COMMISSION OF THE EUROPEAN COMMUNITIES 
Brussels, 15.07.1996 
COM(96)302 final 
COMMUNICATION FROM THE COMMISSION 
TO THE COUNCIL AND THE EUROPEAN PARLIAMENT 
on the application of Articles 4 and 5 
of Directive 89/552/EEC 
"Television without Frontiers" 

EXECUTIVE SUMMARY 
This is the second monitoring report on the implementation of Article 4 (European works) and Article 
5 (independently produced European works) of the 1989 "Television without Frontiers" Directive. It 
covers the years 1993 and 1994. As with the previous report, it is based on national reports provided 
by each Member State as regards the broadcasters under its jurisdiction. 
The conclusions of the report are as follows: 
* There is a marked improvement in the quality of reporting by Member States. A number of 
methological difficulties have been ironed out as compared to the previous period. 
* In quantitative terms, the data is comprehensive. 
* The report confirms that all Member States have transposed Articles 4 and 5, although the 
flexible wording of these provisions has resulted.in differing levels of effectiveness and in 
variations as regards the basis on which they are applied. 
* The number of channels surveyed was 148 (105 in 1992). Of these, 91 broadcast a majority 
proportion of European works in 1994 (as compared to 70 channels doing so in 1992). 
Moreover, in almost all Member States, the majority of mainstream terrestrial broadcasters 
(which account for by far the largest share of the audience) achieved, or exceeded by a 
considerable margin, the majority proportion. There was only a limited number of exceptions 
and in most of these cases the proportion remained close to 50%. Many of those channels not 
reaching the majority proportion were recently launched channels and/or satellite channels with 
limited audience share, often providing specialist programming on a pay-TV "Basis. 
* 119 channels out of 148 complied with the 10% minimum rule for independent productions 
(63 channels achieved this figure in 1992). 
* The Commission is satisfied, in general terms, with the results of this second monitoring 
exercise, while reserving its right to take further measures as appropriate in specific cases. 
CONTENTS 
INTRODUCTION 
PROVISIONS AND TRANSPOSAL OF DIRECTIVE 89/552/EEC 
SPECIFIC CONTEXT OF THE REVISION OF DIRECTIVE 89/552/EEC 
SUMMARY OF REPORTS FROM MEMBER STATES 
COMMISSION OPINION 
ANNEXES 
1. Suggested guidelines for monitoring the application of the Television without 
Frontiers Directive 
2. Summary tables covering the last two years 
3. List of channels which failed to reach the proportion for European works 
4. List of channels which failed to reach the proportion for independent productions 
INTRODUCTION 
This communication covers the second series of Member States' reports on the 
implementation of Articles 4 and 5 of the Television without Frontiers Directive.1 
Article 4(3) requires the Commission to obtain statistics from the Member States every 
two years on the proportion of television transmission time accounted for by European 
and independent programmes. 
The specific aim of Articles 4 and 5 is to promote the production and distribution of such 
programmes as part of the framework for the free movement of television broadcasting 
services within the European Union. 
The main aim of the Directive is to establish the legal framework for such free 
movement, where necessary by adequately coordinating national measures. 
The first series of reports was the subject of a communication adopted by the 
Commission on 3 March 1994 and subsequently sent to the Council, Parliament and the 
Economic and Social Committee. 
This second reference period runs from 1 January 1993 to 31 December 1994 and the 
data are for calendar years. 
The Member States were required to submit their national reports to the Commission by 
3 October 1995. Reminders to this effect were sent to the Permanent Representatives in 
April 1995. In actual fact, the Commission received the reports over a period ranging 
from July 1995 to March 1996. 
Council Directive 89/552/EEC of 3 October 1989 on the coordination of certain provisions laid 
down by law, regulation or administrative action in Member States concerning the pursuit of 
television broadcasting activities (OJ L 298, 17.10.1989). 
COM (94) 57 final, 3 March 1994. 
PROVISIONS AND TRANSPOSAL 
OF DIRECTIVE 89/552 
The Television without Frontiers Directive, which came into effect on 3 October 1991, 
serves as the legal reference framework for the pursuit of television broadcasting 
activities in the European Union on the basis of the coordination of certain provisions laid 
down by law, regulation or administrative action in the Member States. 
The areas thus coordinated are jurisdiction (Article 2), promotion of the distribution and 
production of European television programmes (Articles 4 to 9), advertising and 
sponsorship (Articles 10 to 21), protection of minors (Article 22) and right of reply 
(Article 23). 
By protecting the public interest in these fields at Community level, the Directive 
guarantees in each Member State the freedom of reception and retransmission of 
television programmes from other Member States of the Union. 
It introduces the principle of the application to a broadcaster of a single body of law 
based on common objective connecting criteria designed to ensure that every broadcaster 
operating in the Union falls under the jurisdiction of one, and only one, Member State. 
In this context of the free movement of television services, the coordination of national 
measures3 achieved by means of Articles 4 and 5 prevents such measures from forming 
legal obstacles to the free movement of television programmes within the Community; 
by this very fact, it helps to encourage the production and distribution of European and 
independently produced programmes. 
These measures thus serve an objective of a legal, economic and cultural nature expressly 
called for by the Council when the Directive was adopted in 1989. They constitute an 
area of harmonization necessary for ensuring the free movement of television 
The vast majority of Member States have introduced such measures in the form of obligations to 
broadcast (or produce) European works or programmes produced in a given language or produced 
"locally". 
programmes, which is legally possible now that the various national rules on broadcasting 
are coordinated at Community level. 
Article 44 sets up a structure based on three pillars: 
establishment of a core of broadcasting time devoted to specific types of 
programme (all categories except news, sports events, games, advertising and 
teletext services); 
devotion of a majority proportion of broadcasting time to European works (as 
defined in Article 6). This is to be done where practicable and by appropriate 
means. Member States are required to ensure that this proportion is attained 
progressively, on the basis of suitable criteria. Where it cannot be attained, the 
Article 4: 
" 1. Member States shall ensure, where practicable and by appropriate means, that broadcasters 
reserve for European works, within the meaning of Article 6, a majority proportion of their 
transmission time, excluding the time appointed to news, sports events, games, advertising and 
teletext sendees. This proportion, having regard to the broadcaster's informational, educational, 
cultural and entertainment responsibilities to its viewing public, should be achieved progressively, 
on the basis of suitable criteria. 
2. Where the proportion laid down in paragraph 1 cannot be attained, it must not be lower 
than the average for 1988 in the Member State concerned. 
However, in respect of the Hellenic Republic and the Portuguese Republic, the year 1988 shall be 
replaced by the year 1990. 
3. From 3 October 1991, the Member States shall provide the Commission every two years 
with a report on the application of this Article and of Article 5. 
That report shall in particular include a statistical statement on the achievement of the proportion 
referred to in this Article and Article 5 for each of the television programmes falling within the 
jurisdiction of the Member State concerned, the reasons, in each case, for the failure to jttain that 
proportion and the measures adopted or envisaged in order to achieve it. 
The Commission shall inform the other Member States and the European Parliament of the reports, 
which shall be accompanied, where appropriate, by an opinion. The Commission shall ensure the 
application of this Article and Article 5 in accordance with the provisions of the Treaty. The 
Commission make take account in its opinion, in particular, of progress achieved in relation to 
previous years, the share of first broadcast works in the programming, the particular circumstances 
of new television broadcasters and the specific situation of countries with a low audiovisual 
production capacity or restricted language area. 
4. The Council shall review the implementation of this Article on the basis of a report from 
the Commission accompanied by any proposals for revision that it may deem appropriate no later 
than the end of the fifth year from the adoption of the Directive. 
To that end, the Commission report shall, on the basis of the information provided by the Member 
States under paragraph 3, take account in particular of developments in the Community market and 
of the international context." 
proportion must not be lower than the average for 1988 in the Member State 
concerned (1990 in Greece and Portugal), 
review and evaluation by the Commission on the basis of statistical reports from 
the Member States. 
Article 55 sets the proportion of transmission time (or alternatively of programming 
budgets) to be reserved for European works by producers who are independent of 
broadcasters at 10% of the same core time (or of programming budgets), subject to the 
same review requirements. An adequate proportion must be earmarked for recent works, 
that is to say, works transmitted within five years of their production. 
The deadline for Member States to transpose the Directive was two years after its 
adoption, i.e. 3 October 1991. It is for them to ensure that broadcasters within their 
jurisdiction meet their obligations under it, including those of Articles 4 and 5. 
In its examination of the transposai of the Directive, which from 1 January 1995 was 
extended to include the three new Member States (Austria, Finland and Sweden),6 the 
Commission mainly verified that the obligations laid down in Article 4 and 5 had been 
incorporated into the national legal systems regardless of the kind of instrument (law, 
administrative order or other type of instrument) used . 
5 It reads: 
"Member States shall ensure, where practicable and by appropriate means, that broadcasters 
reserve at least 10% of their transmission time, excluding the time appointed to news, sports 
events, games, advertising and teletext services, or alternately, at the discretion of the Member 
State, at least 10% of their programming budget, for European works created by producers who 
are independent of broadcasters. This proportion, having regard to the broadcaster's informational, 
cultural and entertainment responsibilities to its viewing public, should be achieved progressively, 
on the basis of suitable criteria; it must be achieved by earmarking an adequate proportion for 
recent works, that is to say works transmitted within five years of their production." 
Under the European Economic Area Agreement, which came into force on 1 January 1994, the 
three new Member States are required to submit statistics for 1994. So are Iceland, Liechtenstein 
and Norway, but only Norway has done so. 
"A directive shall be binding, as to the result to be achieved, upon each Member State to which 
it is addressed, but shall leave to the national authorities the choice of form and methods" - third 
paragraph of Article 189 of the EC Treaty. 
As pointed out in the communication of March 1994, the legal flexibility of the system 
derives from the wording of the obligations themselves ("where practicable and by 
appropriate means" and "progressively"), representing the political compromise sought by 
the Member States. The bodies which in the last resort have to fulfil those obligations 
are the television broadcasters. 
On the basis of the statistical reports which the Member States are obliged to send to it 
at regular intervals (every two years) and for the second time in October 1995, the task 
assigned to the Commission is to monitor the results obtained from broadcasters 
concerning the televising of European works and independent productions on all the 
channels8 at their command. 
To enable it to fulfil this task, necessitating as it does the provision by the Member States 
of figures and explanations, the Commission has expressly asked the Member States to 
make an active contribution in this respect. 
To this end, a methodological approach was worked out in 1993 at regular meetings with 
Member States' representatives, it being understood that responsibility for the production 
of reports lay entirely with the Member States themselves. 
This approach led to the production of "Suggested guidelines for monitoring the 
application of the Television without Frontiers Directive", which were used for the first 
monitoring exercise, then updated and sent to the Member States in April 1995 for this 
second exercise. They are annexed. 
The guidelines offer a number of common definitions and interpretations based on the 
logic of the Directive. Broadly speaking, this means: 
the definition of a broadcaster includes all the channels it operates; 
the jurisdiction to which a broadcaster is subject to depends on its place of 
establishment (Article 2(1)); 
The term "channel" will be used in this communication to designate a "television programme" 
within the meaning of Article 4(3) as the broadcasters often operate more than one channel. 
7 
broadcasting time used to calculate proportions does not include test-card display 
time; 
two criteria are used together to determine whether a producer is independent of 
the broadcaster - the broadcaster's capital holding in the producer (maximum 
25%) and proportion of the producer's business done with the same broadcaster 
(maximum 90% over any three-year period); 
Member States are asked to supply statistics for the calendar years 1993 and 1994 
(i.e. January to December); 
statistics are gathered from broadcasters in aggregate and for each channel they 
operate. 
Member States were also asked to add all further information that might be useful, such 
as definitions, information categories and interpretations they used. 
