social exclusion if there are small numbers
of older people who simply refuse to switch-over or are unable
to do so. The estimated number of principled objectors is around
5% although recent research implies the figure could be higher.
An article in the Daily Mail (23 September 2005) suggested
that "About 60% of the population already has digital TV—in
the form of Sky, cable or the Freeview service. But researchers
found that, of the remainder, more than half say they `never will'
make the switch—the equivalent of about 20% of the population.
Opposition to the new technology is particularly high among the
over-65s, with more than a third vowing never to go digital."
However, it is important to note that whilst
there remain concerns around the switch-over process amongst older
people, those early adopters tend to be remarkably positive about
digital TV, as was highlighted by the technical trial in Wales.
DIGITAL TV COULD
TACKLE THE
DIGITAL DIVIDE
The table above shows how, if digital TV was
used as a delivery tool for improving access to government services
and other information and products, there is some potential for
using the technology to tackle the digital divide. The figures,
which have been provided by Yoomedia, highlight the idea that
digital TV is potentially more socially inclusive than internet
access. In other words, it is already the case that digital TV
accesses sections of the community which the internet is still
failing to reach.
Case Study
Digital TV Content company, YooMedia hosted
an "e-consultations demonstration" on IDTV for the Department
of Health in December 2002 using YooMedia's proprietary chat technology.
An orthopaedic consultant and a physiotherapist guided and answered
six patients' questions about hip replacement operations. The
results of the trial were extremely positive with both the patients
and the doctors agreed that "e-consultations" on IDTV
were an effective method to answer questions and concerns.
As take-up increases, digital TV could begin
to tackle the digital divide by increasing access to interactive
information and services to older people and to those in lower
social classes.
However, to benefit from some of the most exciting
opportunities offered by digital transmission requires more than
the cheapest, basic set top box. The Netgem set top box, for example,
offers audio description of programmes and internet access, but
it costs about £100 compared with £30 and upwards for
an entry level box. For the most disadvantaged groups to benefit
from this potential information tool, Government should not miss
the opportunity of developing a cross departmental programme which
would ensure that all older people can use digital TV as a route
into a wide range of activities, services and information.
Case Study
The Glasgow Housing Association have developed
an "Access for All" project. Through a Pilot in Drumchapel
and Dalmarnock 600 homes in six high rise blocks have been introduced
to a range of housing and council information services, including
interactive communications, directly into their homes. The project,
which seeks to provide affordable access to the world wide web
through digital television for all residents, has delivered interactive
housing support and has been supported by a one to one tailored
training programme and a remote help desk facility.
FEASIBILITY OF SWITCH-OVER
TIMETABLE
As late as May 2004, the Digital TV Project
were working towards an estimated timeframe of "Completion
by 2010, as an option". The timetable now set is planned
to happen between 2008 and 2012. This timetable is probably realistic
from a consumer point of view, although this relies upon excellent
information and support for older people.
Older people can currently access digital TV
via Satellite, Cable, Broadband connection or digital terrestrial.
There has, over recent years, been a big increase in takeup of
freeview set top boxes. However, the market alone will not deliver
takeup of digital TV to enable switchoff by 2010. Government intervention
will therefore be necessary and has now been promised through
its proposed support packages.
ACCESS TO
DIGITAL TV
It remains the case that some 25% of homes cannot
currently access digital TV through terrestrial aerial (freeview
signal). This figure will not increase until after the analogue
signals are switched off. However, there are, through the new
free satellite provision, alternative possibilities for some individuals.
The announcement of the Freesat service from
Sky and the recent announcement of a BBC/ITV equivalent, which
will give access to digital services by satellite to the substantial
minority of the population who are unable to access terrestrial
or cable digital TV, has alleviated one of Help the Aged's major
concerns about switch-over.
The £150 initial cost of a Freesat setup
will be prohibitive for some older people and in some areas planning
restrictions prevent the use of Satellite TV. It remains a concern
that some may not be able to obtain a freeview signal until switch-over
begins.
Help the Aged firmly believes that no-one should
lose access to television as a result of digital switch-over.
