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1 Narrowcasting services on television Guidelines and information May 2007
2 Commonwealth of Australia 2007 This work is copyright. Apart from any use as permitted under the Copyright Act 1968, no part may be reproduced by any process without prior written permission from the Commonwealth. Requests and inquiries concerning reproduction and rights should be addressed to the Manager, Communications and Publishing, Australian Communications and Media Authority, PO Box Law Courts, Melbourne Vic Published by the Australian Communications and Media Authority Canberra Central Office Purple Building, Benjamin Offices Chan Street, Belconnen PO Box 78 Belconnen ACT 2616 Melbourne Central Office Level 44, Melbourne Central Tower 360 Elizabeth Street, Melbourne PO Box Law Courts Melbourne Vic 8010 Sydney Central Office Level 15, Tower 1 Darling Park 201 Sussex Street, Sydney PO Box Q500 Queen Victoria Building NSW 1230 Tel: Fax: Tel: Fax: TTY: Tel: , Fax: Australian Communications and Media Authority ii
3 Contents INTRODUCTION... 1 POLICY AND LEGAL FRAMEWORK... 3 Regulatory objectives... 3 Categories of service under the Broadcasting Services Act Broadcasting service licensing and content regulation... 5 Broadcasting service licences... 6 Conditions applicable to class licences... 6 Standards... 7 Codes of practice... 7 Broadcasting service category opinions... 7 MATTERS TO BE CONSIDERED BY ACMA... 9 Service... 9 Matters taken into account when determining the category of a service Geographic coverage (section 22(a)) Potential audience size (section 22(b)) Accessibility (section 22(c)) Scheduling of service (section 22(d)) Audience characteristics (section 22(e)) Program content (section 22(f)) Other matters (section 22(g)) APPENDIX A RELEVANT LEGISLATION Extracts from the Broadcasting Services Act Extracts from the Radiocommunications Act Australian Communications and Media Authority iii
4 Introduction Introduction In October 2006, the Australian Parliament passed laws that will allow the emergence of a range of new digital services for Australian consumers. The new legislation allows for the allocation of two datacasting transmitter licences (Channel A and Channel B). Datacasting, narrowcasting television, and certain other services will be allowed to be provided under these licences. The Parliament also determined that commercial broadcasting television services would not be permitted to be provided to domestic television receivers under these licences. While narrowcasting television services have been possible under the existing legislative framework, increased interest in the provision of these services is likely to arise following Parliament s recent decisions. In this context, the Australian Communications and Media Authority (ACMA) has developed these guidelines to assist existing and prospective providers of services to understand the types of services that may be provided as narrowcasting television services. The specific aims of the guidelines are: to assist prospective providers of narrowcasting services on television to understand the types of television services that are likely to be categorised as narrowcasting under the BSA; and to explain how ACMA will approach applications under section 21 of the Broadcasting Services Act 1992 (BSA), for opinions about the category a proposed service falls into. These guidelines should be read in conjunction with relevant legislation principally the BSA and the Radiocommunications Act 1992 (RA) and if relevant, information about the planning and allocation of the datacasting transmitter licences for those channels, available on ACMA s website. The guidelines will assist service providers using or proposing to use the Channel A and Channel B datacasting licensed services, and services delivered on other platforms, including non-broadcasting services band platforms. Narrowcasting services are distinct from broadcasting services as their reception is limited, rather than being intended to appeal to the general public. Narrowcasting services can play an important role in achieving the regulatory objective of increasing the diversity of services that are available in the Australian community. The introduction of digital broadcasting platforms creates even greater opportunities for new service formats aimed at meeting a diverse range of audience preferences. In the context of the government s recent announcements, the decision to permit narrowcasting services in addition to other services, such as datacasting services, on two new digital television channels aims to stimulate consumer take-up of digital television, by increasing the range of content available to audiences. Australian Communications and Media Authority 1
5 Introduction The transition to digital broadcasting in Australia is well underway. The digital environment presents increased flexibility for broadcasters in delivering new programming options by, for example, exploring opportunities for non-linear program formats. In this environment, ACMA has chosen not to adopt a prescriptive approach to the definition of narrowcasting service, as it considers: the guidelines should encourage provision of new and innovative narrowcasting television services that will help to stimulate the take-up of digital television services by Australian audiences; and it is not possible to determine the category a digital television service falls into without knowing the detailed circumstances of that service, because the digital television platform enables a wide range of potential service formats. These guidelines are not