SPECIFIC CONTEXT OF THE REVIEW 
OF DIRECTIVE 89/552/EEC 
Article 26 of the Directive laid down that, by 3 October 1994 at the latest, the 
Commission was to present to Parliament and the Council a report on the application of 
the Directive accompanied by any proposals to adapt it to developments in the field of 
television broadcasting. 
On 22 March 1995, the Commission therefore adopted that report, together with a 
proposal for a Directive amending the 1989 Directive10. The aim of the proposal is to 
render more effective the legal framework set up to promote the development of 
television broadcasting activities in the Union. 
The proposal seeks to clarify the rules on jurisdiction, the protection of minors and 
measures to promote European works. It adapts the text to the new economic 
circumstances of the sector, notably by laying down specific rules for teleshopping, the 
possibility of special-interest channels helping promote the European programmes industry 
by investing in European works and the adaptation of various provisions relating to 
advertising and sponsorship. 
The scope of the Directive remains the same. It continues to apply to 
"point-to-multipoint" broadcasting services, including "pay-per-view" and "near-video-on-
demand" but does not concern the new "point-to-point" services such as 
"video-on-demand" (VOD).11 
The problems raised by the operation of these new types of services are to be studied in 
a Green Paper on the New Audiovisual Services which the Commission intends to 
finalize and present to the Community authorities in 1996. 
10 
11 To avoid any confusion in the mind of the reader, it should be pointed out that the exercise 
referred to here is distinct from that covered by this communication, which relates to the specific 
report provided for in Articles 4 and 5 (see Article 4(3)). 
OJ C 185, 19.7.1995; COM(95) 86 final. 
Further details concerning the proposal for a Directive amending the 1989 Directive are to be 
found in COM(95) 86 final, particularly the explanatory memorandum. 
The Economic and Social Committee delivered its opinion on the Commission proposal 
on 13 September 1995.12 On 14 February 1996 Parliament adopted a legislative 
resolution13 approving it, subject to amendments. The Council adopted its common 
position on 11 June 1996. 
This brief account of the state of play on this matter in no way prejudices the outcome 
of the interinstitutional deliberations on this new proposal, which is based on Article 189b 
of the Treaty, i.e. co-decision by the Council and the European Parliament. 
The Commission draws attention to the fact that this communication,- which 
intentionally covers the national reports for 1993 and 1994, is based on the 
Directive in the wording in which it was adopted in 1989. 
Lastly, it should be noted that alongside the Directive, which forms the legal reference 
framework for the European audiovisual area, a number of other audiovisual policy 
initiatives have been taken by the Community specifically to strengthen the 
competitiveness of the European programme industry through the provision of financial 
support, the most noteworthy examples being the MEDIA II programme (measures to 
encourage the development of the European audiovisual industry),14 the Action Plan for 
the introduction of advanced television services in Europe15 and the creation of a 
European Guarantee Fund to promote cinema and television production16 as proposed by 
the Commission in November 1985. 
OJC 301, 13.11.1995. 
PE 196.583 
The Council adopted two decisions on 10 July 1995 (development and distribution aspects) and 
20 November 1995 (training aspects) further to Decision 90/685/EEC of 21 December 1990 (OJ 
L 380, 31.12.1990). 
Council Decision 93/424/EEC of 23 July 1993 (OJ L 196, 5.8.1993). 
COM (95) 546. 
10 
SUMMARY OF REPORTS FROM MEMBER STATES 
This chapter gives a brief summary, without comment, of the material contained in the 
Member States' reports, compiled on the basis of a literal construction of Article 4. It will 
be remembered that Article 4(3) requires the reports to contain: 
"a statistical statement on the achievement of the proportion referred to in 
Articles 4 and 5 for each of the television programmes falling within the 
jurisdiction of the Member State concerned"; 
(where appropriate) the reasons in each case (according to the Member State 
concerned) for failure to attain that proportion; 
the measures adopted or envisaged to achieve it. 
Other information explicitly provided by the national reports is also outlined. 
See footnote 8. 
11 
BELGIUM 
The Commission received two reports, one from the Flemish Community (F1C) and the 
other from the French-speaking Community (FrC). 
FLEMISH COMMUNITY 
(A) Statistical statement 
1. Summary table 
Number of channels Reference period Method 
5 calendar year survey 
2. Proportions (%) 
Channel 
(broadcaster) 
TV1 (BRTN) 
TV2 (BRTN) 
VTM (VTM) 
Filmnet Plus 
(Multichoice) 
The Complete 
Movie Channel 
(Multichoice) European 
works 
(EW) 
1993 
65.4 
72.7 
43 
26 
17.5 1994 
67 
79 
45 
24 
14.6 Independent 
productions 
(IP) 
1993 
8.2 
20 
34 
18.2 1994 
8.9 
15 
31 
16.3 Recent works 
(RW) 
1993 
6.3 
15.4 
29.2 
15.1 1994 
7.3 
12.3 
27.9 
13.4 
12 
(B) Reasons given bv Member State for failure to reach proportion 
1. European works 
- VIM: the reason given is the date when the channel was launched (1.2.1989). The 
report makes two points: this channel, which is distributed by cable in the F1C, is local 
and not subject to Articles 4 and 5; the percentage exceeds the average recorded in 
1988, i.e. 40.26%. 
- Filmset Plus and The Complete Movie Channel: the percentages declared by Multichoice 
are global with no detail, given the nature of the programmes broadcast by these 
channels, the proportions cannot be met. 
2. Independent productions 
- The report states that BRTN is complying with the 10%-of-budget proportion. 
(C) Measures taken or envisaged by the Member State 
Not reported. 
"This chapter shall not apply to local television broadcasts not forming part of a national network" 
- Article 9 of Directive 89/552/EEC; the Commission reserves the right to decide on the validity 
of this claim in the specific case of VTM. 
13 
FRENCH-SPEAKING COMMUNITY 
(A) Statistical statement 
1. Summary table 
Number of channels Reference period Method 
6 calendar year sampling 
(4 weeks a year) 
2. Proportions (%) 
Channel 
(broadcaster) 
RTBFl 
(RTBF) 
Sport 21 
(RTBF) 
Arte 21 
(RTBF) 
Tele 21/21 
(RTBF) 
RTL-TVi (TVi) European 
works 
(EW) 
1993 
75.1 
11.5 
93.3 
76.7 
44.59 1994 
68.4 
83.3 
93.8 
84 
48.77 Independent 
productions 
(IP) 
1993 
29.6 
0 
38.7 
53.4" 
13.78 1994 
17.3 
50 
62.6 
32.1 
18.61 Recent works 
(RW) 
1993 
17 
0 
27 
32 
4.91 1994 
16 
0 
44 
16 
9.22 
14 
Canal+ 
(Canal+TVCF) 45.47 46.64 17 25.59 - -
(B) Reasons given by Member State for failure to reach proportion 
A number of additional factual comments are made: 
- Sport 21 and Arte 21 closed on 30.6.1995. 
- Eleven non-transfrontier local television channels not forming part of a national-network 
are mentioned (see Article 9 of Directive 89/552). 
1. European works 
- The report gives the 1988 average as the proportion accounted for by European works: 
41.6%. 
- Sport 21: the channel is devoted to sport; the sampling method lies at the root of the 
1993 percentage. 
2. Recent works 
- Canal+ TVSF: the channel points out that its programme schedules consist mainly of 
recent films. __ 
(C) Measures taken or envisaged by the Member State 
Not reported. 
15 
(D) Further comment 
The report specifies that a producer is considered to be independent if: 
- it has a legal personality distinct from that of any broadcaster; 
- no broadcaster has a blocking minority in it; 
- it does not have a direct or indirect blocking minority in the broadcaster; 
- in the case of co-production with a broadcaster, it is the producer which has legal 
responsibility and underwrites the production; 
- the work was not produced more than five years before first being broadcast. 
16 
DENMARK 
(A) Statistical statement 
1. Summary table 
Number of channels Reference period Method 
3 calendar year 
2. Proportions (%) 
Channel 
(broadcaster) 
DR 
TV2 
DK4 European 
works 
(EW) 
1993 
77 
63 
-1994 
72 
65 
100 Independent 
productions 
(IP) 
1993 
11 
67 
-1994 
10 
64 
100 Recent works 
(RW) 
1993 
-
77 
-1994 
66 
86 
10 
(B) Reasons given by Member State for failure to reach proportion 
All the channels surveyed observed the proportions laid down in Articles 4 et 5. 
DK4 began broadcasting in December 1994. 
(C) Measures taken or envisaged by the Member State 
Not applicable. 
17 
(D) Further comment 
The report states that the definition of "independent production" used is taken from 
company law (the relationship between parent and subsidiary). The producer is 
independent of the broadcaster unless the latter: 
- has a majority holding in the producer; 
- is entitled to appoint or dismiss a majority of the producer's staff; 
- is a co-owner of the producer and can exert a decisive influence over it, by virtue of 
its articles of association or an agreement with it; 
- is a co-owner of the producer and also has a majority of the voting rights, by agreement 
with the other owners; 
- is a co-owner of the producer and has a determining influence over it. 
18 
GERMANY 
(A) Statistical statement 
1. Summary table 
Number of channels Reference period Method 
14 calendar years survey 
2. Proportions (% 
Channel 
(broadcaster) 
ARD (ARD-
Rundfunk-
anstalten) 
ZDF (ZDF) 
3 SAT (ZDF-
ORF-SRG-ARD) 
Deutsche WelleTV 
(Deutsche Welle) 
DSF (Deutsches 
Sportfernsehen 
GmbH) 
KABEL 1 (Kl 
Fernsehen GmbH) European 
works 
(EW) 
1993 
90.3 
83.4 
95.3 
65.78 
100 
12.2 1994 
90.2 
79 
95 
66.54 
100 
15.1 Independent 
productions 
(IP) 
1993 
42.7 
51.2 
35 
36.2 
18.5 
12.2 1994 
43.3 
51.9 
31.5 
34.2 
20.25 
15.1 Recent works 
(RW) 
1993 
87.3 
74 
67.7 
89.59 
100 
33.6 1994 
92.5 
72.4 
75.7 
89.69 
100 
29.8 
19 
N-TV (n-tv 
Nachrichtenfernsehe 
n GmbH & Co.KG) 
Premiere (Premiere 
Medien GmbH & 
Co.KG) 
PRO SIEBEN 
(PRO SIEBEN 
Television GmbH) 
RTL (RTL 
Deutschland 
Fernsehen GmbH 
& Co. Betriebs KG) 
RTL 2 (RTL 2 
Fernsehen GmbH 
& Co. KG) 
SAT 1 (SAT 1 
Satelliten Fernsehen 
GmbH) 
VIVA TV 5VIVA 
TV Fernsehen 
GmbH & Co.KG) 
VOX (VOX Film 
und Fernseh GmbH 
& Co.KG) 100 
60.3 
39.4 
54 
38 
53.9 
76.5 100 
59.32 
43.2 
56 
36.1 
47.1 
42 
63.8 10 
29.5 
37 
1 
27.21 
90.7 10 
28.3 
38 
2.2 
29.1 
1.5 
98.7 100 
17 
81 
100 
36.75 
75 100 
18 
79 
100 
35 
100 
75 
20 
(B) Reasons given by Member State for failure to reach proportion 
European works 
- KABEL 1 and RTL 2: the reason given is the date the two services began (1992 and 
6.3.1993). They cover a very small area and earn very little from advertising. 
- VIVA TV: began in 1994. 
- PRO SIEBEN: between 1989 (when it began) and 1995, this channel made efforts to 
increase the proportion of European works. In 1995 it reached 50%. 
(C) Measures taken or envisaged by the Member State 
(D) Further comments 
1. Concerning European works 
The 100% figures for DFS and N-TV are because these channels broadcast mainly sport 
and news, which are excluded areas. 