In 1999 the then Culture Secretary Chris Smith
set a coverage test which required that digital TV should be available
to everyone currently able to access the main public service broadcasting
channels in analogue, before switch-over. This is now not considered
possible before switch-over. However, Help the Aged believes that
the commitment to full access should be maintained at the point
of switch-over.
RESOURCES
If switch-over is to be the success it should
be, Help the Aged believes that Switchco/Digital UK needs to be
properly resourced. We are concerned that Switchco/Digital UK
will not have adequate funding to ensure good information provision
and to deliver a vulnerable assistance scheme. The Government
must ensure adequate funding is in place.
COSTS OF
SWITCH-OVER
Cost to consumers
The cost of switch-over will fall mainly on
the consumer and is likely vary between £40 and £500
per household.
| Costs to the consumer[6]
| | | |
| Adapt 1 TV and re-plug VCR: | £40 to £80
| | |
| Adapt 2 TVs and re-plug VCR: | £80 to £160
| | |
| Adapt 2 TVs, one with twin tuner PVR for reordering:
| £350 | |
|
| Add new roof aerial: | £150
| | |
| | |
|
Some homes will need new TVs/Set top boxes/videos/aerials,
and whilst at the cheapest end of the scale homes can upgrade
for £30-40, at the other end of the scale some estimate switch-over
could cost in excess of £500. A further additional cost for
many older people may involve installation support even for the
most basic set top boxes. It is clear that cost will be a significant
factor for many older people, notwithstanding the support provided
for some vulnerable older people.
It remains worrying that for those people who buy television
equipment now, many are not aware that switch-over will take place
during the expected lifetime of television sets bought today.
Costs to Industry, Government and the Broadcasters
There are a wide range of experts who have estimated the
cost benefit of switch-over to a variety of different bodies.
We are not in a position to validate any estimates but it remains
disappointing that a significant cost of switch-over will fall
on the consumer.
Government will, over time, announce full details of the
support it will provide for vulnerable consumers. Whilst we do
not wish to comment on the source of funding for switch-over,
it is essential that Switchco/Digital UK and the DCMS have adequate
funded in order to meet their various obligations including support
for vulnerable consumers.
PROTECTING VULNERABLE
GROUPS
We believe that switch-over should be broadcaster-led but that
the final decision on timetable should balance these benefits
against the need to ensure that the interests of the most vulnerable
consumers are protected. I have therefore asked Ofcom's independent
consumer panel to consider what measures might be necessary to
ensure this protection and to report to me later this year with
their advice. We will also take advice from leading charities.
The Government's final endorsement of a timetable will be subject
to being satisfied that adequate measures are in place to meet
this objective.
Tessa Jowell MP, Ministerial Statement, July 2004
Subsequently, an Ofcom Consumer Panel Report, led by Collette
Bowe at the request of the Minister, suggested that:
"SwitchCo, . . . should develop a process—working
closely with the voluntary sector and local government—to
identify people in need of help through switch-over and provide
a scheme offering practical support. We estimate that a national
scheme along these lines could cost in the region of £110
million.
Financial assistance should be offered to people currently eligible
for TV licence fee exemptions or concessions (people over 75 or
registered blind) in order to meet the costs of one-off purchases
of equipment and any necessary aerial upgrade work needed to make
the transition to digital. We estimate that the costs of such
assistance could lie between £134 million and £270 million.
Significant and rapid attention must be paid to the particular
requirements of people with disabilities, especially those with
vision or hearing impairments, in order to ensure that suitable
equipment at reasonable cost will be readily available."
The Labour Manifesto, published earlier this year, gave a
firm commitment to a timetable of 2008-12 and on 15 September
2005, the Government confirmed this timetable and announced the
scope of the support scheme for the most vulnerable households
which would ensure that:
— help will go to all households with one person
aged 75 or over;
— help will go to all households with one person
with a significant disability (receiving attendance allowance,
disability living allowance);
— help will be available free of charge to households
with one person aged 75 or over/disabled households receiving
pension credit, income support or jobseekers allowance; other
households will pay a modest fee; and
— specific support for households where one person
is blind.