intended to be a substitute for legal advice or a formal opinion on the category of broadcasting service. Any prospective narrowcasting television service provider is strongly encouraged to consider the definitions of subscription narrowcasting services and open narrowcasting services in section 17 and section 18 of the BSA, and to apply to ACMA as soon as possible for an opinion, under section 21 of the BSA, about the category of broadcasting service into which its proposed service falls. In addition to the relevant sections in Part 2 of the BSA, in which the different types of broadcasting service categories are defined, these guidelines aim to clarify the types of services that may be provided as narrowcasting television services. The guidelines: 1. Explain the legal and policy framework for narrowcasting television services, including the statutory criteria that determine whether a service falls into a narrowcasting licence category under section 17 or section 18 of the BSA; and 2. Set out ACMA s approach to the matters it must have regard to under section 22 of the BSA when providing an opinion about which category a proposed broadcasting service falls into. ACMA would need to apply the definitions in section 17 and section 18 and criteria or clarifications determined under section 19 (where relevant) of the BSA. Prospective narrowcasting service licensees should also have regard to the transmitter licensing provisions of the RA including, as relevant, the conditions in sections 107 to 110 of the RA. Australian Communications and Media Authority 2
6 Policy and legal framework Policy and legal framework This section sets out the policy and legal framework in which narrowcasting services operate. Relevant extracts of the BSA and the RA are provided in Appendix A. Regulatory objectives Broadcasting services, including narrowcasting services, are regulated under the BSA, which establishes a framework for the licensing of such services and provides mechanisms for regulating their content. Under section 6(1) of the BSA, broadcasting service means: a service that delivers television programs or radio programs to persons having equipment appropriate for receiving that service, whether the delivery uses the radiofrequency spectrum, cable, optical fibre, satellite or any other means or a combination of those means, but does not include: (a) a service (including a teletext service) that provides no more than data, or no more than text (with or without associated still images); or (b) a service that makes programs available on demand on a point-to-point basis, including a dial-up service; or (c) a service, or a class of services, that the Minister determines, by notice in the Gazette, not to fall within this definition. In relation to (c) above, on 12 September 2000, the Minister determined that the following is not a broadcasting service: a service that makes available television programs or radio programs using the Internet, other than a service that delivers television programs or radio programs using the broadcasting services bands. As the Full Court of the Federal Court has noted, there is no definition of service in the BSA 1. In the context of making a decision about the construction of section 212 of the BSA the Full Court decided that a service related to a particular channel of a broader subscription television service. Clause 41A of Schedule 4 to the BSA also recognises that more than one service can be authorised by a commercial television broadcasting licence. While continuous streams of linear integrated programming identified as, for example, Channel 7, Channel 9 or Channel 10 have been the norm for broadcasting services in the analogue broadcasting environment, the BSA does not necessarily preclude other models of services from being provided. In the context of digital services in particular, it is possible 1 Amalgamated Television Services Pty Ltd & others v Foxtel Digital Cable Television Pty Ltd & anor (1996) 136 ALR 319 per Lockhart, Wilcox and Hill JJ at pages 321 and 322. Australian Communications and Media Authority 3
7 Policy and legal framework that a service provider could provide a number of separate, distinct services which share channel capacity with other services. The objects of the BSA include promoting the availability of a diverse range of radio and television services offering entertainment, education and information, and promoting provision of high quality and innovative programming by providers of broadcasting services (section 3(1)(a) and (f) of the BSA). Encouraging a diverse range of services includes encouraging provision of programming that is of general interest and broad appeal, as well as material that meets more specific and targeted needs and interests. To help achieve this diversity, the BSA provides for different categories of broadcasting services, including two categories of narrowcasting services. Categories of service under the Broadcasting Services Act 1992 The BSA defines seven categories of broadcasting services, including two categories of narrowcasting services open narrowcasting and subscription narrowcasting. The criteria for each category are set out in Part 2 of the BSA. The categorisation of narrowcasting services is based on the definitions of those services under section 17 and section 18 of the BSA. These provisions indicate that the defining characteristic of narrowcasting services is that their reception is limited in some way. In the case of open narrowcasting services, subsection 18(1) of the BSA provides that reception may be limited: by being targeted to special interest groups; or by