The figures for Premiere concern the first showing of films. 
2. Concerning the definition of "independent producer" 
The report states that a definition has been agreed with the broadcasters: "a producer is 
dependent upon a broadcasting corporation when the latter is able, in law, through the 
setting-up of a company or by contract, or in fact, to determine the former's commercial 
policy. The producer is not dependent for these purposes if the producer is actually able 
to determine its commercial policy itself, despite any influence exerted on it legally. 
Independence of a producer from a broadcaster involves: 
- a major share of the producer's turnover deriving from operations with bodies other than 
the dominant broadcaster; 
- the producer being a member of the German federation of television producers." 
21 
GREECE 
(A) Statistical statement 
1. Summary table 
Number of channels Reference period Method 
8 calendar year survey 
(3 public, 5 private) 
2. Proportions (%] 
Channel 
(broadcaster) 
ET1 (ERT) 
ET2 (ERT) 
ET3 (ERT) 
ANT1 
Mega Channel 
New Channel 
Seven X 
Sky European 
works 
(EW) 
1993 
62 
51.66 
56.87 
60.02 
51.5 
71 
70 
-1994 
94 
51.31 
58.66 
61.96 
59.9 
77 
71 
78 Independent 
productions 
(IP) 
1993 
29 
66.22 
19.65 
24.4 
52.8 
71 
49 
-1994 
45 
70.59 
31.39 
24.54 
52.7 
77 
38 
26.5 Recent works 
(RW) 
1993 
-
24.78 
9.35 
42.05 
59.88 
49.94 
63.63 
-1994 
14.61 
32.4 
13.94 
52.5 
77.54 
60.07 
48.71 
38.25 
(B) Reasons given by Member State for failure to reach proportion 
- The report states that all channels respected the proportions for the years concerned, 
Sky having been surveyed only for 1994, when it started broadcasting. 
22 
(C) Measures taken or envisaged by Member State 
Not reported. 
23 
SPAIN 
(A) Statistical statement 
1. Summary table 
Number of channels Reference period Method 
13 calendar year 
2. Proportions (%) 
Channel 
(broadcaster) 
TVE-1 
(RTVE) 
TVE-2 
(RTVE) 
ANT-3 
(Antena 3TV 
TEL-5 
(Gestevision 
Telecinco 
CANAL+ (Soc 
TV Canal+) European 
works 
(EW) 
1993 
58 
74 
48 
50 
41 1994 
57 
63 
49 
51 
42 Independent 
productions 
(IP) 
1993 
10.2 
10.8 
7.6 
11.08 
36.2 1994 
10.5 
12 
10.4 
12.27 
37.1 Recent works 
(RW) 
1993 
5 
5.3 
4.2 
2.86 
34.9 1994 
6.1 
5.8 
3.4 
2.02 
35.8 
24 
Channel 
(broadcaster) 
CST 
(RadioTV 
Andaluza) 
ETB-1 
(Euskal Irrati 
Telebista) 
ETB-2 (Euskal 
Irrati 
Telebista) 
TV-3 (TV 
Catalunya) 
TV-33 (TV 
Catalunya) 
TVG (TV 
Galicia) 
TVM(TV 
Madrid) 
TVV (Radio-
TV 
Valenciana European 
works 
(EW) 
67 
82 
53 
59 
85 
56 
51 
64 64 
81 
52 
65 
84 
54 
51 
63 Independent 
productions 
(IP) 
30.4 
14.5 
6.3 
1.34 
4.2 
9.5 
11.02 
13 34.3 
13.4 
3.5 
1.93 
5.2 
10.3 
10.8 
15 Recent works 
(RW) 
19.02 
7.7 
4.2 
1.15 
1.85 
3.5 
7 
10 25.3 
6 
3.2 
1.65 
2.3 
4 
6.5 
9.6 
(B) Reasons given by Member State for failure to reach proportion 
Not reported. 
25 
(C) Measures taken or envisaged by Member State 
- Authorities to monitor situation further. 
26 
(A) Statistical statement 
1. Summary table FRANCE 
Number of channels Reference period Method 
14 calendar year survey 
2. Proportions (% 
Channel 
(broadcaster) 
TF1(1) 
France 2 (1) 
France 3 (1) 
Canal + (1) 
M 6 (1) 
Canal J (3) 
Canal Jimmy 
(2) 
Ciné-cinéfil (2) European 
works 
(EW) 
1993 
60.8 
74.9 
70.3 
59.7 
66.2 
65.8 
49.7 
51 1994 
62.8 
74.8 
68.8 
60.4 
66.1 
67 
47.8 
48.7 Independent 
productions (IP) 
1993 
16.14 
15 
17.7 
12.8 
23.3 
70 
21 
39.6 1994 
15.17 
10 
17.8 
13.8 
19.2 
61 
22 
42.5 Recent works 
(RW) 
1993 
-
-
-
-
-
-
-
-1994 
-
-
-
-
-
-
-
-
27 
Channel 
(broadcaster) 
Ciné-cinémas 
(2) 
MCM/Euro-
musique (3) 
Multivision (3) 
Paris-
Première(3) 
Planète (2) 
Série Club (3) European 
works 
(EW) 
55.8 
76 
-
88.3 
74.6 
60.1 52.7 
80.4 
45 
86.6 
76 
50.4 Independent 
productions (IP) 
41.3 
56.9 
-
25 
52 
59.6 38.7 
50.1 
45 
61 
52 
50 Recent works 
(RW) 
-
-
-
-
-
--
-
-
-
-
-
(B) Reasons given by Member State for failure to reach proportion 
European works 
- CanalJimmy, Ciné-Cinéfil: the reasons given are the poor financial results achieved by 
cable television in France and the difficulties in obtaining European programmes. 
- Multivision: launched in 1994, this channel is the first experiment in pay-per-view 
television, is carried on only a few networks, is not transmitted by satellite "and has 
difficulty in obtaining attractive recent films. The results relate to eight months-of 
broadcasting. 
(C) Measures taken or envisaged by Member State 
Not reported. 
28 
(D) Additional remarks 
1. Independent and recent productions 
- The figures provided relate to both independent and recent productions (see Articles 3, 
9, 10 and 11 of Decree No 90-67 of 17/1/1990 containing more restrictive criteria 
concerning the basis for the definition of works, the concept of orders, the scope of the 
obligation, the limit on a broadcaster's stake in the capital of a production company). 
- They represent: 
IP and RW as percentages of the company turnover in respect of the channels(l) 
IP as a percentage of the channels' programming budgets(2) 
IP as a percentage of the channels' transmission time(3). 
2. Particular cases 
-Arte: Franco-German channel, launched on 28.9.92, to carry European arts programmes 
(EW broadcast in 1993: 94%; in 1994: 95%). "La Sept", the French partner in this EEIG, 
complied with the Article 5 obligation (percentage of programming budget: 36% in 1993 
and 34.6% in 1994). 
- La Cinquième: education, training and employment channel since 16.12.1994 screening 
mainly programmes of French origin. 
- TV5 Europe: international, general-interest, French-language satellite "channel 
broadcasting almost exclusively French and European programmes. 
- France Supervision broadcasts in 16:9, most of its programmes being supplied by 
France 2 et France 3. 
29 
The report mentions other channels not covered by Articles 4 and 5: Euronews, LCI, 
Eurosport France, Eurosport International, Club du Téléachat, Chaîne du Téléachat, CTV, 
Rapido. 
30 
(A) Statistical statement 
1. Summary table IRELAND 
Number of channels Reference period Method 
2 calendar year survey 
2. Proportions (% 
Channel 
(broadcaster) 
RTE 1 and 
Network 2 
(RTE) European 
works 
(EW) 
1993 
68 1994 
70 Independent 
productions 
(IP) 
1993 
11 1994 
14 Recent works 
(RW) 
1993 
11 1994 
14 
(B) Reasons given by Member State for failure to reach proportion 
Not applicable. 
(C) Measures taken or envisaged by Member State 
31 
Not applicable. 
32 
CD) Additional remark 
- The definition of the term "independent producer" is that set out in Section 5 of the 
Broadcasting Authority (Amendment) Act, 1993. It lays down two criteria for determining 
whether or not a producer is independent: the producer must have control over the 
making of the programme and must be neither a subsidiary nor a holding company of the 
broadcaster. In the case of Ireland, which has only one television broadcasting corporation 
and a low audiovisual production capacity, the suggested maximum of 90% of the 
producer's output over a three-year period furnished to one broadcaster is not appropriate. 
33 
ITALY 
(A) Statistical statement 
1. Summary table 
Number of channels Reference period Method 
12 calendar year survey 
2. Proportions (%) 
Channel 
(broadcaster) 
RAI1 
RAI 2 
RAI 3 
Canale 5 
Italia 1 
Rete 4 
TBS 
Beta TV 
Tele 
Montecarlo 
Telepiu 1 European works 
EW) 
1993 
68.83 
59.25 
85.16 
80.50 
37.62 
40.20 
40 
67.10 
41.09 
39.25 1994 
69.04 
66.17 
85.48 
79.92 
36.50 
40.30 
39.99 
70.84 
41.35 
34.43 Independent 
productions 
(IP) 
1993 
7.15 
5.40 
7.03 
0 
0 
0 
10 
50.07 
9.45 
-1994 
8.66 
3.37 
7.62 
0 
0 
0 
10.46 
50.36 
14.23 
-Recent works 
(RW) 
1993 
-
-
-
-
-
-
-
-
-
-1994 
-
-
-
-
-
-
-
-
-
-
34 
Channel 
(broadcaster) 
Telepiu 2 
Telepiu 3 European works 
EW) 
66.15 
57.76 69.66 
54.68 Independent 
productions 
op) 
-
--
-Recent works 
(RW) 
-
--
-
(B) Reasons given by Member State for failure to reach proportion 
1. European works 
- The report gives national averages covering the reference years (56.9% in 1993 and 
58.14% in 1994) and points to a steadily rising trend since 1988, when the average was 
43%. 
2. Independent productions 
- Whilst also quoting the national averages (11.14% in 1993 and 11.37% in 1994), 
regarded as stationary, the report explains that failures are attributable to uncertainty as 
regards the definition of "independent producer". 
(C) Measures taken or envisaged by Member State 
Not reported. 
35 
LUXEMBOURG 
(A) Statistical statement 
1. Summary table 
Number of channels Reference period Method 
1 calendar year survey 
2. Proportions (%) 
Channel 
(broadcaster) 
RTL4 (CLT) 
RTL5 (CLT) 
RTLTv 
(CLT) 
RTL TVi 
(CLT) 
RTL TV 
"hertzien" 
(CLT) European 
works 
(EW) 
1993 
45.3 
28.2 
54 
44.59 
43.08 1994 
41.1 
31.6 
56 
48.77 
54.96 Independent 
productions 
(IP) 
1993 
29.4 
15.5 
36 
13.78 
19.36 1994 
30 
23.1 
37 
18.61 
25.05 Recent works 
(RW) 
1993 
25.9 
12.4 
Adequa 
te 
4.51 
6.61 1994 
23 
14.1 
Adéquat 
e 
9.22 
4.75 
36 
RTLTV 
"cable" (CLT) 
Hei Elei 
(CLT) 51.69 
100 55.44 
100 24.3 
1.9 26.38 
15.08 6.44 
1.72 4.72 
14.96 
(B) Reasons given by Member State for failure to reach proportion 
1. European works 
- RTL4, RTL5, RTL TVi: not enough European works suitable for these channels' audiences 
available at competitive prices, the channels being financed exclusively from advertising 
revenue. RTL5 (which opened in 1993) and RTL TVi made definite progress in 1994, this 
being confirmed in the case of RTL TVi, whose percentage of European works has been rising 
steadily since 1992. As regards RTL4, the report states that over 80% of its 1994 programming 
budget went to European works and that such works went out mainly at peak times. 
