Written evidence from the BBC
PART 1: SUMMARY
1. The following response to the Northern
Ireland Affairs Select Committee has been submitted by the BBC
Trust on behalf of the whole BBC.
— The BBC Trust chaired by Sir Michael
Lyons is the sovereign body of the BBC charged with upholding
the independence of the BBC and representing the interests of
licence fee payers. The Trust sets the strategic agenda for the
BBC and is responsible for the oversight of many of its activities.
— The BBC Executive led by the Director
General is responsible for the editorial direction and management
of the BBC's services.
— The Audience Council for Northern
Ireland (ACNI) provides advice to the Trust on issues of concern
to audiences in Northern Ireland. It is chaired by Rotha Johnston,
the National Trustee for Northern Ireland. The Trust has drawn
extensively on the views of Audience Councils in developing its
current agenda and has taken account of the views of the ACNI
in this response.
2. The Trust, among other responsibilities,
assesses the BBC's performance in providing creative and distinctive
content and in delivering the BBC's public purposes. It is committed
to ensuring that the BBC serves its audiences both in Northern
Ireland and across the UK and that Northern Ireland is adequately
represented in its programmes and services. It draws on the advice
of the Audience Council for Northern Ireland which actively engages
with local audiences to understand how well the BBC is meeting
their needs and serving its public purposes.
THE FUTURE
OF PUBLIC
SERVICE BROADCASTING
3. The Trust has been closely engaged with
the Ofcom review of Public Service Broadcasting. In response to
direction from the Trust, the Executive has developed partnership
proposals to help bring the benefits of the BBC's public investment
to the whole public service broadcasting sector. The Trust is
now actively engaged with the issues raised in Lord Carter's interim
Digital Britain report.
4. The Trust is very aware of issues concerning
digital access and digital switchover, and in particular challenges
in Northern Ireland with regard to phasing with the Republic of
Ireland's switchover scheme. Digital access and changing consumption
patterns are reflected in the audience priorities identified by
the Audience Council and approved by the Trust for its work plan
this year.
REPRESENTING NATIONS,
REGIONS AND
COMMUNITIES
5. A major priority for the BBC Trust since
its creation in 2007 has been to encourage the BBC Executive to
find effective responses to the changing constitutional map of
the UK reflecting devolution in Wales, Scotland and Northern Ireland.
Among the public purposes bestowed on the BBC by its Royal Charter
is the responsibility for `representing the UK, its nations, regions
and communities'.
6. In the Trust's first two years it has
launched a number of significant initiatives to ensure that the
BBC continues to respond effectively in this important area.
7. The Nations Impartiality Review assessed
whether the BBC's network news and current affairs output "was
impartial, accurate and clear as to which facts and views applied
to the individual nations and to consider if the nations' policies
were properly reflected and explained". This led to a number
of recommendations and the Trust—working with the Audience
Councils—is currently monitoring the progress of the Executive
action plan.
8. Another key area for the Trust is the
belief that the BBC should make significantly more content outside
London than it does now, and should base a significantly higher
proportion of staff outside London. In May 2008 the Trust approved
Executive plans to increase the value of network television production
from the Nations from 6 % in 2007 to 17 % by 2016 with an interim
target of 12 % by 2012. The Trust has made it clear that the 17%
target for the nations is a floor not a ceiling.
9. The BBC's more detailed response to the
inquiry on television in Northern Ireland is set out in Part 2.
The response takes account of the views of both the BBC Executive
and the Audience Council for Northern Ireland.
PART 2: DETAILED
RESPONSE
ROLE OF
PUBLIC SERVICE
BROADCASTING
10. The BBC's mission is to enrich people's
lives with programmes that inform, educate and entertain. BBC
network services include eight television channels and ten radio
stations. The BBC additionally provides over forty local radio
stations in England and national television and radio services
for audiences in Scotland, Wales and Northern Ireland. This output
is complemented by an extensive website (which combines UK-wide
and region-specific content) and developing interactive services.
It is funded through licence fee income from UK households (£142.50
for a colour licence in 09/10—equivalent to c39p/day) and
monies generated through the commercial activities of BBC Worldwide.
11. The BBC aims to provide something of
value for everyone in the community based on the BBC's Charter
remit and its six Public Purposes, which are set out below:
— Sustaining citizenship and civil
society
— Promoting education and learning
— Stimulating creativity and cultural
excellence
— Representing the UK, its nations,
regions and communities
— Bringing the UK to the world and
the world to the UK
— In promoting its other purposes,
helping to deliver the benefits of emerging communications technologies
and services
12. BBC Northern Ireland's (BBCNI) role
is to reflect all aspects of life in Northern Ireland through
a range of programmes and services for local and network audiences
and consistent with the BBC's Public Purposes and relevant Service
Licence commitments.1 Its output combines programmes with both
specialist and mainstream appeal (from ATL to Blueprint and Our
Wee World) and extends across radio, television and online. The
nature and style of this programming has developed over time,
reflecting changes in technology, wider society and audience needs.