being intended only for limited locations, for example, arenas or business premises; or by being provided during a limited period or to cover a special event; or because they provide programs which are of limited appeal; or for some other reason. At April 2007, available open narrowcasting television services include an indigenous programming service based in Broome, a tourist information service based in Darwin, trial community television services based in Adelaide and Mt Gambier, and a range of television services that broadcast on frequencies outside the broadcasting services bands. This compares with a broad range of open narrowcasting radio services available across Australia. Section 17 of the BSA also provides that the reception of a subscription narrowcasting service must be limited for one of the above reasons, and such a service must satisfy the additional criterion that it is made available only on payment of a subscription fee. Existing subscription television providers have offered a range of subscription narrowcasting services, including a service dedicated to coverage of Australian Football League matches and a service providing adult programming. With the exception of licences for international broadcasting services, the licences for broadcasting services are mutually exclusive. When considering category of service issues, prospective narrowcasting service providers should have regard to the criteria for all service categories, particularly the commercial broadcasting and subscription broadcasting categories. It is important when developing service proposals and submitting applications to ACMA for opinions about the categories into which services may fall, to ensure that their proposed services do not meet the criteria for one of the broadcasting service categories. For Australian Communications and Media Authority 4
8 Policy and legal framework example, section 14 of the BSA provides that commercial broadcasting services are broadcasting services: that provide programs that, when considered in the context of the service being provided, appear to be intended to appeal to the general public; and that provide programs that: are able to be received by commonly available equipment; and are made available free to the general public; and that are usually funded by advertising revenue; and that are operated for profit or as part of a profit-making enterprise. Under section 16 of the BSA, subscription broadcasting services are services that: provide programs that, when considered in the context of the service being provided, appear to be intended to appeal to the general public; and are made available to the general public, but only on payment of subscription fees. While reception of a narrowcasting service may be limited for a number of reasons, one key point of differentiation between a narrowcasting service and broadcasting service is often the audience appeal of the programs. A service that provides programs which appear to be intended to appeal to the general public is likely to fall into either the commercial broadcasting service or subscription broadcasting service categories, unless its reception is limited for some reason. More detailed information about the characteristics of broadcasting and narrowcasting services is provided in section 3 of these guidelines. Under section 19 of the BSA, ACMA may determine additional criteria for a broadcasting service category or clarify the existing criteria. The former Australian Broadcasting Authority (ABA) made two determinations that clarified the criteria for narrowcasting radio services in 2001 and However, neither ACMA nor the former ABA has clarified the statutory criteria or determined additional criteria for narrowcasting television services, as in the past there has been a low level of demand for the provision and supply of such services. ACMA considers that making such determinations at this stage may stifle innovation in the development of narrowcasting television services. However, ACMA may consider using its power under section 19 of the BSA in the future, to clarify the existing criteria or determine additional criteria to differentiate narrowcasting television services from other categories of service. If ACMA were to determine additional criteria for a broadcasting service category or clarify the existing criteria under section 19 of the BSA, these criteria would apply in addition to those currently set out in sections 17 and 18 of the BSA. Broadcasting service licensing and content regulation The BSA provides for different levels of regulation to be applied to each category of broadcasting service, depending on the degree of influence that different types of services are able to exert in shaping community views. The BSA specifies conditions that apply to each category of licence, and contains a framework for development of and compliance with 2 See Broadcasting Services Clarification Notice 2001 and Broadcasting Services Clarification Notice 2001 Australian Communications and Media Authority 5