- RTL hertzien: an improvement in 1994. 
A separate table in the report shows the improvement in the average achieved by all channels, 
including RTL4, as compared with 1991/1992. 
2. Independent productions 
RTL Hei Elei: according to the report, this channel missed the target in 1993 because it 
broadcasts (for an average of slightly over an hour each day) in the Luxembourg language. It 
made progress in 1994. 
37 
(C) Measures taken or envisaged by Member State 
The authorities have called on the broadcasting corporation to inform it of the measures it has 
taken or intends to take in order to comply with Articles 4 and 5 of the Directive, as transposed 
into Luxembourg law. 
(D) Remark 
Without mentioning percentages, the report also refers to "Galavision", a channel belonging to 
"Télévisa S.A. de C.V.", under the heading "Programmes transmitted via a satellite under 
Luxembourg jurisdiction or by broadcasters using an up-link located in Luxembourg but not 
falling under the jurisdiction of any Member State." The broadcasting time accounted for by 
European works was below that required because of difficulties in obtaining European 
programmes of interest to the channel's Spanish-speaking audience and meeting the 
broadcaster's profitability requirements. 
Luxembourg has called on the broadcaster to inform it of the measures it has taken or intends 
to take in order to comply with Articles 4 and 5. 
38 
NETHERLANDS 
(A) Statistical statement 
1. Summary table 
Number of channels Reference period Method 
5 calendar year sampling 
2. Proportions (%) 
Channel 
(broadcaster) 
Ned 1 
Ned 2 
Ned 3 
TVPlus 
Multichoice 
NL European 
works 
(EW) • 
1993 
76 
70 
81 
62 1994 
78 
76 
71 
68 Independent 
productions 
(IP) 
1993 
33 
43 
14 
34 1994 
30 
43 
15 
38 Recent works 
(RW) 
1993 
28 
40 
11 
11 1994 
24 
42 
13 
18 
(B) Reasons given by Member State for failure to reach proportion 
Not applicable. 
39 
(C) Measures taken or envisaged by Member State 
Not applicable. 
(D) Remark 
Multichoice NL: figures still awaited as this communication is being drafted. 
40 
AUSTRIA 
A) Statistical statement 
1. Summary table 
Number of channels Reference period Method 
2 (public) Calendar year 1994 exhaustive survey 
2. Proportions (%) 
Channel 
(broadcaster) 
ORF1 
ORF2 European works 
(EW) 
1994 
61.2 
70.6 Independent 
productions (IP) 
1994 
15.1 
14.3 Recent works (RW 
1994 
6.9 
7.4 
(B) Reasons given by Member State for failure to reach proportion 
Not applicable. 
(C) Measures taken or envisaged by Member State 
Not applicable. 
41 
PORTUGAL 
(A) Statistical statement 
1. Summary table 
Number of channels Reference period Method 
5 calendar year - survey 
(3 public, 2 private) - sampling for RW on 
public channels 
(Aug. 1993 and 1994)" 
2 Proportions (%) 
Channel 
(broadcaster) 
Canal I (RTP) 
TV2 (RTP) 
RTP-I (RTP) 
SIC (SIC) 
TVI (TVI) European 
works 
(EW) 
1993 
53 
53 
100 
31 
16 1994 
45 
64 
99 
33 
18 Independent 
productions 
(IP) 
1993 
29 
41 
66 
100 
4 1994 
22 
21 
55 
23 
5 Recent works 
(RW) 
1993 
100 
100 
70 
99 
88 1994 
87 
100 
62 
70 
89 
42 
(B) Reasons given by Member State for failure to reach proportion 
1. European works 
- Canal I: The situation in 1994 can be explained by a multitude of factors, in particular the 
arrival of private operators, the channel's public service vocation and the economic environment. 
- Sic: difficult economic situation, limited advertising market, fall in advertising expenditure, 
start-up of activity, cost and attraction of non-European programmes. 
- Tvi: recent channel operating in the same environment. 
2. Independent productions 
- Sic: no figures for 1993. 
- Tvi: economic situation, recourse to own and lower-cost productions. 
(C) Measures taken or envisaged by Member State 
- Canal 1: urged to take appropriate steps in the context of a regular dialogue with the 
authorities, who believe that this situation is temporary. 
- Sic and Tvi: Authorities to monitor situation further. 
(D) Remarks 
- The report emphasised the specific position of countries with a low audiovisual production 
capacity or restricted language area. 
43 
FINLAND 
(A) Statistical statement 
1. Summary table 
Number of channels Reference period Method 
3 Calendar year 1994 Sampling 
2. Proportions (%) 
Channel 
(broadcaster) 
TVI (YLE) 
TV2 (YLE) 
MTV3 (MTV) European works 
(EW) 
1994 
85 
78 
46.9 Independent 
productions (IP) 
1994 
7 
15 
20.2 Recent works (RW 
1994 
7 
15 < 
20.2 
(B) Reasons given by Member State for failure to reach proportion 
1. European works 
- MTV3: The report states that the extension of programming time obliges the channel to resort 
to foreign programmes. 
2. Independent productions 
- TVI: The data relate to the period 1.9 o 31.12.1994; the preliminary data for the period 1.1 
to 30.6.1995 show a progression: 11% for TVI and 8% for TV2. 
44 
(C) Measures taken or envisaged by Member State 
- The report considers that the situation of MTV3 should be corrected in 1995: the channel will 
increase its own production by 1.5 hours a day and in 1995 a series of German origin is expected 
to be included in the programme schedule. 
45 
SWEDEN 
A) Statistical statement 
1. Summary table 
Number of channels Reference period Method 
11 Calendar year 1994 - ZTV: sample over 6 
months 
2. Proportions (% 
Channel 
(broadcaster) 
TV4 (TV4 AB) 
Filmnet Plus 
The Complete 
Movie Channel 
(Filmnet TV AB) 
ZTV (ZTV AB) 
TVG (Stuvik AB) 
TV6 (Stuvik AB) 
Kanal 1 
TV 2 
(Sveriges TV) 
TV2 European works 
(EW) 
1994 
49.1 
3 
76.1 
100 
50 
82 Independent 
productions (IP) 
1994 
10 
26.5 
33.2 
100 
50 
15 Recent works (RW 
1994 
-
-
-
46 
Kanal1 
TV2 
(Sveriges 
Utbildingsrad) 
TV 1000 
(TV 1000 Sveriges 
AB) 96 
29.06 29 
(B) Reasons given by Member State for failure to reach proportion 
European works 
- TV 1000 and Filmnet TV AB: both companies, competing on the same market, have to show 
films which are sufficiently attractive to justify the cost of subscriptions. 
(C) Measures taken or envisaged by Member State 
Not reported. 
47 
UNITED KINGDOM 
(A) Statistical statement 
1. Summary table 
Number of channels Reference period Method 
35 calendar year survey 
Proportions (%) 
Channel 
(broadcaster) 
BBC 1 
BBC 2 
1TV 
Channel 4 
The Adult 
Channel 
BBC World 
Service 
Bravo 
The Cartoon 
Network 
Country Music 
TV European 
works 
(EW) 
1993 
71 
77 
66.9 
59.2 
38.2 
99 
33.2 
1.1 1994 
66 
75 
67.6 
60.5 
40.1 
99 
45.1 
1.7 
1.6 Independent 
productions 
(IP) 
1993 
23 
12 
24.7 
47.3 
24.8 
11 
1.5 
1.1 1994 
22 
14 
24.8 
49.4 
29 
9 
1.7 
1.6 Recent works 
(RW) 
1993 
23 
39.4 
1.1 1994 
21.3 
40.3 
1.6 
48 
The Discovery 
Channel 
The Family 
Channel 
HVC 
Kindernet 
TV 1000 
UK Gold 
UK Living 
TV3 DK 
TV3 Norway 
TV3 Sweden 
VH 1 
Vision 
VJN "The 
Box" 
Travel 
TNT 
TCC 
(Children's 
Channel) 
TLC (Learning 
Channel) 
Sky Travel 
Sky Soap 
Sky One 50.7 
15.5 
22.1 
74.6 
22.3 
58 
55.2 
26 
32.9 
64 
6.4 
51.7 
84.7 
13 48.1 
27.9 
14.7 
78.8 
29.4 
58.1 
56.6 
31.7 
27.8 
39.4 
97 
36 
68.6 
41.4 
10.9 
46 
57.8 
31.4 
5.9 
14.5 28.2 
5.4 
9.7 
69.9 
22.3 
11 
55.2 
11.1 
21.9 
24.5 
6.4 
28.7 
43.1 
5.5 28.5 
11.8 
3 
69.8 
29.4 
14.1 
56.6 
15 
13.7 
19.7 
75.5 
24.5 
27.2 
12.8 
10.9 
26.4 
41.6 
12.2 
8.5 5.4 
6.2 
10.3 
46.5 
19.3 11.8 
2.5 
9.7 
50 
22.1 
12.2 
49 
Sky Movies 
The Movie 
Channel 
Sky Movies 
Gold 
Performance 
NBC Super 
Channel 
Nickelodeon 16.8 
13 
15.4 
62.6 
61.4 
26.4 23.7 
16.3 
16.7 
71.5 
41.9 
24.4 7.4 
9 
13 
25.9 
20.8 
13.4 10.4 
11.1 
13.7 
26.7 
11.2 
12.4 9.9 
18..8 14 
9 
(B) Reasons given by Member State for failure to reach proportion 
1. European works 
(a) because of the thematic character of the channel 
- Bravo: the channel's classic format requires programmes designed for terrestrial networks 
- Country Music TV: license revoked in October 1994; mostly US music. 
- HVC: primarily 'B' movies, insufficient suitable material available except from the USA. 
- TV 1000, Sky Movies, The Movie Channel, Sky Movies Gold: mostly cinema films, largely 
of US origin (as in the cinema). 
- Vision: specialist religious channel reflecting the world-wide nature of the Christian faith. 
- The Cartoon Network: launched in September 1992 and based on existing US library material; 
difficulty in acquiring suitable European animation programmes. 
- TNT: opened in September 1993; existing US film library material. 
50 
(b) because of when the channel began broadcasting 
- The Family Channel, Nickelodeon: began in September 1993; difficulty in acquiring suitable 
English-language programmes. 
- TV 3(DK/NO/SW): the Norwegian and Swedish channels resumed in 1994; ratio between cost 
and viewing figures unfavourable to European programmes. 
- VH 1, Travel, Sky Travel, Sky Soap: began in 1994; cost of suitable European programmes. 
(c) other reasons _ 
- The Adult Channel: ending of a commercial agreement with a producer of European 
programmes. 
- The Discoveiy Channel, TCC, NBC Super Channel: . 
- Sky One: difficulties with trade unions, so that cost of secondary programmes favours US ones. 
2. Independent productions 
- BBC World Service: rescheduling in 1994 at the expense of some independent productions, 
because of contract stipulations. 
- Bravo: the targets concerning independent and recent productions are excluded by the channel's 
format. 
C) Measures taken or envisaged by Member State 
The report states that the authorities have been speaking with the broadcasters of some thematic 
channels and will if necessary use the powers under Section 188 of the Broadcasting Act. 
51 
They are also continuing detailed discussions with the following channels in order to determine 
to what extent and over what period of time the attainment of the quota provisions could be 
regarded as practicable: The Family Channel, HVC, TV 1000, TV 3 (DK/NO/SW), Vision, Travel, 
TNT, Sky Travel, Sky Soap, Sky One, Sky Movies, The Movie Channel, Sky Movies Gold, NBC 
Superchannel, Nickelodeon. 