Assistance will consist of providing the necessary equipment
to convert one TV set and the relevant support to install and
use the equipment. Equivalent arrangements will be made to provide
assistance if a different platform for receiving digital is opted
for.
The DCMS press release added "Further details of how
the scheme will operate in practice need to be developed by the
BBC and the Government." This raises a significant question
as to the role of Switchco/Digital UK. We understand that Switchco/Digital
UK will be responsible for the implementation of any support packages
for vulnerable groups and we are therefore concerned about the
coordination of how the support packages will be delivered.
Help the Aged welcomes the proposed package of support for
over 75s and for people with disabilities. However, we are anxious
to ensure that the process of developing the detailed proposals
of support for vulnerable consumers will be an open one and expect
to be consulted on the detail. In a letter to Help the Aged, dated
4 May 2005, Richard Caborn MP committed the Government to "a
wide consultation in the area" of support for vulnerable
groups. He confirmed that "We will ask the BBC to help establish
and fund schemes for the most vulnerable consumers, including
the elderly". We are concerned that the Government does not
forget its commitment to consult.
INFORMATION SUPPORT
In a presentation by Michael Starks of the Digital TV Project
in February 2004 he noted that a foundation of switch-over must
be "Public understanding of the reasons for switch-over".
Help the Aged remain concerned about the importance of good information
support, particularly for vulnerable consumers.
The process of switch-over will not be simple. There will
be a 4 year switch-over period, during which time different regions
and channels will be switched off at different times. There is
a real potential for confusion and worry amongst older people.
The provision of consumer information and support is therefore
vital and a programme of consumer information needs to be tied
into the switch-over timetable.
Consumers need access to information about when switch-over
will take place in their area, what platforms will be available
to them, whether they will need a new aerial and how the transition
will be managed in areas without existing digital terrestrial
coverage.
We remain concerned that some of the providers of digital
services continue to charge national call rates (0870-0871 numbers)
on their telephone helplines. We know that many older people will
not call national rate or even local rate numbers. We very much
welcome the decision by Switchco/Digital UK to provide a freephone
number for older people and other vulnerable groups. We believe
the Government should ensure SwitchCo/Digital UK has sufficient
funding to provide clear information to older people.
The initial consumer leaflets about switch-over do not inspire
confidence that older people's information needs are being provided
for. The use of language like "scart cables" and "ADSL"
may be appropriate for some older consumers but care needs to
be taken to ensure that information is inclusive and accessible,
avoiding jargon and technical language as well as being available
in a wide range of formats and languages. We understand that whilst
the initial launch advertisements were tested on focus groups,
none of these included anyone over the age of 65.
Help the Aged believes that Switchco/Digital UK should set
up a focus group of older people to consult on the information
it plans to produce for switch-over.
Some information is available via the internet. However around
80% of over 65s have never used the internet and the majority
of vulnerable older people do not use the internet for information.
If websites are used to disseminate information, they must meet
best practice standards for accessibility and should be available
in a range of languages.
Help the Aged is concerned that the voluntary sector will
be asked to fill gaps in information about switch-over, without
being funded to do so. We are already receiving queries about
digital TV via our telephone helpline and via letters. If Government
or Switchco/Digital UK want the voluntary sector to assist in
getting information about switch-over to consumers, we will need
financial support to do so.
Help the Aged are concerned that we did not receive the information
providing "FAQs" designed for our own telephone helpline
and information services until the day before the announcement
of the timetable. This made it impossible to disseminate the information
to regional and local contacts in advance of the announcement.
EQUIPMENT SUPPORT
A recent letter to Help the Aged demonstrated some of the
problems older people are facing in gaining information about
their options in a digital age. The writer said:
"My old TV is packed up and I need to buy a new one—a
big investment for me. On going round the stores I found myself
a bit bemused. Do I want widescreen where some people look squashed
as in a distorted mirror? Will this be obligatory in future? I
looked at an analogue set and nobody said it would be switched
off in the future. There was mention of `a box'. It seemed nobody
had time to explain anything."
Part of the problem relates to the fact that retailers have
little incentive to sell set top boxes as they do not make much
profit from doing so. We believe there is a need for much better
staff training on the issue of switch-over. Retailers should exemplify
excellent practice when dealing with vulnerable consumers seeking
information on and access to digital television.