9 Policy and legal framework program standards and codes of practice that deal with the content broadcasting services, with separate codes applying to each sector of the broadcasting industry. BROADCASTING SERVICE LICENCES The BSA requires broadcasting services to be licensed, and imposes penalties for operating a broadcasting service without the appropriate licence (see Part 10 of the BSA). Unlike commercial broadcasting and community broadcasting services, which must be individually licensed, open narrowcasting and subscription narrowcasting services are authorised by class licences determined under section 117 of the BSA. The BSA specifies conditions that apply to each category of licence. The BSA also contains a framework for development of and compliance with program standards and codes of practice that deal with the content of broadcasting services, with separate codes applying to each sector of the broadcasting industry (see section 123 of the BSA). Providers of narrowcasting services must be mindful of the different licensing requirements for narrowcasting and broadcasting services, and ensure that the reception of narrowcasting services is limited. Providers of open narrowcasting services in particular must ensure that their services are not found to be providing commercial broadcasting services without the appropriate licences (see section 131 of the BSA). If ACMA is satisfied that a person is providing a broadcasting service without the appropriate licence, ACMA may direct the person to cease providing the service. Failure to comply with such a direction amounts to an offence under section 138 of the BSA. In the case of a commercial television broadcasting service or subscription television broadcasting service, failure to comply with an ACMA direction to cease providing an unlicensed service may incur a penalty of up to $2,200,000 for the first day and then $220,000 for each day after that, if failure to comply with the direction continues (section 213 of the BSA). For the majority of services in the analogue terrestrial broadcasting environment, the broadcasting service licence and apparatus (or transmitter) licence are held by the same licensee entity. However, a digital broadcasting platform has the capacity to support multiple broadcasting services that share channel capacity, and it is conceivable that broadcasting service licensees and apparatus licensees may be separate entities. In such circumstances, failure to ensure that a service is authorised by the appropriate licence may have implications for both the provider of the unauthorised service, and for the apparatus licensee. CONDITIONS APPLICABLE TO CLASS LICENCES Narrowcasting television services provided under class licences are subject to the standard conditions set out in Part 2 of Schedule 2 and Part 7 of Schedule 2 to the BSA. The conditions include: a ban on tobacco advertising; a requirement to comply with any applicable program standards approved by ACMA; a condition not to use the broadcasting service to commit an offence; requirements to comply with the BSA in relation to the broadcast of political and electoral material and advertisements relating to medicines; and a requirement to keep records of certain broadcast material. Australian Communications and Media Authority 6
10 Policy and legal framework These are reproduced in Appendix A to these guidelines. ACMA has the power to impose additional licence conditions and has done so in the past for radio narrowcasting services. Class licensed broadcasting service providers who wish to use the broadcasting services bands part of the radiofrequency spectrum must apply to ACMA for a transmitter licence issued under the RA to operate their services. Further information about transmitter licensing under the RA is provided below. STANDARDS Under section 125 of the BSA, ACMA may determine program standards for broadcasting services in certain circumstances. ACMA has determined anti-terrorism standards for open narrowcasting and subscription narrowcasting services. The standards aim to prevent the broadcast of programs that directly encourage people to join or finance terrorist organisations. The standards place an obligation on narrowcast television services to ensure that prohibited programs will not be broadcast. The full text of the Broadcasting Services (Anti-terrorism Requirements for Open Narrowcasting Television Services) Standard 2006 and Broadcasting Services (Antiterrorism Requirements for Subscription Television Narrowcasting Services) Standard 2006 can be viewed on ACMA s website 3. CODES OF PRACTICE Part 9 of the BSA establishes a framework for development of industry codes of practice for each broadcasting service category, and for datacasting services. Separate codes have been developed for radio and television services within the commercial broadcasting, community broadcasting, open narrowcasting and subscription narrowcasting sectors. The codes of practice for subscription narrowcasting and open narrowcasting television services provide: guidelines for general programming; the requirements for the classification of programs; and the procedures for complaints about the content of programs (with different requirements for services in each sector). In addition, Part 9A of the BSA will provide for development of industry codes covering matters of particular relevance to digital broadcasting services, following the commencement of Part 9A in May Broadcasting service category opinions Section 21 of the BSA permits a person who is providing, or who proposes to provide, a broadcasting service to apply to ACMA for an opinion as to which category of broadcasting services the service falls into. 3 4 See Part 9A of the BSA is established under Schedule 2A to the Broadcasting Legislation Amendment (Digital Television) Act 2006, and comes into effect on the earlier of a day to be fixed by proclamation or 5 May Australian Communications and Media Authority 7