Some further data show progress in achieving the quotas: 
- TV 1000: European works accounted for 31.8% in the last three months of 1994 and 36% in 
1995; 
- TNT: European works accounted for 17.8% in late 1994 and 21.7% at the end of August 1995; 
- Sky One: in the first two quarters of 1995 European works accounted for 36% and 31.2%. 
The report states that the proportions have been or will be reached in 1995 or 1996 by the 
following channels: The Adult Channel, BBC World TV, The Discovery Channel (59 % European 
content in 1995), TCC. 
Finally, it underlines a steady annual improvement for the following : Bravo, The Cartoon 
Network (at the end of 1994, the broadcasting of European works reached 9,6% and additional 
improvements has had to be made in 1995). 
(D) Remarks -
The report makes the following further remarks: 
- the statistics were gathered in accordance with the "Suggested guidelines for the monitoring of 
the Television without Frontiers Directive"; 
- according to Broadcasters' Audience Research Board Ltd., the four main terrestrial channels 
account for 92% of the viewing public; 
52 
- a number of the satellite channels are not covered by the quota requirements under Articles 4 
and 5 because of the nature of their programmes. The Commission has not included them in the 
table above. They are: Asia Net, The Chinese Channel, CNE, Japan Satellite TV, TV Asia, 
Muslim TV Ahmadiyya19, Namaste (non-European languages), Sky Sport, Sky Sport 2, SIS 
Racing Facts, Setanta Sport (sports channels), Sky News, The Parliamentary Channel (news), 
Quantum Home Shopping, QVC, Regal Shop, Sell a Vision (teleshopping). 
19 
This channel broadcasts religious programmes, some of which are in non-European languages. The 
report states that the proportion of European works should have been complied with (as regards 
programmes in English) and that discussions will be held to establish future targets. 
53 
NORWAY 
(A) Statistical statement 
1. Summary table 
Number of channels Reference period Method 
3 Calendar year 1994 - sampling for TV Norge 
- survey for the others 
2. Proportions (%) 
Channel 
(broadcaster) 
NRK (NRK) 
TV2 (TV2 A/S) 
TV Norge (TV 
Norge A/S) European works 
(EW) 
1994 
80 
24.2 
21.3 Independent 
productions (IP) 
1994 
13 
10.5 
9.2 Recent works (RW 
1994 
-
-
-
(B) Reasons given by Member State for failure to reach proportion 
1. European works 
'TV2 and rTV Norge: mainly the market situation. 
The Norwegian Ministry of Cultural Affairs considers this argument inadequate. 
54 
(C) Measures taken or envisaged by Member State 
- Situation to be closely monitored by the Ministry and the National Council for the Media, so 
that broadcasters comply with Articles 4 and 5. 
(D) Remarks 
Recent works 
- The report states that none of the broadcasters surveyed RW, on the grounds that, with the 
exception of some cinema films, few programmes were more than 5 years old. 
55 
COMMISSION OPINION 
A. METHODOLOGY 
The previous monitoring exercise encountered a number of problems due to differences in the way 
the various national reports were presented and the lack of full figures concerning European works, 
independent productions and recent works. There was also little in the reports as to how the 
information in them was gathered and processed. 
In order to facilitate this second exercise, the Commission supplied the Member States with the 
updated "Suggested guidelines for the monitoring of the TV without Frontiers Directive" (see above), 
and a matrix for the presentation of data. The Commission is happy to report that, by and large, the 
national reports are now fuller, clearer and better presented, but some comments are still in order 
on four of the main topics complicating the Commission's work, on which it reported methodological 
difficulties in 1993. 
1. Survey of television channels 
1.1 Jurisdiction 
Five of the reports raise the question of which country's jurisdiction a given broadcaster falls under. 
Luxembourg and the French Community in Belgium both report RTL-TVi as falling within theirs, 
as was found during the previous monitoring exercise. Similarly, RTL Television is included in both 
the Luxembourg and German20 reports, while those from both Sweden and the United Kingdom give 
data for TV 100021. 
20 
21 It is to be noted that the percentages in the two reports are the same for European works but not for 
independent productions (discrepancy of 1% each year). 
The proportions for European works in 1994 are different: 29.06% in the Swedish report and 29.4% 
in the UK one. 
56 
If a given broadcaster is mentioned in reports from two different countries, this implies that it falls 
under both their jurisdictions. As the Commission pointed out in its previous report, these are real 
problems of conflict of jurisdiction, with more than one Member State claiming it over the same 
broadcaster. This does not accord with the spirit of the Directive, which is that only one state's law 
should apply. The Commission takes the view that this is in part directly due to the 1989 text of the 
Directive not being clear enough as to the criteria for deciding where a broadcaster is established. 
There is also the matter of defining what constitutes a broadcaster. 
Although rather few such cases arose during the period covered by this report, the Commission is 
convinced that the expansion of satellite and cable networks22 is bound to throw up real problems 
of jurisdiction affecting the operability of national regulations systems and hence of the Directive 
itself, unless common criteria on the matter are identified and complied with. 
This is why, in its proposal of March 1995 for amending Directive 89/552/EEC, the Commission 
strengthened the establishment criterion, on the basis of the case law of the Community's Court of 
Justice concerning free movement of services, by introducing it into the body of the Directive, so 
as to make it easier to determine which Member State has jurisdiction, and at the same time adding 
a recital containing a number of elements enabling the concept of establishment to be qualified in 
the specific context of television broadcasting23. These include where the business is registered, 
where programming decisions are normally taken, and also where a significant number of staff are 
employed. 
22 
23 In 1995 alone, some 98 satellite and cable television channels started up in Europe (European 
Audiovisual Observatory, 1996 report). 
Op. cit.,p. 28 et seq. 
57 
1.2 Channels covered 
The purpose of the monitoring exercise is to provide the Commission, every two years, with 
significant data for the reference period as to the channels covered, i.e. all except local ones which 
are not part of a national network (Article 9 of the Directive) and those essentially thematic ones 
dealing with the excluded subjects (sport and news). Member States are thus not asked to draw up 
compete lists of broadcasters and channels subject to their jurisdiction. 
For the sake of transparency, however, the Commission does think that reports should list (as the 
United Kingdom's one did) all the channels put out by broadcasters subject to each Member State's 
jurisdiction, together with enough information to determine which of them are concerned by Articles 
4 and 5, and should put them into categories. 
Article 4(3) provides that figures are to be provided "for each of the television programmes falling 
within the jurisdiction of the Member States concerned", the actual obligations being on the 
broadcasters. Two reports gave figures covering a number of channels globally, which is not strictly 
in accordance with Article 4(3): 
- the Irish report as regards RTE 1 and Network 2; 
- the Swedish report as regards Filmset Plus/The Complete Movie Channel and Kanal 1/ TV 2. 
This second monitoring exercise also points up a problem concerning the names of television 
channels which has made the Commission's work more difficult. Some national reports give figures 
for a channels under a different name from that used for the 1991/1992 report. If not informed by 
the Member States, the Commission cannot always determine whether this is a change of name, a 
new abbreviation, or a new channel.24 
24 The Luxembourg report for 1991/1992, for instance, refers to one channel as "RTL Television", while 
the 1993/1994 report has two channels called RTL TV "hertzien" and RTL TV "câblé". Unless told, 
the Commission cannot say whether these are both two new channels since 1991/1992 or whether one 
of them (and which) is the same as "RTL Television" in the first exercise. 
58 
As this is an exercise to be carried out every two years, all channels should be sufficiently fully and 
clearly reported each time. The Commission is unhappy that, by and large, too little or indeed no 
information is provided as to the nature, date of launch or status of the channels reported. 
Specifically, and not exhaustively, the Commission notes the following lacunae in national reports: 
- Spain: no information on Cinemania and Documania; 
- Italy: no information on Odeon TV and RETE A; 
- Netherlands: no statistics on Multichoice NL. 
2. Reference period 
2. 1. Coverage 
As the reference period was two consecutive calendar years, Member States did not have the same 
problems in covering it as in the previous exercise,when difficulties arose because it covered fifteen 
months, from October 1991 to December 1992. Annual data for calendar years (see point 6 of the 
Guidelines) would thus seem to be the best thing for regularly returned statistics. 
Although the point is not always specified in this second series of reports, the Commission notes that 
the most usual way of collecting the figures was to record channel-by-channel percentages of total 
annual broadcasting time.25 Sampling, however, was used in a number of reports: 
- the report from the Flemish Community in Belgium indicated the sample for 1993 (the weeks from 
4 to 10 January, 3 to 9 May, 6 to 12 September an 4 to 10 October) and 1994 (4 to 9 January, 2 to 
8 May, 5 to 11 September, 3 to 9 October); 
- the Netherlands report stated that it had taken a representative sample of weeks, but drtfnot specify 
which; 
- the Portuguese report used a sample of August 1993 and 1994 for recent works broadcast by public 
channels; 
- the Swedish report specified the sample for ZTV AB: spring and autumn 1994; 
25 
Where the method is not specified, the Commission assumes that it is by annual survey. 
59 
- the Finnish report stated that the figures for recent and independent productions covered the period 
1 September to 31 December 1994, 
- the Norwegian report said that the percentages for TV Norge were based on four weeks in the four 
quarters of 1994, but did not specify which. 
2.2 Statistical base 
Very little was said in most of the reports about the statistical base, that is the categories of 
programmes regarded as "works" for the purposes of Articles 4 and 5. The Directive expressly refers 
to "transmission time, excluding the time appointed to news, sports events, games, advertising and 
teletext services".26 This amounts to a reverse definition, i.e. of what is not regarded as a work, and 
percentages are calculated on the time remaining after that devoted to programmes of the five 
categories above has been deducted, a work being regarded as anything not falling within those 
categories. Seven reports (Greece, Italy, Norway, Flemish Community in Belgium, Austria, United 
Kingdom, Denmark, Luxembourg) included information showing the base used to be as provided for 
in the Directive. 
This aspect is also affected by the way the two articles as presently worded have been transposed 
into each Member State's legislation (see point B below). Some have opted for the definition of a 
work as in the Directive and have thus taken over the same base for collecting statistics, whereas 
others have adopted a more regulatory approach27 by themselves giving a positive definition of a 
television work which emphasizes some categories more than others, such as cinema films, teleplays 
or documentaries. This implies a policy choice to promote these works over others, the upshot being 
in general a narrower base than in the Directive. 
26 
27 See also point 3 of the "Suggested guidelines for the monitoring of the TV without Frontiers Directive 
(see Annex 1). 
They calculate the percentage on the broadcasting times of certain programmes which they consider 
to be works. 
60 
2.3 Non-slivback clause 
Article 4(2) of the Directive requires that, where a majority of European works broadcast is not 
attained, national reports should indicate the average for 1988 (or 1990 for Greece and Portugal). 
In the cases of Luxembourg, the United Kingdom, Spain, Italy, Belgium, France, Norway,Finland, 
Sweden, Portugal and Germany, some channels failed to reach the majority proportion, but only 
three of them (Flemish and French Communities in Belgium and Italy)28 gave the average for 1988. 
Again the Commission must point out that it is hardly possible to monitor the application of Article 
4(2) and countries' progress in broadcasting European works over a significant enough period if the 
1988 average is not given. 
3.Independent producers 
3.1 Definition 
Gathering figures on broadcasting of or investment in independent productions (the 10% rule laid 
down in Article 5 of the Directive) led to less difficulty than in the previous monitoring exercise, 
with the reports mostly giving more statistics. The Commission concludes from this that point 5 of 
the Guidelines has been better perceived as a general framework and better adapted to the specific 
characteristics of independent television production in the various countries. The television scene 
varies greatly from country to country, as do the effects on the economics of production, and the 
Commission remains convinced that it would not be appropriate to adopt any one cast-in-bronze 
definition of what an "independent producer" is, since the concept has to be flexible if it is to match 
the real situation in each country. 