It has also benefitted from significant BBC investment.
13. This has facilitated growth in the scale
and volume of local programming on radio and television and the
BBC has made a strong commitment to increase the percentage of
network production from Northern Ireland. All of this remains
work in progress and is carried forward within the context of
structural, regulatory and other developments affecting broadcasters
and the audiences they serve. It is also informed by a close and
continuing dialogue with local licence fee payers. This involves
regular feedback, public meetings and extensive research. Such
work assists our understanding of what people think about BBC
services and helps us to keep pace with changing patterns of audience
consumption and behaviour.
14. The challenges facing Public Sector
Broadcasting (PSB) and the media industry more generally have
been well-documented in recent reviews including Ofcom's PSB review
and the Government's Digital Britain interim report.2 BBCNI has
the security of Licence Fee income, but is not immune from some
of these challenges. However, despite the financial constraints
affecting its work (BBCNI will make 18% efficiency savings over
the 5yr period to 2012/13), the BBC as a whole remains well-placed
to assist the maintenance of PSB plurality and the transition
to a fully digital UK. It is committed to achieving these objectives
through a series of enabling partnerships and more collaborative
working with other organisations.3
15. Subject to approval from the Trust,
these will include the sharing of technology, such as the iPlayer,
and developing a common standard for IPTV. The BBC is also undertaking
joint work with commercial radio, television and local newspapers,
and new initiatives with libraries and educational bodies. Such
activities will unlock the value of existing public investment
in the BBC without compromising its reach, scale or long-term
viability. All of these ambitions are informed by the principles
which have underpinned the development and durability of BBC services
over several generations. These include the availability of content
free at point of use, universality of provision for the whole
UK, high quality, open standards, value for money and audience
empowerment.4
16. BBCNI's mixed genre service includes a significant
volume of locally produced/relevant television programming (estimated
at 668hrs in 08/09). Its scheduling is matched against audience
need and availability and routinely attracts large audiences.
A key objective is to provide distinctive, high quality output
which both reflects, and engages with, local society in all its
changing diversity. This includes coverage of major sporting events,
documentaries, entertainment and comedy programming. Much of BBCNI's
non-news television output is produced by the independent production
sector (35% in 08/09)—underscoring the BBC's contribution
to the wider creative industries in Northern Ireland. Minority
language programmes (which form part of a new development strategy)
are carried on BBC2. An increasing percentage of locally-produced
output is now also available as part of the BBC iPlayer service.
17. BBCNI provides two radio services for
audiences in Northern Ireland—BBC Radio Ulster and Radio
Foyle. These stations deliver speech-based content across a range
of genres, including news, factual, the arts and entertainment
and enjoy popular appeal (with an audience share of over 24% of
all radio listening in Northern Ireland in Q4/08). Listener involvement
and interaction are defining characteristics of their output—whether
through phone-in programmes, storytelling slots or outside broadcast
activities.
18. This connection with local people and
events is also assisted by BBCNI's network of area-based reporters.
Both stations additionally provide a showcase for performers,
writers and production talent. They offer a forum for encounter
and (sometimes impassioned) debate and seek to describe and explain
the many different issues affecting local communities. Music-making
in all its forms is also an important part of Radio Ulster/Foyle's
output and includes regular concerts by the Ulster Orchestra—reflecting
the BBC's unique financial and broadcast commitment to creative
excellence in classical music.
19. BBCNI has a developing online service and
capability. It provides access to dedicated news and programme
related material and also includes locally relevant learning resources.
Whilst news content drives most BBCNI website usage (with significant
surges in activity coinciding with political and related developments),
historical and cultural themes also resonate strongly for BBC
audiences in Northern Ireland.
20. It is expected that multi-platform commissions
and the web-streaming of BBCNI radio and television programmes
will continue to drive online traffic and encourage broadband
uptake more generally. BBC-led proposals for the creation of an
internet-based television service, working in partnership with
other broadcasters, are also expected to increase levels of online
consumption.
21. BBCNI has been working to develop the scale,
impact and sustainability of local network production activity.
New and stretching targets have been set by the BBC Trust in this
area. These will facilitate a growth in locally-based network
television production to c3% of the UK total by 2016 and will
include comedy, drama, entertainment and factual programming.
Network current affairs production will also increase. The economic
and cultural benefits which will flow from this development are
significant.