11 Policy and legal framework An opinion given under section 21 applies only to the service in respect of which the application was made and only as long as the circumstances relating to the service remain substantially the same as those set out in the application for an opinion. Once ACMA has provided a section 21 opinion, neither ACMA nor any other Government agency may, while the circumstances relating to the broadcasting service remain substantially the same as those advised to ACMA when applying for the opinion, take any action against the provider of the service for 5 years on the basis that the service falls into a different category of broadcasting services than that advised in the opinion. If ACMA makes a determination or a clarification under section 19 of the BSA that places a broadcasting service in a different category or categories to that determined in an opinion, ACMA may take action against the provider of the service after the five year period of the opinion has expired if the service provider continues to provide the same service. Where no such determination or clarification is made and the circumstances relating to the broadcasting service remain substantially the same, the option may continue to apply beyond 5 years. Intending service providers should not regard previous opinions as binding precedents. Service proposals are seldom identical to one another and each ACMA opinion on the category of a broadcasting service will be based upon an assessment of all relevant factors surrounding that service at the time of the application. A category-of-service opinion is provided on the basis of the service proposal provided to ACMA and the circumstances in which the service is to be presented. Should the service alter substantially from that advised to ACMA in the application, for instance in terms of programming, method of delivery, coverage or location, the opinion would no longer be valid. Accordingly, where a significant change to any element of a service is envisaged by a service provider who has an existing opinion, consideration should be given to whether the service will continue to be in the same category of service despite those changes, or whether a further opinion on the revised service should be obtained. Service providers should advise ACMA of these circumstances. Prospective providers of narrowcasting television services are strongly encouraged to seek ACMA s opinion on the category into which their proposed services will fall. Upon receiving an application for a broadcasting service category opinion, ACMA must provide an opinion within 45 days, or the service is taken to fall into the category nominated by the applicant. However, ACMA may seek additional information in relation to an application, in which case the 45 day period restarts on the date the additional information is received by ACMA. Further information about applying for a broadcasting service category opinion, including an application form, is available on ACMA s website. Consistent with the requirements of section 210 of the BSA, ACMA publishes opinions provided pursuant to section 21 of the BSA following the commencement of the service to which an opinion relates 5. ACMA must also publish any opinion given under section 21 of the BSA in the Government Notices Gazette. ACMA must not publish an opinion until the service to which it relates has commenced operation. 5 Published category of service opinions can be viewed on ACMA s web site at Australian Communications and Media Authority 8
12 Matters to be considered by ACMA Matters to be considered by ACMA This section sets out ACMA s intended approach in providing an opinion under section 21 of the BSA. As noted above, the content and format of services can vary considerably from one service to another. Therefore, the following information is intended to be a guide only, and any opinion provided by ACMA will depend on a detailed assessment of the nature and particular circumstances of any proposed service having regard to the matters set out in section 22 of the BSA and the relevant service category criteria established under the BSA. Service An important initial consideration in preparing an opinion will be to consider the scope of the service in relation to which an opinion is sought. It is conceivable that a prospective service provider may envisage its proposed narrowcasting service being delivered using a single stream of television programming content or channel, a part of a television channel or more than one channel. As the Full Court of the Federal Court has noted, there is no definition of service in the BSA although there is a definition of broadcasting service (section 6) 6. In the context of making a decision about the construction of section 212 of the BSA the Full Court decided that a service related to a particular channel of a broader subscription television service. Schedule 4 of the BSA also recognises that more than one service can be authorised by commercial television broadcasting licences. These considerations may assist ACMA in giving opinions under section 21 of the BSA. As noted above, providing narrowcasting services in a digital environment opens up the potential for new and innovative services. Prospective narrowcasting service licensees will need to provide ACMA with full details on the types of linear or matrix programming that they intend to provide. ACMA expects that it will be necessary to give detailed consideration to this issue in the context of any particular applications for opinions. 6 Amalgamated Television Services Pty Ltd & others v Foxtel Digital Cable Television Pty Ltd & anor (1996) 136 ALR 319 per Lockhart, Wilcox and Hill JJ at pages 321 and 322. Australian Communications and Media Authority 9