These three reports give the 1988 averages already given in the first reports, for 1991/1992. 
61 
The national reports can be divided into those which do refer to the definition used (Ireland: Section 
5 of the Broadcasting Authority (Amendment) Act, 1993; Netherlands: Article 52k of the Decree on 
the media; Luxembourg: Article 27 of the Law of 27 July 1991 Denmark: definition taken from 
company law; France: Decree 90-67 of 17 January 1990; French Community in Belgium; Germany: 
specific definition for statistical purposes, Norway, Sweden, Greece, Italy: favour a harmonized 
definition) and those which make no mention of it (Austria, Flemish Community of Belgium, 
Portugal, Finland, Spain, United Kingdom29). 
3.2. Statistical base 
Under Article 5, the Member States have discretion as to what the 10% rule is to be based on, either 
10% of transmission time, excluding the time allocated to news, sports events, games, advertising 
and teletext services, or 10% of the programming budget. All the reports give figures based on 
broadcasting time, with three exceptions: 
- France: the report states that Decree 90-67 of 17 January 1990 applies to non-cable channels. This 
requires that they order a minimum volume of works, expressed as a percentage of turnover (15 to 
20% for television programmes, 3% for cinema films). It was also established that a broadcaster's 
programming budget is always less than his turnover: between 50 and 80%, according to the type 
of programming. As regards cable channels, the Commission notes that both bases were used in 
different cases; 
- Sweden: according to the letter sent to the Swedish authorities by TV4, reproduced verbatim in the 
report, it opted for the programming budget base. Its budget amounted to some SKR 500 million, 
of which more than half was accounted for by European works by independent producers. 
- Flemish Community in Belgium: the report specifically says that "BRTN complies with the 
10%-of-budget limit". 
29 
The United Kingdom reported a statutory instrument, the Broadcasting (Independent 
Productions)(Amendment) Order 1995, No 1925, containing the definition used. 
62 
3.3 Recent works 
These reports are much more consistent than the previous ones in giving the proportion of recent 
works by independent producers, that is, those broadcast within five years of production. Only five 
reports fail to give figures: those for France (which does, however, state that the figures for 
independent productions also cover recent works), Norway (few programmes over five years old), 
and Sweden, the United Kingdom and Italy (no comment). 
There was some uncertainty as to the basis for the percentage of recent works. In the Commission's 
view the proportion of recent works cannot exceed that of independent productions, the basis being 
the same (transmission time excluding that allocated to news, sports events, games, advertising and 
teletext services), but for almost all the channels covered by the Portuguese and German reports the 
figures for recent works are higher than those for independent productions. The same goes for four 
channels in the Greek report (ANT1, Mega Channel, Seven X, Sky) and two in Denmark (DR, TV2). 
This remaining unexplained, the Commission cannot deduce whether these are percentages of the 
proportion reserved for independent productions or whether they represent the totality of recent 
works broadcast, whether or not independent and whether or not European within the meaning of 
Article 6. 
4. Channels failing to reach the required proportions 
Channels failing to reach the proportions laid down in Articles 4 and 5 were reported by 
Luxembourg, Belgium, France, Portugal, Spain, Italy, Sweden, Finland, Norway, the United 
Kingdom and Germany. Unlike in the first exercise, most of the reports said why the channels 
concerned had not been able to comply and reported the measures taken or planned to induce them 
to do so. The Commission regrets that no, or only some, such information was given i«-the reports 
from Sweden, Italy, Spain and the two language communities in Belgium. 
63 
B RESERVATIONS ON THE COMMISSIONS PART 
Before setting out the overall situation resulting from the figures reported by the Member States, the 
Commission considers that it must clarify some aspects of the way the statistical base for the 
obligations imposed by Articles 4 and 5 has been transposed into national legislation, in view of the 
flexibility and progressiveness for which they provide. 
The Commission would also refer here to some provisions adopted by Member States (which may, 
under Article 3(1) of the Directive, apply more detailed or stricter rules to broadcasters subject to 
their jurisdiction30) to encourage the broadcasting of programmes in a given language or a given 
area. The aim is not only to facilitate a better interpretation of the figures reported, 
but also, and above all, to sound the warning bell required before any attempt is made at an 
economic or other assessment without a thorough examination of the situation as a whole. 
30 Their doing so does not prejudice the applicability of Article 59 of the EC Treaty. 
64 
State of plav in transposai 
MEMBER STATE Statistical base Other measure 
Legislation 
LUXEMBOURG = Directive 
Article 27(1 )(4) of the Law 
of 27.7.1991 on the 
electronic media 
IRELAND = Directive 
Statutory Instrument _ 
No 251 67 1991 
(Broadcasting Act 1990) 
AUSTRIA = Directive 
Rundfunkgesetz-Novelle 
1993 §2(b) (BGBL 505/1993 
GERMANY Broadcasting time of 
Article 5 of the State Treaty full-length feature 
of 31.8.1991 on broadcasting programmes, games, series, 
documentaries and the like 
DENMARK = Directive 
Article 2 of Order 100 of 
5.3.1993 
GREECE Total broadcasting time 
Article 4(1,5) of (minus news) 
Presidential Decree 236 of 
10.7.1992 
65 
FRANCE Annual broadcasting time of 40% of programmes in 
Decrees 90-66 (Articles 4, 5, "audiovisual works"31 original French 
7, 8) and 95-77 of 24.1.1995 
(articles 6,12) 
BELGIUM (French Cty) = Directive a proportion (not specified) 
Article 24bis of the Decree of original works by persons 
of 17.7.1987 as amended by from the French Community 
the Decree of 19.7.1991. 
BELGIUM(Flemish Cty) = Directive a proportion (not specified) 
Articles 16,17 of Decree of Dutch-language_ 
94/1494 of 4.5.1994 
ITALY Annual broadcasting time of 50% of works from Italy (of 
Article 26 of Law 223 of cinema films the time devoted to European 
6.8.1990 works) 
NETHERLANDS Article = Directive 40% of programmes in 
52/k/l of the Order of Dutch or Frisian 
22.6.1992 
SPAIN Annual broadcasting time 50% of European works 
Articles 5(1,2) and 6 of Law originally in one of the 
25 of 12.7.1994 languages of Spain 
UNITED KINGDOM = Directive32 adequate proportion of 
Annex to the Royal Charter British (BBC) and European 
and Sections 16(2)(g/h), (Channels 3, 4, 5)jyorks 
25(2)(e/f) and 29(2)(f) of the 
1990 Broadcasting Act 
31 
32 "Audiovisual works" are defined in Article 4 of the Decree: everything apart from news, teletext, 
advertising, teleshopping, own promotion, sport, varieties, games, broadcasts other than fiction mainly 
done on set, full-length cinema films. Article defines a different base for full-length cinema films: the 
total number of such films broadcast annually. 
The UK report specifies that the figures were gathered in accordance with the "Suggested Guidelines". 
The 1990 Act also lays down precise rules of origin for S4C. 
66 
PORTUGALN = Directive 40% of programmes in 
Articles 19, 20 and 21 of Portuguese 
Law 58/90 of 7.9.1990 
FINLAND minimum proportion of 
Articles 10 and 12 of Law Finnish programmes (15 to 
92/1213 amending the Cable 50%) 
Transmission Law 
SWEDEN = Directive (for satellite significant proportion of 
Article 13 of the channels) programmes in Swedish and 
Broadcasting Act of programmes with Swedish 
17.12.1992 (applies only to performers and authors 
satellite TV: bill concerning 
conventional and cable TV) 
C. OVERALL RESULT 
1. Channels surveyed 
The number of channels identified in the national reports was: 
- 118 in 1993; 
- 148 in 1994 (including 19 for Sweden, Finland, Austria and Norway). 
The previous monitoring exercise found 105 channels in 1991/199233, giving an increase of 13 
channels between 1992 and 1993, and 11 between 1991 and 199434, or a total of 24 between 1992 
and 1994 (ignoring the three new Member States and Norway, which were taking part for the first 
time with figures for 1994 only). 
33 
34 See p. 17 thereof. 
This includes TV3 Norway and TV3 Sweden (see also the UK report), which were running in 1992, 
stopped broadcasting in 1993 and resumed in 1994. 
67 
2. Comments 
2.1 Broadcasting of European works 
(a) Communication of data required 
All the reports gave, for all the channels reported, figures for European works broadcast over the 
reference period. 
(b) Communication of reasons for some channels not complying 
Most of the national reports state why some channels did not achieve a majority of European works 
broadcast. The Commission regrets that this was not so in the reports from Spain, Italy and (for one 
channel, TV4) Sweden. 
(c) The figures given 
Purely quantitatively, the total number of channels which reached the majority proportion, i.e. 50% 
or more of European works broadcast over each of the two reference years, was: 
- 80 in 1993 
- 91 in 1994 (those in Sweden, Norway, Austria and Finland amounting to 12). 
As regards both Article 4 and Article 5 (see below), the Commission does not consider that it should 
draw any interpretative conclusions from these totals or make any comparative analysis. There are 
basic differences between the television industries of the different countries concerned, not only 
technically and organizationally but also as regards their options and objectives and the- regulatory 
principles applied in implementing Community law. 
As regards the reports including channels which did not achieve the majority proportion of European 
works, the Commission would make the comments set out below. 
68 
'#••••-• 
Flemish Community in Belgium: VTM, a private cable channel, has been making constant progress 
since 1992 and in 1993/1994 it exceeded the average for 1988. With TVI, which it resembles in 
being of general appeal, it accounts for most of the audience Filmnet Plus and The Complete Movie 
Channel are paying channels concentrating on films. 
French Community in Belgium: Sport 21 put its situation right in 1994, but this was not very 
significant as most of its programmes are sport and thus outside the scope of Articles 4 et 5. 
Canal +, a paying channel concentrating, on sport and cinema, and RTL-TVi, a private general 
interest channel, both exceeded the 1988 average, the former having improved on its 1992 figure 
while the latter fell back: it accounted for over 50% of viewers in 1993/1994.35 
Germany: DSF and N-TV, broadcasting mainly sport and news, are not concerned by Articles 4 and 
5. There is no problem with the major public general-interest channels. RTL has improved since 
1991, as has Premiere, a paying thematic (films) channel. On the other hand, SAT 1 and PRO 7, 
covering almost all of Germany, with general-interest programming and lying third and fourth in the 
ratings, are improving only slowly over 1991, with SAT 1 even falling back slightly in 1994. Three 
channels which began broadcasting in 1993/1994 reported for the first time: RTL 2, a private 
general-interest channel, has national coverage but a limited audience; KABEL 1 and VIVA TV are 
thematic channels. 
Spain: there is impressive progress for all channels compared with the 1991 figures in the previous 
monitoring exercise (there was already a great improvement in 1992). The case of Antena 3, whose 
proportion had fallen back since 1992, is not explained: it is a private general-interest channel, and 
one of the major national stations, with ratings almost as high as TVE-1 (between 20 and 30%). 
Canal+, a paying channel, is stationary. 
France: All the major general-interest channels, which account for the lion's share of the audience, 
whether they are public or private, paying or not, are well in excess of the majority proportion. 
Canal Jimmy made progress over 1991/1992, while Cine-Cinéfil stayed still. They are both almost 
in compliance. Multivision is a first experiment in pay-per-view. 
35 
European Audiovisual Observatory's 1996 yearbook. 
69 
Italy: Compared with 1991/1992, the major general-interest channels with national coverage, 
accounting for a large part of the total audience (about 20% between them) have slipped back 
(Italia 1) or remained stationary (Rete 4). The same goes for Tele MonteCarlo and Telepiu 1 
(paying), which both cover almost the whole country and are general-interest channels but have 
fewer viewers. Their percentages are below the 1988 average. 
