sou · GPB390d1 · 2002-01-01 00:00:00 — Något annat som påverkar marknadsutvecklingen är priset på avkodare och olika former av subventioner. Ett lägre pris bidrar till en mer positiv marknadsutveckling. Det är flera faktorer som inverkar på detta som konkurrensen på marknaden, den tekniska utvecklingen samt införandet av en gemensam standard för mjuk- och hårdvara i alla avkodare. Regler och tillstånd för de digitala sändningarna (kapitel 6) Vi beskriver vilka regler och lagar som gäller för de digitala mark- sändningarna och hur tillstånden fördelas till programföretag. Vi har redan tidigare i skrivelser till regeringen eller Radio- och TV- verket tagit initiativ till vissa regeländringar. Vi beskriver hur dessa frågor har följts upp i pågående utredningar. Vi bedömer att det för den framtida sändningsverksamheten krävs följande förändringar: N Vi föreslår att en extern aktör får tillstånd att förfoga över en del av den totala överföringskapaciteten. Den externa aktörens utbud bör i princip uppfylla samma riktlinjer och villkor som gäller för urval och tillståndsgivning. De programföretag som föreslås ingå bör godkännas av en myndighet. N Vi föreslår att tillståndsgivningen delegeras till en myndighet. I valet av myndighet bör hänsyn tas till konver- gensen mellan IT-, telekommunikations- och mediesektorerna. N Vi föreslår att de digitala sändningstillstånden i marknätet under nästa period skall gälla . Sändningsverksamheten bör ses över . N Vi föreslår att sändningarna av public service-företagens program skall vara okrypterade och kostnadsfria utöver TV- avgiften. Det är också önskvärt med en ökad tillgänglighet till nordiska public service-program. N Vi föreslår att regeringen vid omförhandlingen av EU:s TV- direktiv verkar för att sändarlandsprincipen ses över. De programföretag som i huvudsak riktar sina TV-sändningar till ett annat land bör omfattas av mottagarlandets regelverk. Den digitala tekniken innebär i sig att frekvensutrymmet kan användas på ett mer effektivt sätt. Inom ett utrymme där det med analog teknik kan överföras endast ett TV-program kan det rymmas upp till sex digitala TV-program. Programföretagen har enligt sändningstillstånden rätt till en viss överföringskapacitet i en specificerad frekvenskanal. Inom detta utrymme skall de sända ett visst utbud. Därutöver har de rätt att sända så många program och tjänster som kapaciteten tillåter. Överföringskapacitet får upp- låtas, men bara till ett annat programföretag inom samma frekvens- kanal. Systemet tillåter därmed en viss flexibilitet men tillåter inte att nya programföretag kommer med i nätet när t.ex. förbättrad teknik skulle möjliggöra detta. En ännu högre grad av flexibilitet kan uppnås med den modell för tillståndsgivning som används i och . Där har man valt att låta en extern aktör förfoga över en del av den totala överföringskapaciteten. Resterande kapacitet har delats ut till public service, regionala programföretag eller andra programföretag som man av speciella skäl önskar ha med eller som har tillstånd att sända i de analoga näten. De programföretag som sänder genom den externa aktören godkänns och får sändningstillstånd av an- svarig myndighet. Vi föreslår att denna modell används i för delar av över- föringskapaciteten. Vissa av programföretagen som redan har till- stånd att sända i det digitala marknätet bör efter tillståndsperiodens slut erbjudas att ingå i den externa aktörens utbud. Public service, de regionala programföretagen och programföretag med tillstånd att sända i det analoga nätet bör även i fortsättningen tilldelas egna tillstånd. Även i ett sådant system kan krav ställas som att sänd- ningarna som helhet skall tilltala olika intressen och smakrikt- ningar, att lokala och regionala program ges företräde samt att flera av varandra oberoende programföretag deltar i sändningarna. Vi anser att tillståndsgivningen bör delegeras till en myndighet. I valet av myndighet bör hänsyn tas till konvergensen mellan IT-, telekommunikations- och mediesektorerna. Myndig- heten bör kunna ge tillstånd både till enskilda programföretag och till operatörer som själva sätter ihop ett programutbud. En myn- dighetsmodell kräver tydliga regler och kriterier för att kunna garantera största möjliga grad av yttrandefrihet och mångfald. Ett sådant system kan kräva lagändringar och det bör därför ses över innan de nuvarande digitala sändningstillstånden löper ut. Vi anser att nästa tillståndsperiod för digitala marksändningar bör vara väsentligt längre än vad som gäller . Motiven för en relativt lång tillståndsperiod är betydligt starkare än de som talar emot. Eventuella nackdelar kan uppvägas av att sändningsverk- samheten ses över . Syftet med översynen är att kunna dela ut fler sändningstillstånd om utrymmet i de digitala frekvenskanalerna så medger. Om något programföretag förverkar rätten till sitt sändningstillstånd bör systemet vara så utformat att det medger att nya programföretag snabbt kan överta aktuellt tillstånd. beslutade att SVT:s och UR:s program skall vara tillgängliga för allmänheten utan villkor om särskild betalning utöver TV-avgiften. I beslutet poängteras att teknik- skiftet från analog till digital TV inte får leda till att tillgängligheten av public service-företagens program blir sämre. Eftersom sänd- ningarna är finansierade genom TV-avgifter skall de digitala pro- grammen kunna tas emot utan krav på ytterligare betalning utöver vad som avser själva avkodarutrustningen. kan de nordbor som bor i gränsområden till inte ta del av de digitala marksändningarna. Det beror på att sändningarna är krypterade och på gällande upphovsrättsliga avtal som inte tillåter mottagning av de digitala programmen från ett annat land än det som avses. Vi anser att sändningarna av public service-företagens program inte bara bör kunna tas emot avgiftsfritt, sändningarna bör även vara okrypterade. Teknikskiftet från analog till digital TV får inte för konsumenterna innebära en sämre