13 Matters to be considered by ACMA Matters taken into account when determining the category of a service Section 22 of the BSA requires ACMA to have regard to the following matters when providing an opinion as to the category that a broadcasting service falls into: the geographic coverage of the service; the size of the potential audience; the accessibility of the service, including whether it is encrypted and the cost or availability of receiving equipment; the duration and frequency of the service; the nature of the target audience; the nature of the programs provided by the service, including the level of interest in the subject matter, the intended audience, and the social and cultural impact; and other matters, as ACMA thinks fit. The framework established by the BSA requires ACMA to consider all of the above aspects of a service, in the context of the actual service to be provided. Each of the above matters may impact on one or more of the criteria that define the different categories of broadcasting services set out in Part 2 of the BSA. In the case of a proposed narrowcasting service, the only consideration will be that its reception is limited in some way. As noted above, the content and format of services can vary considerably from one service to another. Therefore the following information is intended to be a guide only, and any opinion provided by ACMA will depend on: detailed assessment of a proposed service against the matters set out in section 22 of the BSA; and the relevant service category criteria set out in Part 2 of the BSA. ACMA must consider all of the matters in section 22 when considering an application under section 21. However, it is important to note that the matters listed in section 22 are not additional criteria which must be met by a service. For example, an open narrowcasting service may operate continuously and have wide geographic coverage if its reception is otherwise limited by other factors, such as the limited appeal of the programs. Geographic coverage (section 22(a)) Geographic coverage is one of the factors that ACMA must consider when deciding which category a service falls into. However, this factor alone may not be necessarily decisive in shaping ACMA s opinion on whether a service is a narrowcasting service. For example, a service that is accessible only in limited locations, but over a wide geographic area, may be a narrowcasting service. Conversely, a commercial service that can be received only in a specific location may be considered a commercial broadcasting service if the service as a whole appears to be intended to appeal to the general public in that location. Bearing in mind the examples of limited locations that are cited in section 17(a)(ii) and section 18(1)(a)(ii) of the BSA, the geographic coverage of a service would need to be very small if this were the only criterion which defined a service as a narrowcasting service. In Australian Communications and Media Authority 10
14 Matters to be considered by ACMA the case of an in-home television service, it is unlikely to be sufficient that the only factor which limits reception of the service is that its geographic coverage is limited to a particular town or suburb. Applicants for a service category opinion will need to provide ACMA with sufficient information to support any proposal that a service to be provided is a narrowcasting service based on it being limited by geographic coverage. This is particularly the case for applicants who intend to provide a service using the new digital datacasting licences for Channels A and B which are both intended to be allocated as national licences. Potential audience size (section 22(b)) When giving an opinion under section 21 of the BSA, ACMA must consider the potential size of the audience for a service in the context of the service as a whole, rather than the audience for individual programs. A service which attracts only small audiences for each individual program may be found to be a broadcasting service if the programs, when considered in the context of the service as a whole, appear to be intended to appeal to the general public. While audiences for individual programs may be limited in size, a service is unlikely to be a narrowcasting service if it appeals to an aggregate audience that is representative of the general public. While ACMA does not consider there to be an acceptable range or threshold for the size of a narrowcasting television audience service, estimates of or empirical data on audience size are likely to be of assistance when determining what category a service falls into. Relevant data should be provided to ACMA to support any service category opinion that is based on audience size as a factor which limits the reception of a service. ACMA also may refer to available audience data for programs that are similar to those to be provided as part of a proposed service. Accessibility (section 22(c)) Factors that impact on the accessibility of a service include its comprehensibility (in the sense of it being able to be understood by the general community), whether it is encrypted, and the availability and cost of reception equipment. The requirement for special software or hardware may limit the accessibility of a service, and is another reason that reception of a service may be limited. Similarly, the accessibility of a service will usually be reduced if special receiving equipment is required, and the equipment is not reasonably accessible to an audience. Hardware and software consideration are more likely to be relevant to subscription services, which may have provider-specific requirements for reception and decryption of the program signal, but also may be a feature of an open narrowcasting service. If a receiver can be purchased from an electronic goods retailer and the cost of the equipment is within the means of the average member of the community, it is likely that a service would be reasonably accessible to the public. Alternatively, if the cost of the receiving equipment is such that very few members of the community would be expected to own such equipment, the reception of the service is likely to be limited. Australian Communications and Media Authority 11