Luxembourg: Although since 1992 the percentages achieved by Luxembourg channels, which are 
all private, have improved somewhat, the overall situation is still that most of them are having 
difficulty in reaching a majority proportion, even though they are general-interest channels and have 
transnational coverage. The main reason given for this is the cost of European programmes. 
Portugal: The arrival on the Portuguese market of two new private broadcasters with 
general-interest programmes considerably modified the television scene in 1993/1994, when they 
accounted for 50% of viewing. This was the reason for Canal l's percentage in 1994, and for those 
of the private stations, sharing the same market. 
United Kingdom: The four main national terrestrial stations, widi general-interest programming, still 
account for 92% of the audience (see UK report). On average over the two reference years their 
programmes were over 60% European. Because, among other things, of the way in which licences 
are awarded in the UK, the report refers to a large number of satellite channels, many of which have 
not reached the majority proportion. The fact is that these channels still have a limited audience (the 
BSkyB range having the largest audience growth rate), while the reasons given are most often a 
recent launch date and the cost of programmes (thematic channels). 
Sweden, Finland, Norway: the percentages, covering 1994 only, show that public channels easily 
reached the majority proportion, while directly competing private channels (likewise with national 
coverage, general-interest programming, large audience) and thematic channels did not do so. As 
regards Sweden and Finland, which have been Member States since 1 January 1995, as also for 
Austria, the Commission would point out that it is continuing its examination of transposai into 
national law. 
70 
The Commission notes that, by and large, general-interest terrestrial channels, and in particular the 
public ones which have been in existence for many years now, have no difficulty in attaining a 
majority proportion of European works, and that home-produced works account for a fairly large 
share, whether this is because of specific regulations adopted in compliance with Community law, 
the implementation of schemes of national aid for television and cinema production, or audience 
preference. 
Satellite channels' difficulties in reaching the majority proportion are mostly due to one or both of 
two factors: the date the channel was launched or the nature of its main type of programme. All 
the reasons put forward in the reports concerned boil down to one or the other, as a result of the 
blanket application of the Directive to all television channels. They include a channel's financial 
possibilities and the subject matter of its programmes, which determine what supply there is of 
suitable European programmes offering a cost/audience ratio which is sufficiently profitable and 
equivalent to that of similar non-European (mainly American) programmes. 
2.2. Independent and recent productions 
(a) Communication of required data 
Most of the reports give full data for most of the channels they list regarding the proportion of 
independent productions. Five of them are incomplete in this respect: 
Flemish Community in Belgium: The Complete Movie Channel; 
Italy: Telepiu 1, 2 and 3; 
Sweden: TV 1000; 
United Kingdom: Bravo (1994) and Sky Soap; 
Netherlands: Multichoice NL. 
The table below shows the situation regarding the broadcasting of an adequate proportion of recent 
works from independent producers. 
71 
No figures given Figures given for all channels Some figures missing 
reported 
France Spain Belgium (both Communities) 
Italy Ireland Luxembourg 
Sweden Netherlands United Kingdom 
Norway Portugal Germany 
Austria Greece 
Finland Denmark 
(b) Reporting of reasons for some channels not complying 
- Regrettably, little in the way of reasons is given in the reports for some channels not reaching the 
proportion of independent productions. There is nothing on this in the Spanish and Norwegian 
reports, and practically nothing in the United Kingdom one. 
- As regards reports in which information concerning recent works is missing, the situation is as 
follows: 
. Flemish Community in Belgium: nothing concerning The Complete Movie Channel, no explanation 
given; 
. United Kingdom: figures given for 11 channels, no explanation for missing figures; 
. Sweden, Italy: no explanation for lack of figures; 
. Germany: no figures for Premiere; 
. Denmark: no figures for DR; 
. Greece: no figures for ET1 (1993); 
. France, Norway, French Community in Belgium (for one channel, Canal+), Luxembourg (for one 
channel, RTL TV): the reports state that the proportion is complied with de jure {France) or de 
facto. 
72 
(c) Figures supplied 
The total number of channels reported as complying with the 10% rule for independent productions 
is: 
- 87 in 1993; 
- 119 in 1994, including 16 for Norway, Sweden, Austria and Finland. 
As regards the reports listing non-complying channels, the Commission has the following comments: 
Flemish Community in Belgium: no explanation given for TVI; 
Germany: no explanation given for RTL 2 and VIVA TV, the figures being well below 10%, 
although both channels are recent; 
Spain: no explanations are given for ETB-2, TV-3 and TV-33, whose figures are worse than in 
1991/1992, while they are not recent channels. The figures for ANT-3 and TVG improved from 
1993 to 1994. 
Italy: apart from BETA TV, all channels are down compared with 1991/1992 and below the 10% 
limit. For Tele MonteCarlo, the proportion rose from 1993 to 1994. The situation in Italy is a 
somewhat marginal one, largely because there is no definition of an "independent production" which 
is applied across the board. 
Portugal: TVI, a recently established channel, has had to rely on its own productions, for financial 
reasons. 
United Kingdom: most channels, including the major terrestrial ones, reached or greatly exceeded 
the 10% proportion. In addition, the 1993 situation was corrected in 1994 by The Movie Channel, 
Sky Movies, TNT, and The Family Channel. Generally speaking, the 10% target, already reached 
at the time of the previous monitoring exercise, should raise no major problems, except for some 
73 
satellite channels started up by companies with large libraries of programmes accounting for most 
of their programming (such as The Cartoon Network). 
Finland. Norway: this first survey shows that there should be no particular problems over the next 
few years. 
- The Commission reaffirms its commitment to the objectives of Article 5, that is, promoting the 
development of a secondary market for commercial exploitation of productions, so improving the 
market prospects for independent producers, and encouraging investment in new productions. The 
results were much better than in 1991/1992, and things should continue to improve in the future, 
given the continued expansion of the television sector in Europe: the rising number of television 
channels will lead to greater demand for programmes, which should include many new ones, since 
many of the figures reported for recent works in this report for 1993/1994 are as high as for 
independent productions. 
- The Commission deduces from the information provided that the channels which did not achieve 
the proportion laid down are those which have financial difficulties because they were launched 
recently, have specific programming features or belong to owners of existing libraries. They find 
themselves obliged, for a time, to broadcast their own programmes. In the Commission's view, the 
low proportion required and the choice which Article 5 gives between broadcasting and investment 
should enable all channels to move up and achieve the target. 
D. CONSIDERATIONS 
These results lead the Commission to the following conclusions: — 
- the number of channels concerned by Articles 4 and 5 rose as compared with 1991/1992; 
- in strictly quantitative terms, there was an appreciable improvement overall. 
74 
This, however, should not be interpreted as either proving or disproving the effectiveness or the 
economic impact of Articles 4 and 5 on the development of the European television industry. The 
use in them of the expressions "where practicable" and "progressively" bears witness to the 
flexibility which is built into a system currently applying across the board to all television channels, 
both general-interest terrestrial ones and thematic satellite ones36, whatever their nature and whatever 
the individual situations in the particular Member States. This means that the extent to which the 
arrangements are being implemented varies between Member States. Nonetheless, as provisions of 
a Community Directive, Articles 4 and 5 are legally binding.37 
This situation is a natural consequence of the very nature of Articles 4 and 5. They provide what 
amounts to the minimum coordination of the various national rules which is needed to ensure free 
movement in television broadcasting (since those Member States which so desire can impose further 
requirements on their own broadcasters), but do not in themselves make it possible to achieve the 
objective of strengthening European television broadcasting, to the same extent as a watertight, 
blanket system. 
The Commission thus does not consider it reasonable to try to show any direct and definite link 
between the proportions achieved and the implementation of the system as laid down in the current 
text of the Directive. Definite conclusions can be drawn only where the proportions are enforced 
compulsorily and across the board. 
- This comment must be accompanied by reservations as to the way in which the Member States 
have defined in their domestic legislation the statistical bases on which the proportions are calculated 
(see point B.). 
36 
37 The Commission's proposal for amending the Directive is intended to give greater legal certainty to 
Articles 4 and 5 by deleting the expression "where practicable" and making the option of investment 
in European works available for channels whose nature or subject matter make it difficult for them to 
comply with a broadcasting obligation. 
See footnote 7. There is a duty of behaviour. 
75 
In view of all the above, the Commission considers that it would be very risky to try to make an 
economic assessment on the basis of the raw figures reported by the Member States for the two 
monitoring exercises, that is, by comparing percentages which are for the most part not comparable 
and ignoring the overall context of other measures to develop the television and cinema industry, 
such as national aid for cinema and television or the rules on mergers and concentrations. 
This is why the Commission is carrying out other, parallel studies taking account of the situation as 
a whole and the nature of the various existing instruments. 
The Commission would point out that the two Community provisions concerning the broadcasting 
of European and independent works are an integral part of the "European audiovisual area" which 
is an aim of the Treaty and is materialized in the Directive. In the table concerning the transposai 
into domestic legislation of the statistical base (see point B. above), mention is made of any 
provisions to encourage the broadcasting of programmes made in a given language or produced 
"locally". Without some minimum coordination at Community level, as at present provided for in 
Articles 4 and 5, such measures would be likely to constitute obstacles to the free movement of 
television services and thus contravene Article 59 of the Treaty. 
In view of the development of television broadcasting and of the single market itself, the 
Commission would stress the importance of reconciling the two objectives of increasing the supply 
offered by European television channels and developing Europe's television and cinema production, 
by establishing a regulatory framework which is sufficiently certain and sufficiently flexible. 
76 
E. CONCLUSION 
(a) Reporting of figures 
The Commission considers that the Member States have made significant efforts, in comparison with 
the previous exercise, to supply all the statistics required, in particular the figures for recent and 
independent productions. The few exceptions are isolated cases indeed. The Commission intends 
to ask the authorities concerned to make good the gaps. 
(b) Explanations given and measures planned 
Again the Commission considers that a general effort has been made to supply it with explanations 
for any failure of channels to comply with the required proportions. It is on the other hand to be 
regretted that Member States have not always given fuller of more detailed accounts of measures 
adopted or considered to attain targets. 
(c) Action 
In assessing how the proportions laid down have been complied with, the Commission will, where 
there is failure, take account of the specific situation of the broadcasters concerned, that is, whether 
compliance is practicable given the nature of the channels, progressivity, the average proportions for 
all a broadcaster's channels, and its level of investment in European works. 
In that it shows it to be perfectly feasible to collect such figures at Union level, in a regular and 
organized manner for all channels, the Commission is satisfied with this second monitoring exercise 
as part of an ongoing process. However, it reserves the right to take steps against ttny Member 
States not fulfilling their obligations under Articles 4 and 5, as it has done in the past. 
77 
MULTICHOICE (NL) ADDENDUM 
E W 
1993. 
29,6% 1994 
24% I W 
1993 
51,4% 1994 
68% R W 
1993 
75% 1994 
75% 
=F 
ANNEX 1 
W 
SUGGESTED GUIDELINES FOR THE MONITORING OF THE TV WITHOUT FRONTIERS 
DIRECTIVE 
Introduction 
The following guidelines have been prepared.to assist Member States in their duty to monitor the 
application of Articles 4 and 5 of the Council Directive (89/552/EEC) on television without frontiers and 
to render transparent to all interested parties-thé manner in which this legislation will be implemented by 
the Commission. 
Suggested definitions to be applied by Member States in their monitoring of Articles 4 and 5 of the 
Directive are given below. 
L_ A television broadcaster 
The definition of a television broadcaster includes each Channel it operates. 
Local television broadcasters not forming part of a national network are excluded from the monitoring 
aspects of the Directive. 
2. Jurisdiction over broadcasters 
If a broadcaster is established in a Member State, then it falls under the jurisdiction of that Member State. 