tillgänglighet till program- men än vad som gäller . Konsumenterna bör med en enkel digital avkodare kunna ta emot de digitala sändningarna så att övergången innebär så små förändringar som möjligt. De eventuella skäl som finns för krypterade sändningar anser vi vara underord- nade kravet på sändningarnas tillgänglighet. I EU:s TV-direktiv finns en bestämmelse om att den medlems- stat varifrån en sändning härrör skall se till att sändningen följer lagen i den medlemsstaten, den s.k. sändarlandsprincipen. som riktar sig till den svenska publiken kan i och med det placera sina sändningar i ett annat land enbart för de mindre restriktiva reklamreglernas skull. som sänder på svenska till den svenska publiken har utifrån sådana hänsyn valt att sända från . Det gör att de svenska reklam- reglerna som är till för att skydda konsumenterna delvis sätts ur spel. skall det göras en översyn av bestämmelserna i . För de programföretag som riktar sina sänd- ningar till många länder är det svårt att anpassa sig till de olika regelverken i länderna. För de programföretag som i huvudsak rik- tar sina sändningar till ett annat land bör TV-direktivet ändras så att mottagarlandets regelverk gäller. Our task has been to observe and evaluate the first stage of the rollout of terrestrial digital television in . We have also taken part in the selection of content providers. We have continuously reported our observations to the Government as regards proposals for regulatory change in this sphere of activity. The Riksdag (Swedish parliament) approved the introduction of terrestrial digital television in the spring of 1997. This decision was guided by the government policy objectives for the media sector whereby freedom of expression, accessibility and diversity are to be guaranteed. Digitisation of the nationwide distribution network makes it possible to uphold consumers freedom of choice and to ensure a broad spectrum of programmes and a radio and television in service of the public. In the initial stage, broadcasting was restricted to a geographical area covering about 50 per cent of the population. In the autumn of 2000, the Riksdag approved the expansion of digital TV broadcasting to encompass the country as a whole. In the first three chapters of our report we provide a background to our assessment of how terrestrial digital television has developed in this country. In Chapter 1, Basic Premises, we discuss the political objectives underpinning the decision to introduce terrestrial digital television and briefly summarise the findings of previous committee reports in this sphere. We also draw on reports concerning both IT infrastructure and convergence trends of relevance for the development of digital television. In conclusion, we specify the decisions that have been taken in the course of our work and the issues that we have dealt with. In Chapter 2, Media Landscape in Transition, we briefly describe the various forms of distribution, technological development in this field and how programming has progressed. broadcasting reaches consumers in three different ways. Terrestrial broadcasts are received by means of an ordinary TV antenna and satellite broadcasts by means of a parabola antenna, while the cable network mainly programmes from the terrestrial network and the satellite operators. Studies of how households in receive television broad- casts show that around 30 per cent, or 1.25 million households, only use terrestrial TV. Further, many households use terrestrial broadcasts for their additional television sets as well. By digital television we mean distribution in digital form. As present-day television sets are constructed to receive analogue signals, a special decoder (set top box) has to be connected to the set. This converts the digital signals to analogue ones so that both sound and picture are conveyed to the television viewer. In Chapter 3, in the Outside World, we have chosen to provide a relatively detailed description of the steps taken by other countries in the transition to terrestrial digital television. and the UK began digitising their terrestrial networks early on. This has given them advantage over many other countries with respect to know-how and skills in this field. Countries in the rest of Europe are now following suit and have either started or are planning to start terrestrial digital broad- casting. This applies both to countries where many households already use terrestrial broadcasting and to those where other forms of distribution are predominant. Analysis of broadcasting operations (Chapter 4) We analyse broadcasting operations by describing market trends concerning digital TV, the views of the participating content providers concerning the future of the terrestrial network, a number of consumer surveys, and the development of digital TV and other broadband solutions. On the basis of this account, we offer the following considerations: N We view terrestrial digital television as a simple and efficient way of reaching all citizens. Infrastructure for digital television, therefore, should be regarded as a natural part of the IT infrastructure. N We consider that a broad range of programmes and services in the terrestrial network would contribute to healthy competition between the various broadcasting operators. N We propose that the digital broadcasting of public service programmes in should be expanded to cover the entire population, i.e. 99.8 per cent of those in permanent . N We propose that the remaining capacity for digital broadcasting, offering a range of commercial programmes, should be expanded as far as possible. This is important for ensuring that the widest possible range of programmes and services is available to the greatest possible share of the population. N We consider it beneficial that the Nordic actors in the digital television market have agreed on specific requirements for digital decoders. An open common standard for digital