15 Matters to be considered by ACMA While the reception of digital television services is limited to viewers with digital television receivers, ACMA may not regard the requirement for a digital television receiver alone to limit reception of a service sufficiently to make it a narrowcasting service. This is because digital television receiving equipment is now widely available, and increasingly affordable. Scheduling of service (section 22(d)) ACMA is required to consider the duration and frequency of a service, including whether it is provided for a set period only. The duration and frequency of a service may bear directly on whether reception of the service is limited by being provided during a limited period or to cover a special event. Aspects of the scheduling of a service that may determine the category it falls into include the repetition of program content over a short period for example, a schedule of programs that are repeated several times over the course of a day or the availability of the service for part of the day or certain events only. Scheduling was one factor considered by the former ABA in a decision regarding the category of a foreign language movie service, which was comprised of an eight hour block of movies broadcast three times per day. Insofar as the impact that scheduling of programs has on reception of a service, ACMA will take account of the opportunities afforded by digital technologies to record and time shift programs. Such technologies may increase the appeal of a service that would otherwise appeal to a more limited audience due to the times at which programs were scheduled. Scheduling may also be an important factor where a number of distinct services share channel capacity with other services. Audience characteristics (section 22(e)) In addition to considering a service s audience size, ACMA must consider other characteristics of a service s audience. Audience characteristics are likely to bear on whether reception of a service is limited by being targeted at a special interest group, because the programs are of limited appeal, or both. Consideration of the target audience for a service will be decisive in distinguishing programs of limited appeal from those that appear to be intended to appeal to the general public. In general, defining a target audience with reference to age or gender alone is unlikely to limit the appeal and reception of a service to the extent that it is regarded as a narrowcasting service. This approach would be consistent with that taken in respect of narrowcasting radio services, in Broadcasting Services Clarification Notice , although different considerations may apply to television audiences. Audience characteristics which may help to define the target audience for a narrowcasting television service include profession or occupation, recreational interest, ethnicity, religion, or other perceptible cultural characteristics such as the main language spoken in the home. A special interest group may be recognisable by its representative organisation such as a professional, sporting, cultural or other association. However, ACMA considers that a 7 The Broadcasting Services Clarification Notice 2002 provided that a radio service aimed at persons within a particular age range was unlikely to be a narrowcasting radio service on this basis, unless the service was targeted to persons less than 10 years old. Australian Communications and Media Authority 12
16 Matters to be considered by ACMA special interest group may also exist without formal associations, if the group can be otherwise defined and distinguished from the general public. A special interest group may also comprise an audience with particular information requirements which would otherwise have no association with a group or organisation. For example, students of a particular academic discipline or business analysts following stock market trends and related financial information may constitute unconnected groups which share special interests. A service comprised of programs which appeal specifically to such a group and which do not appeal to the general public may be considered a narrowcasting service for this reason. While such a service might also provide incidental content that is of broader audience appeal, it is expected that this would be a very small component of the content of a narrowcasting television service. Where a proposed narrowcasting television service purports to target a specific audience, the prospective narrowcasting service licensee will need to demonstrate that the characteristics of the target audience are such that the audience can be distinguished from the general public, that the program content directly serves the interest of that group, and that the reception of the service is therefore limited. And while the special interest group criterion does not require a service to target only one special interest group, a service which targeted more than one special interest group may be regarded a service that appeals to the general public if those target groups taken as a whole, could reasonably be considered to represent a cross-section of the community. Program