ACCESSIBILITY OF
DIGITAL TELEVISION
The Accessibility of digital television will play a vital
part in ensuring that vulnerable groups are protected at switch-over.
The report from the technical switch-over trial in Ferryside
and Llansteffan revealed that "A small minority needed lot
of support—mostly the very elderly and the disabled".
They noted however, that in general age was not a barrier to using
and enjoying digital television and that many "older people
were very keen—they tend to watch a lot of TV and appreciated
the additional choice".
However, the report also revealed that the "Additional
remote controls were a problem for some, especially the elderly.
Many older people would have preferred a simple remote control
with big buttons for the 3 basic functions". They added "Some
elderly users found difficulty with directional remote controls
that needed to be pointed directly at the set top box (rather
than at the TV) many also had a tendency to hold down the buttons
on the remote control, or to press them more than once, leading
to difficulties in channel selection."
Research under the banner of "Easy TV", published
in 2002 highlighted the need for easier to use domestic digital
TV receiver equipment. Results presented by Easy TV, of a major
survey of the public's attitudes to the ease of use of digital
and interactive TV, showed that on average the public perceived
digital and interactive TV to be as difficult to use as a personal
computer (PC). "Elderly and female respondents were most
likely to report perceiving digital and interactive TV to be difficult
to use".[7]
Finally, Digital Television for All (September 2003) by The
Generics Group on behalf of the DTI, highlighted the problems
faced by older people with the move away from analogue television
towards digital (DTV). The report estimated the extent to which
people with some level of capability loss (reduced dexterity,
impaired vision and hearing, and impaired cognitive functioning)
would be excluded from accessing DTV using current equipment.
It estimated that two million people (4.4% of those able to access
analogue television) could be excluded from simply viewing the
new digital terrestrial television set top boxes at switch-over.
A further 700,000 people would be excluded from using advanced
features such as digital text and interactive services.
The report also noted that 15% of viewers who want digital
terrestrial television would need technical assistance to set
up. It has been suggested that one major electronics retailer
has up to 25% of set top boxes returned because individuals cannot
install them. In responding to the report, the DTI stated that
it would take forward recommendations and work with the industry
on how best to take forward action to address issues of accessibility
and usability.
The Government should put pressure on the industry to begin
to better consider the needs of older people through design of
hardware and software.
ROGUE TRADERS
AND BOGUS
CALLERS
Sadly, with new initiatives like the move to digital TV,
a small number of older people are likely to find themselves being
targeted by rogue traders or bogus callers using digital TV as
an excuse to get into the homes of vulnerable older people. Local
police, Government and trading standards officers must be on their
toes to monitor local activity and must ensure that any such activity
is cracked down upon. The DTI must progress activity on developing
a charter mark or equivalent which will give older people confidence
in the aerial installers.
CARE HOMES,
SHELTERED ACCOMMODATION,
PRIVATE RENTED
ACCOMMODATION, HOUSES
IN MULTIPLE
OCCUPATION
There remain major concerns about the move to digital TV
in relation to older people living in homes they do not own. Around
570,000 people live in Care homes for example. Help the Aged is
concerned that some vulnerable consumers may be forced either
to pay extra for television services, or left without access to
TV because their landlords are not prepared for switch-over. We
are also concerned that some landlords may be unwilling to upgrade
communal aerials and some tenants may refuse to pay for upgrading
communal aerials.
The Government must launch a major information campaign targeted
at private landlords, care homes and other housing providers,
as well as people living in this accommodation in order to prepare
them for switch-over.
SUPPORT IN
OTHER LANGUAGES
AND FOR
PEOPLE WITH
DISABILITIES
It seems obvious, but Government and Switchco/Digital UK
must provide information in languages other than English and other
formats as appropriate for those with certain disabilities (tape,
Braille etc). There is currently limited information available
in alternative formats.
September 2005
6
Presentation by Michael Starks, Digital TV Project. February
2004. Back
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http://www.itc.org.uk/uploads/UsE-report.pdf Back
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