tele- vision broadcasting offers advantages for both consumers and content providers. We find that the transition to digital broadcasting is a logical development of television. Digital TV represents a natural and fairly straightforward advance towards more effective television distribution. Content providers and broadcasting operators are agreed that all television broadcasting will be digitised in the future. They feel it is unreasonable to preserve and maintain an analogue system for TV distribution when analogue technology in all other types of communications systems are being replaced by digital technology. Digital television represents considerable added value and greater freedom of choice for consumers. The most significant gains are better quality sound and pictures, a greater range of programmes for consumers to choose from and the fact that they can customise the range to match their own interests. Digitisation of the terrestrial network gives consumers access to a larger number of regional programmes and a number of services in the TV environ- ment that were only previously available in the computer environ- ment. Another advantage compared with other broadcasting forms is the ease with which the decoder can be moved from place to place – portability. In the longer term, mobile receivers that can be used in various modes of transport may also be available to consumers. Market actors are agreed that the of a wider range of ordinary TV programmes is what largely motivates consumers In the longer term, interactivity and new services such as e- mail and e-commerce may also attract new consumers. Access to interactive services via digital TV means that those who do not have access to computers will also be able to avail themselves of the information societys services. This suggests that digital television infrastructure should be considered a natural part of IT infra- structure. The possibility of reaching all citizens with public information is of great importance from a democracy viewpoint. The digital terrestrial network has a unique position in this respect in that it can in principle be extended to all households in the country and thus constitutes a very cheap and effective way of reaching the population. Compared with other broadband solutions, terrestrial digital television is a very simple way of sending large amounts of information to many users simultaneously. A fundamental policy aim in is to give all citizens access to television broadcasting. Many households with cable TV are in flats where they are unable to receive television broadcasting via their own parabola antenna. Conversely, a number of households with parabola reception do not have access to cable TV as they live in detached houses. At present, terrestrial television are available to most people. The digital terrestrial network may therefore be seen as a guarantee that in the future, too, consumers will have a good chance of being able to choose between at least two reception forms for television broadcasting. With an open common standard in place for digital TV, the medium can develop and digital broadcasting can become more useful to the consumer. Today, broadcasting operators use diffe- rent, mutually incompatible systems for digital television broad- casting. This means that a consumer who has chosen a specific supplier of digital television can as a rule only choose from the range of programmes offered by that particular supplier. This limits the consumers freedom of choice and leads to limited competition in the market. In addition, differing standards makes it for content providers to develop interactive services. Macro economic assessment of the technological shift (Chapter 5) We describe the significant economic gains that a technological shift from analogue to digital terrestrial broadcasting would generate. We also present calculations comparing the costs of analogue and digital broadcasting as well as estimates of the costs to consumers as a whole of a switch in technology. The conclusions we draw from these calculations are as follows: N In our assessment, analogue terrestrial broadcasting can be phased out in 2007. The faster the phase out can be achieved, the greater the macro economic gains will be. Five years should give consumers a reasonable chance to complete the switch to digital TV technology. N We propose that a committee should be appointed to draw up guidelines for a concentrated information effort and also to consider other measures that might facilitate and encourage the transition to digital technology. Its final report should be delivered no later than . Digital technology is more effective than analogue technology, which means that it is cheaper as well. A natural course, therefore, is to replace analogue terrestrial broadcasting with digital terrestrial broadcasting. With a digital terrestrial network in place extending to virtually the entire population, the analogue terrestrial network can be phased out earlier than if digitisation were only to take place within the framework of other platforms. A phase out of the analogue terrestrial network would result in more frequency capacity becoming available for television broadcasting or other areas of use. The sooner analogue terrestrial broadcasting is phased out, the greater the economic gains at the macro level. A period of parallel broadcasting of analogue and digital programmes, however, is desirable. Consumers must be given a reasonable amount of time to acquire the necessary decoder equipment. It is important to strike a balance between the consumers need to adjust to digital reception and the macro economic costs that parallel broadcasting would entail. It is also important to consider digitisation in other platforms and what other countries are doing in this field. Favourable market development would make it easier to quickly terminate analogue terrestrial broadcasting. Specifying a final year for