22. Much of this activity will be driven
by the independent sector. It will be facilitated by new BBC commissioning
processes and work is currently underway to strengthen local network
production capabilities and to explore how commissions from Northern
Ireland can better reflect the lifestyles and experiences of local
communities to UK-wide audiences. All of these developments form
part of a strategic commitment to the creation of a "more
networked BBC" built around "centres of creative production
expertise linking every part of the country".5
23. Partnerships are an important feature
of the BBC's work in Northern Ireland. These include commissions
with other broadcasters (including RTE and TG4); collaborative
projects on a pan-nations basis within the BBC; joint work with
local museums, libraries and community organisations on a range
of archive and media literacy initiatives; broadcast partnerships
with local sports bodies; developing links with Queen's University,
Belfast (building on the success of BBCNI's Writer in Residence);
and work with a range of educational bodies. Extending and deepening
these links will be a key priority for the coming period—reflecting
wider BBC ambitions and the enabling effect which our involvement
can have in creating public value beyond broadcasting.
DIGITAL SWITCHOVER
24. Digital switchover will provide important
benefits for viewers in Northern Ireland, including access to
additional channels and services and the more widespread availability
of Digital Terrestrial Television (DTT). Its effective implementation
(in both technical/logistical and audience terms) will require
close co-operation on an inter-agency and cross-border basis—reflecting
issues linked to the phasing of switchover in the Republic of
Ireland and the distinctive characteristics of our local broadcasting
environment.
25. BBCNI is committed to playing an active
role in this process. It is expected that Digital UK will co-ordinate
much of the support activity for consumers on the practicalities
of switchover, with accompanying programme endorsement from the
BBC and other broadcasters.
26. The BBC has additionally been charged
with responsibility for a Help Scheme to assist the most vulnerable
people in negotiating the switch to digital television. BBC work
in this area reflects its role in making new technologies available
to "all audiences no matter who they are or where they live"
and its contribution to the creation of a fully connected digital
society. Recent investments in Digital Audio Broadcasting (DAB)
at local level (the BBC's national multiplex is now available
to c90% of listeners in Northern Ireland) are an important part
of this commitment. The BBC has also offered to play a lead role
in the further roll out of DAB and in developing a new standard
for IP radio.
27. The growth and audience appeal of this
platform beyond BBC services however, may require some level of
regulatory intervention in addition to the contribution which
the BBC can make to its development, working in association with
others. Progress towards FM equivalence for this platform has
financial and spectrum management implications and these will
also need to take account of cross-border considerations.6
NEWS, CURRENT
AFFAIRS AND
OTHER PROGRAMMING
28. News and current affairs is a core element
of BBCNI's service offering across all platforms. Such output
attracts large and appreciative audiences (with BBC Newsline's
combined weekday bulletins securing an average weekly reach of
47% and some of the highest audience appreciation scores across
regional news in 2008). Our programming seeks to report and analyse
developments affecting local audiences, making use of region-wide
newsgathering capabilities and specialist correspondents.
29. It also includes dedicated coverage
of proceedings at Stormont and Westminster on BBCNI television
and radio. Such output is complemented by long-running, and consistently
popular, programme strands on political themes, including Hearts
and Minds and Inside Politics. It will be further enhanced with
the launch of the BBC's Democracy Live initiative which will allow
for the web-streaming of Northern Ireland Assembly debates and
enhanced coverage of the UK's other legislatures.
30. All of this programming contributes
to the healthiness of local democracy. It facilitates the free
and effective flow of information and the scrutiny of decision-making.
Proposals are currently under consideration which will further
develop the reach and localness of BBCNI's news coverage and strengthen
its journalism. These developments will be accompanied by the
consolidation of locally-produced network current affairs output
and work to secure improvements in BBC network news coverage of
local stories.
31. New commitments in this area reflect
some of the shortcomings identified in a recent BBC Trust report
by Professor Anthony King.7 Early and significant progress has
already been made in addressing these deficiencies and a key priority
will be to maintain and build upon these gains over the coming
period.
32. Securing the plurality of news provision
in addition to that provided by the BBC is an important democratic
safeguard. We have been working to explore how the BBC's infrastructure
might be used to facilitate this objective whilst avoiding any
adverse or limiting effect on editorial plurality and audience
choice. The basic elements of this partnership approach (which
may also have wider application) were detailed in a Memorandum
of Understanding between the BBC and ITV regarding regional news
provision in England and Wales.8
33. Discussions about the arrangements which
may be required to address potential PSB news deficits in Northern
Ireland are at a different stage of development—reflecting
UTV's assessment of its ability to maintain its television news
programming in the short-medium term and the issues which it has
identified around resource-sharing with the BBC.9 We recognise
that the future of PSB news provision at nations and regional
level is part of a wider (and still fluid) debate. BBCNI is committed
to playing an active role in these discussions and to working
with others to secure a cost-effective and sustainable outcome
for local audiences.