Establishment serves as a basis for defining both the origin of a broadcaster and of a programme. The place 
of establishment in the Community can be taken to mean that Member State where the broadcaster has fixed 
premises and a viable economic activity, for example, the place where the broadcaster's headquarters are 
based, assuming the management and a meaningful proportion of staff involved in both the preparation of 
programming schedules and commercial operations are located here. 
3; Relevant transmission time on which quotas are calculated 
Programme transmission time, within the meaning of Article 4(1) is a channel's total transmission time, the 
test card excluded, less the time reserved for news, the retransmission of sports events, games, advertising 
and teletext services. 
4. European works 
This is clearly defined in Article 6 of the Directive. 
For the purposes of Article 6(2) a" producer is considered established in a European State if the co*»pany 
is a going concern which has a permanent staff involved in both production and commercial operations at 
the European location. 
With respect to Article 6(3) and (4) which refers to "works which are mainly made with authors and 
workers residing in one or more European states", and in'ordcr to cope with borderline co-production cases, 
the rule of thumb is that over 50% of both creative arid management staff'and other production staff must 
be European residents. 
5. Independence 
Producers witli broadcasting interests will only be considered as independent producers if (heir broadcasting 
interests do not represent their principal activity. 
lo 
With reference to Article 5, it is suggested that a producer should be considered independent of a 
broadcaster, if: ~ 
one broadcaster does not hold more than 25% of the producer's equity, or 50% in the case of 
several broadcasters. In this case, broadcasters mean the organization as a whole and not individual 
channels operated by the same broadcaster; 
a maximum of 90% of a producer's output over a three-year period is furnished to one 
broadcaster, except where the producer makes only one programme or series during.the reference 
period. 
The above criteria should also be applicable in reverse (as where a producer has a significant stake in a 
broadcasting company). 
The industry is strongly urged to introduce an independent certification scheme for independent productions 
in order to facilitate the implementation of quotas and the monitoring process. 
6. Reporting period 
Article 4(3) requires Member States to submit a monitoring report to the Commission on the implementation 
of Articles 4 and 5. 
The second monitoring report should include data for 1993 and 1994 (January to December). 
On the basis of these reports the Commission is required to present a report and an opinion to the Council 
and Parliament. 
7. Data collection 
Statistics, expressed in hours and percentages, must cover the channels of all broadcasters und^r the 
jurisdiction of the Member State during the reporting period, irrespective of whether they are new or theme 
channels. 
Member States must submit annual statistics for each channel separately and not for each broadcaster. 
We suggest that the Member States use the definitions provided by the Commission in order to ensure the 
compatibility of national reports. 
If Member States use definitions other than those given above, the monitoring report should include details 
of the definitions used and how they differ from those given above, and also, where possible, how they 
affect the resulting data. 
Where broadcasters can code their programmes according to the abovementioned definitions, they should 
be advised to apply data recording systems in such a way that comprehensive statistics for the entire annual 
schedule can be collected. 
If the authorities are satisfied that a derogation from comprehensive reporting is justified in the reference 
period, then a detailed description of the broadcaster's sampling procedure and basis of estimates should 
be submitted for consideration to the Commission. Samples should consist of at least one week (chosen 
at random) per quarter of the reporting period. 
fl 
ANNEX 2 
? 
PART 1 
EVOLUTION OF NUMBERS OF CHANNELS FOR THE PERIOD 
1992/1994 
fT> 

PART 2 
ANNUAL NATIONAL TABLES 1992/1993/1994 
- EUROPEAN WORKS (EW) 
- INDEPENDENT PRODUCTIONS (IP) 
- RECENT WORKS (RW) 
*r 
BELGIQUE (COMMUNAUTE FLAMANDE) 
Période : 1er octobre 1991 au 31 décembre 1992 
,00 " - , 
n-
r^raiGIQUEfCCPMMUNAUJE FLAMANDE)Période : 1994 

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ESPAGNE Période : 1993 
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SKY MOVIES GOLD 
PERFORMANCE 
NBC SUPER CHANNEL 
NICKELODEON 
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ê< NORVÈGE Période : 1994 
PART 3 
BROADCASTING OF EUROPEAN WORKS (EW) FOR THE PERIOD 
1992/1994 
»l> 
BELGIQUE (COMMUNAUTE FLAMANDE) : OE 1992 -1994 
100 
90 
80 
70 
60-| 
50-
40 
30-j 
20-
10H 
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(TV2) BRTN 
(TV1) VTM Filmnet 
Plus Complete 
Movie 
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DOE 1993 
BOE 1994 
è^f^SM^ FRANÇAISE) : ÔE 1992 -1994 
'^7 DANEMARK : OE 1992 -1994 
ALLEMAGNE : OE 1992 -1994 

CANAL-33 
EITB-1 
TVE-2 
TELEMADRID 
TELE-5 
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TVGalicia 
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FRANCE OE Période : 1992-1994 (partie II) 
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ROYAUME-UNI OE Période 1992-1994 (Partie 1) 
ROYAUME-UNI OE Période 1992-1994 (Partie 2) 
ROYAUME-UNI OE Période 1993-1994 (Partie 3) 
ANNEX 3 
/Vf 
LIST OF CHANNELS NOT ACHIEVING 
A MAJORITY OF EUROPEAN WORKS 
Percentage by which 51% not achieved. 
Abbreviations 
C = in compliance 
A = figures absent 
(bas) = channel which is part of a basic service for a cable network or satellite service. 
Country 
Belgium 
(French Cty) 
Belgium 
(Flemish Cty) 
Spain 
France 
Portugal Channel 
RTL-TVi 
Canal+ 
VTM 
Filmnet Plus 
The Complete 
Movie Channel 
Canal+ 
ANT-3 
Canal Jimmy 
Multivision 
Ciné-cinéfil 
Canal 1 
SIC 
TVI Ownership 
private 
private/paying 
private 
private/paying 
private/paying 
private/paying 
private 
private/(bas) 
private/PPV 
private/paying 
public 
private 
private Average 
shortfall 
93 94 
6.4 2.2 
5.5 4.3 
8 6 
25 27 
33.5 36.4 
10 9 
3 2 
1.3 3.2 
6 
C 2.3 
C 6 
20 18 
35 33 Programming 
general 
general 
general 
thematic/films 
thematic/films 
general 
general 
thematic 
thematic/films 
general 
general-
general 
^s 
Sweden 
Finland 
Norway 
Italy 
Luxembourg 
Netherlands 
Germany TV4 
TV 1000 
Filmnet/The 
Complete Movie 
Channel 
MTV 3 
TV2 
TV Norge 
Italia 1 
Rete 4 
TBS 
TeleMontecarlo 
Telepiu 1 
RTL4 
RTL5 
RTL TVi 
RTL TV (H) 
Multichoice NL 
KABEL 1 
PRO 7 
RTL 2 
SAT 1 
VIVA TV private 
private/paying 
private/paying 
private 
private 
private 
private 
private 
private 
private/paying 
private 
private 
private 
private 
private 
private 
private 
private 
private 
private 2 
22 
48 
4.1 
26.8 
29.7 
13.3 14.5 
10.8 10.7 
11 11.1 
10 9.1 
11.8 16.6 
5.7 9.9 
22.8 19.4 
6.41 2.23 
7.92 C 
A A 
38.8 35.9 
11.6 7.8 
13 14.9 
C 3.9 
9 general 
thematic/films 
thematic/films 
general 
general 
general 
general 
general 
general 
thematic/films 
general 
general 
general 
general 
thematic/films 
thematic 
thematic/films 
general 
general 
thematkr 
'V c 
United 
Kingdom The Adult 
Channel 
Bravo 
The Cartoon 
Network 
The Discovery 
Channel 
The Family 
Channel 
HVC 
TV 1000 
TV 3 DK 
TV 3 N 
TV 3 S 
Vision 
Travel 
TNT 
TCC 
Sky Travel 
Sky Soap 
Sky One 
Sky Movies 
The Movie 
Channel 
Sky Movies 
Gold 
NBC Super 
Channel 
Nickelodeon private/paying 
private/paying 
private/(bas) 
private/(bas) 
private/(bas) 
private 
private/paying 
private 
private 
private 
private 
private 
private/(bas) 
private/paying 
private/(bas) 
private/(bas) 
private/(bas) 
private/paying 
private/paying 
private/paying 
private 
private/paying 12.8 
17.8 
C 
35.5 
28.9 
28.7 
25 
18.1 
44.6 
C 
38 
34.2 
38 
35.6 
C 
24.6 10.9 
5.9 
49.3 
2.9 
23.1 
36.3 
21.6 
19.3 
23.2 
11.6 
15 
9.6 
40.1 
5 
19.6 
45.1 
36.5 
27.3 
34.7 
34.3 
9.1 
26.6 thematic 
thematic/films 
thematic 
thematic 
thematic 
thematic 
thematic/films 
general 
general 
general 
thematic 
thematic 
thematic/films 
thematic 
thematic 
thematic 
general 
thematic/films 
thematic/films 
thematiç/films 
general 
thematic 
"^ 
ANNEX 4 
vr 
CHANNELS NOT ACHIEVING THE TARGET FOR 
INDEPENDENT PRODUCTIONS 
Percentage by which 10% not achieved. 
Abbreviations 
C.= in compliance 
A = figures absent 
(bas) = channel which is part of a basic service for a cable network or satellite service. 
Country 
Belgium 
(Flemish Cty) 
Germany 
Spain Channel 
TV 1 
The Complete 
Movie Channel 
RTL 2 
VIVA TV 
ANT-3 
ETB-2 
TV-3 
TV-33 
TVG Ownership 
public 
private 
private 
private 
private 
public 
public 
public 
public Average 
shortfall 
93 94 
1.8 1.1 
A A 
9 7.8 
8.5 
2.4 C 
3.7 6.5 
8.66 8.07 
5.8 4.8 
0.5 C Programming 
general 
thematic/films 
general 
thematic 
general 
general 
general 
general 
general 
M 
Italy 
Luxembourg 
Netherlands 
Portugal 
United 
Kingdom 
Sweden RAI 1 
RAI 2 
RAI 3 
Canale 5 
Italia 1 
Rete4 
TeleMonteCarlo 
Telepiu 1 
Telepiu 2 
Telepiu 3 
Hei Elei 
Multichoice NL 
TVI 
BBC World 
Service 
Bravo 
The Cartoon 
Network 
The Family 
Channel 
HVC 
TNT 
Sky Soap 
Sky One 
Sky Movies 
The Movie 
Channel 
TV 1000 public 
public 
public 
private 
private 
private 
private 
private/paying 
private/paying 
private/paying 
. private 
private/paying 
private 
public 
private/paying 
private/(bas) 
private/(bas) 
private 
private 
private/(bas) 
private/(bas) 
private/paying 
private/paying 
private/paying 2.85 1.34 
4.6 6.63 
2.97 2.38 
10 10 
10 10 
10 10 
0.55 C 
A A 
A A 
A A 
8.1 C 
A A 
6 5 
C 1 
8.5 A 
8.3 
4.6 C 
0.3 7 
3.6 C 
A 
4.5 1.5 
2.6 C 
1 C 
A general 
general 
general 
general 
general 
general 
general 
thematic/films 
thematic 
thematic 
general 
thematic/films 
general 
general 
thematic/films 
thematic 
thematic 
thematic 
thematic 
thematic 
general 
thematic/films 
thematic/films 
thematic/films 
so 
Finland 
Norway TV 1 
TV Norge public 
private 3 
0.8 general 
general 
r< 
ISSN 0254-1475 
COM(96) 302 final 
DOCUMENTS 
EN 16 
Catalogue number : CB-CO-96-3l2rEN-C 
ISBN 92-78-05809-2 
Office for Official Publications of the European Communities 
L-2985 Luxembourg 
A5^