the phase out of analogue terrestrial broadcasting could encourage households to make the necessary investments in digital reception equipment more quickly. A phase out date would also give content providers and other interested parties in the market a chance to plan their present and future market strategies. Further, a phase out would be a welcome development for those consumers who acquire digital decoders at an early stage. This is because these consumers are indirectly forced to share the burden of macro economic costs that parallel broadcasting entails. We are assuming that some of the phase out prerequisites will have been fulfilled in good time prior to the year 2007. It should be possible for the digital terrestrial broadcasting of public service programmes to reach at least the same proportion of households as is able to receive programmes in analogue form today. Another prerequisite is that public service programmes must not be liable to a charge over and above TV licensing fees. In addition, both straightforward and more advanced digital decoders should be available in the market. Consumers face many different choices when switching from analogue to digital TV technology. They have to decide which broadcasting form, broadcasting operator and range of program- mes they want and whether they want a simple or a more advanced digital decoder. If consumers are to have genuine freedom of choice, they must be given factual information on what the choices are. In our view, a concentrated information effort is needed prior to the phase out of analogue terrestrial broadcasting. Besides information to the consumers and the specification of a phase out date, other incentives may be needed for the purpose of influencing market developments. We feel it is reasonable to reward those who acquire digital reception equipment and who thereby hasten the technological shift. A differentiated TV licensing fee is one possibility. Another factor affecting market development is the price of decoders and various kinds of subsidies. A lower price would contribute to a more positive market development. There are further factors involved here, such as market competition, technological development and the introduction of a common standard for soft- and hardware in all decoders. Rules and licences for digital broadcasting (Chapter 6) We describe the rules and laws that apply to digital terrestrial broadcasting and how licences are distributed to content providers. We have already initiated a number of regulatory changes by addressing the Government and the Radio and TV Authority. We describe how these matters have been followed up in official inquiries currently under way. In our assessment, the following changes are needed in respect of future broadcasting activities: N We propose that part of the total transmission capacity should be placed at the disposal of an external actor. The external actors range of supply should in principle be subject to the same guidelines and conditions as those currently applying to selection and licensing. A public authority should approve the content providers proposed for inclusion. N We propose that licensing in future should be delegated to a public authority. In choosing an authority, the convergence of the IT, telecommunications and media sectors should be taken into consideration. N We propose that licences for the next period of digital broad- casting in the terrestrial network apply for ten years. Broad- casting operations should be reviewed at some point during the licensing period. N We propose that transmission of the public service broadcasters programmes should be free to air and with no charge to the consumer over and above the TV licensing fee. Greater access to Nordic public service programmes is also desirable. N We propose that in renegotiating the EUs Broadcasting Directive (Television Without Frontiers) the Swedish Govern- ment should seek a review of the country of origin principle. Content providers that direct their broadcasting principally at another country should be subject to the rules and laws of the recipient country. An inherent feature of digital technology is that the frequency spectrum can be used more efficiently. In the same amount of spectrum necessary for one analogue TV programme can today up to six digital TV programmes be transmitted. Under their current broadcasting licences, content providers are entitled to a certain amount of transmission capacity in a specified multiplex. In addition, they are entitled to broadcast as many programmes and services as such capacity allows. Transmission capacity may be leased out, but only to another content provider in the same multiplex. Thus the system allows a degree of flexibility but does not allow new content providers to enter the network, when for instance improved technology makes this possible. Still greater flexibility can be achieved by applying the licensing model used in the UK and . These two countries have chosen to place a specific amount of transmission capacity at the disposal of an external actor. The remaining capacity has been distributed to public service broadcasters, regional content providers or other content providers that the authorities have special reasons for wanting to include or which are licensed to broadcast over the analogue networks. Content providers that broadcast via the external actor are approved and licensed by the relevant authority. We propose that this model should be applied in for parts of available transmission capacity. Certain specific content providers that are already licensed to broadcast over the digital terrestrial network should, at the conclusion of their licensing periods, be invited to become part of the external actors range of supply. Public service broadcasters, regional content providers and content providers licensed to broadcast over the analogue network should continue to be granted licences of their own.