Broadcasting systems
The broadcaster and the government
Most observers recognize that no broadcast organization can be wholly independent of government, for all of them must be licensed in accordance with international agreements. Although broadcasters in democratic countries pride themselves on their freedom with respect to their governments, they are not always free of stockholder or advertiser pressure, nor are producers and editors truly independent if senior executives, under pressure from whatever source, interfere with their editorial functions. Independence, therefore, is a relative term when it is applied to broadcasting.
In a monograph that was written for the European Broadcasting Union, broadcasting systems are classified under four headings: state-operated, those that work under the establishment of a public corporation or authority, those whose systems are a partnership blend of public authorities and private interests, and those under private management. A brief summary of these systems provides an indication of the complex variations that have arisen.
State operation
Grouped under this heading are broadcasting systems that are operated by a government department or delegated to an administration, perhaps with a legal personality and even possibly independent in financial and administrative matters, but subject to the government and not essentially autonomous. Under this heading came the systems in most communist countries. In the Soviet Union a special committee was set up in 1957 to be in charge of Soviet radio and television under the direct authority of the U.S.S.R. Council of Ministers. Similar arrangements were made in Czechoslovakia and Poland, except that the committees were given a legal personality. Romania had delegated broadcasting to a committee attached to the Council of Ministers. All-India Radio is a department of the Ministry of Information and Broadcasting. Similar arrangements are common in countries that were colonies but have gained their independence since World War II.
Establishment of a public corporation or authority
The BBC has been the prototype of this kind of system. Provided it abides by the charter and terms of the license under which it operates, the BBC has maximum independence as regards the disposal of its funds (although its revenue is subject to governmental decision as to the cost of the license that is required for every television or radio receiver), the production and scheduling of programs, and, above all, editorial control. Certain residual government powers are either hedged around with agreed provisos or never exercised. Its income, save for profits on the sale of programs abroad and the sale of various phonograph records and publications, is exclusively derived from licenses. External broadcasting (i.e., broadcasting to areas outside national boundaries) is separately financed. The chairman and Board of Governors constitute the legal personality of the BBC; they are chosen by the government not as representatives of sectional interests but on the basis of their experience and standing. Political parties in office have been careful to avoid political prejudice in these appointments.
The Canadian Broadcasting Corporation (CBC), or Société Radio-Canada, also has substantial independent powers as determined by the Broadcasting Act of 1958 and its two successors, passed in 1968 and 1991. These later acts responded to technological as well as social changes, such as the specific needs of the regions and the aspirations of French-speaking Canadian citizens. The CBC is dependent on an annual parliamentary grant for its finance, supplemented by an income derived from advertising that amounts to about one-quarter of its annual revenue. Canadian broadcasting as a whole is a mixed system, with private broadcasting companies operating alongside the CBC.
The Japan Broadcasting Corporation, or the Nippon Hōsō Kyōkai (NHK), was charged by a series of acts in 1950 with the task of conducting “its broadcasting service for the public welfare in such a manner that its broadcasts may be received all over Japan.” The NHK Board of Governors is appointed by the prime minister with the consent of both houses of the Diet. The system is financed almost exclusively from the sale of licenses for receiving sets. Private broadcasting, allowed since 1950, has led to the creation of 170 private broadcasting companies.
Though German broadcasting is properly included in this category, the situation there is substantially different, for the basic radio and television services are a matter not for the federal government but for the individual states (Länder). The state broadcasting organizations are also grouped together in a national organization, the First German Television network. In each state, though there are some variations, there are a broadcasting council that is appointed by the legislature or nominated by churches, universities, associations of employers or trade unions, political parties, or the press; an administrative council; and a director general. Their revenue comes from receiving-set licenses and sometimes also from advertising.
The broadcasting system in Belgium provides an interesting example of a device that has been used successfully for coping with a two-language country. There are three public authorities: one for French broadcasts, a second for Flemish, and a third that owns the property, owns and operates the technical equipment, and is responsible for the symphony orchestra, record library, and central reference library.