ROLE OF
BROADCASTING IN
A DEVOLVED
NATION
34. BBCNI's work has been likened to that
of both a mirror and window—providing a means by which local
communities can see themselves and each other and a window through
which their lives and concerns can be seen and shared by others.
10 BBC audiences in Northern Ireland recognise the interconnectedness
and importance of these two roles. BBCNI's local programming is
comprehensive and diverse. It mixes localness with regional reach
and appeal and has the capacity to bring the whole community together
in its coverage of landmark events or themes.
35. Commissions for local television and radio
additionally provide a fundamental and sustaining basis for the
independent production sector.The growth of network output should
help to secure its viability and provide important benefits for
BBC audiences, reflecting the significance which they attach to
cultural representation.
36. BBCNI investment in high-quality original
programming is at the core of its Charter role and will remain
critically important in the digital age. Securing its place and
building on established strengths in a fast-changing environment
will require flexibility and innovation. Government's recognition
of the BBC as "the cornerstone of our audio-visual public
services"11 is welcome in this context and should provide
the basis on which longer-term plans can be made for the benefit
of all UK audiences.
37. Local priorities will include: work
to manage the complexities of digital switchover, and taking account
of cross-border issues and lower than average uptake of digital
services in Northern Ireland; media literacy and the development
of new broadcast and community partnerships which are predicated
not on transferring value, but on creating it; work to better
reflect local society in all its different aspects and in ways
which make use of new technologies and community participation;
and maintaining the breadth, editorial ambition and appeal of
our service offering.
May 2009
REFERENCES1 BBC
Charter and Agreement
http://www.bbc.co.uk/bbctrust/framework/charter.html
BBC Royal Charter
http://www.bbc.co.uk/bbctrust/assets/files/pdf/regulatory_framework/charter_agreement/royalchartersealed_sept06.pdf
BBC Service Licence agreements (index to all Service
Licences)
http://www.bbc.co.uk/bbctrust/framework/bbc_service_licences/index.html
2 Ofcom (21 January 2009) Ofcom's Second Public
Service Broadcasting Review: Putting Viewers First—Final
statement and r recommendations
http://www.ofcom.org.uk/consult/condocs/psb2_phase2/statement/psb2statement.pdf
Department for Culture, Media and Sport (January
2009) Digital Britain—The Interim Report
http://www.culture.gov.uk/images/publications/digital_britain_interimreportjan09.pdf
House of Lords Select Committee on Communications
(8 April 2009)
Public Service broadcasting: short-term crisis,
long-term future? Report with Evidence
http://www.publications.parliament.uk/pa/ld200809/ldselect/ldcomuni/61/61.pdf
3 BBC (2008) Public Service Partnerships:
Helping sustain UK PSB
http://www.bbc.co.uk/thefuture/pdf/phase2/partnerships.pdf
4 BBC (23 March 2009) Digital Britain: the
BBC's role—the BBC's Executive's response to Digital Britain—The
Interim Report, page 4
http://www.bbc.co.uk/thefuture/pdf/digital_britain_exec.pdf
5 Jana Bennett—Director, BBC Vision (15
October 2008) Beyond the M25: A BBC for all the UK Speech to
the Royal Television Society
http://www.bbc.co.uk/pressoffice/speeches/stories/bennett_beyond_m25.shtml
6 BBC (23 March 2009) Digital Britain: the
BBC's role—the BBC's Executive's response to Digital Britain—The
Interim Report, page 36
http://www.bbc.co.uk/thefuture/pdf/digital_britain_exec.pdf
7 BBC Trust (June 2008) The BBC Trust Impartiality
Report: BBC Network News and Current Affairs Coverage of the Four
UK Nations
http://www.bbc.co.uk/bbctrust/assets/files/pdf/review_report_research/impartiality/uk_nations_impartiality.pdf
8 Memorandum of Understanding between BBC and
ITV
http://www.bbc.co.uk/pressoffice/pressreleases/stories/2009/03_march/12/news.pdf
9 UTV response the Ofcom Second Public Service
Broadcast Review
http://www.ofcom.org.uk/consult/condocs/psb2_phase2/responses/utv.pdf
UTV submission to the House of Lords Select Committee
on Communications' inquiry into public service broadcasting
http://www.publications.parliament.uk/pa/ld200809/ldselect/ldcomuni/61/61we03.htm
10 Quote from Sir Kenneth Bloomfield, former
National Governor BBCNI, taken from the BBCNI Annual Review 1998/1999,
reprinted in Chronicle—The Story of BBC News in Northern
Ireland page 69
11 Department for Culture, Media and Sport (January
2009) Digital Britain—The Interim Report, page 51.
http://www.culture.gov.uk/images/publications/S3_digital_britain_interimreportjan09.pdf
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