content (section 22(f)) ACMA must take into account the nature of programs to be provided by the service, including the level of interest in the subject matter dealt with by the programs, whether the programs are aimed at a specialised audience, and the social and cultural impact of the programs. In practice, the mix of programs provided by a service and the content of those programs are likely to be significant determinants of the category that the service falls into. The inclusion or exclusion of a particular program genre in a service will not in itself determine the category that the service falls into. In addition, the impact of different program genres on the appeal of a service may vary significantly from one service to another. The more program elements that comprise a service, the more it is likely that the service will appeal to the general public. Commercial broadcasting services commonly comprise a number of distinct program components which, in combination, form a broad-based service of general appeal. A service that incorporates several program genres is less likely to be regarded as narrowcasting, unless its reception is limited by other factors. While individual programs within a service may each appeal only to niche audiences, if the package of programs provided by a service appears to be intended to appeal to the general public, then the service will be considered to be a commercial broadcasting service, and not an open narrowcasting service. A service comprised of programs which are predominantly in a language other than English may appeal only to people who are fluent in that language, and may fall within the narrowcasting category for this reason. Where a narrowcasting service s reception is limited by being targeted at a special interest group, program content factors are likely to be a significant consideration. A prospective Australian Communications and Media Authority 13
17 Matters to be considered by ACMA narrowcasting service licensee would need to demonstrate that the proposed program content is of specific interest to the group to be targeted by the service, and it would not be sufficient to demonstrate merely that the target audience likes a particular type of program, which may also have broader audience appeal. While general news, coverage of sporting events that have Australian participation, popular music, movies and lifestyle programs are all program genres that are likely to appeal to a wide audience, the appeal of a service that provides such programs may be limited in other ways, and the inclusion of one or more of these program genres in a service would not in itself result in an opinion that the service is a broadcasting service. In relation to the news content of a service, research and ratings data indicate that television news is popular with Australian audiences. 8 A service that features regular coverage of general news matters is therefore more likely to be a broadcasting service than a narrowcasting service, unless its reception is limited for other reasons. A service that specialises in news coverage, or provides news on a particular subject matter or from a particular geographic region, may be considered to have limited audience appeal, and therefore be a narrowcasting service. Live and delayed coverage of sporting events, particularly events involving participation by Australian teams or individuals, is popular with Australian television audiences and the establishment of the anti-siphoning regime under the BSA to protect the availability of coverage of certain events on free to air television is indicative of the social and cultural impact of televising those events 9. However, a court has found that a service consisting of matches or rounds of the AFL to be a narrowcasting service 10. Coverage of sporting events that do not involve Australian participation may attract only viewers with specific interest in particular teams or athletes. A service which includes such coverage as a significant component is less likely to appeal to the general public. The amount and type of any music clips broadcast on a proposed television service may bear on the service s audience appeal. However, whereas an increase in the music component of a radio broadcasting service may have the effect of broadening its appeal, it is not clear that the same can be said for a television service with a significant music component, bearing in mind the range of formats that could be adopted for such a service. The former ABA decided that a specialist music video service was a narrowcasting service, due to the limited appeal of a service comprised predominantly of music videos, with little talk or other content 11. Applicants for service category opinions are asked to provide as much information as 8 Bond University, Sources of News and Current Affairs, Stage One: The Industry, Stage Two: The Audience, Australian Broadcasting Authority, May 2001, page 372; Ratings data sources from Mediaweek Bulletins published January March Under section 115 of the BSA, the Minister may determine a list of events that should be available on freeto-air television for viewing by the general public. 10 In Sportsvision Australia Pty Ltd v Tallglen Pty Ltd & Anor (1998) NSWLR 103, Bryson J of the Supreme Court of New South Wales Equity Division found that the Sports AFL service provided by Optus Media Pty Ltd fell within s 17(a)(i) and (iv) of the Act, that is that Sports AFL was a narrowcasting service targeted to a special interest group, providing programs of limited appeal. The channel provided coverage of AFL football 24 hours a day during the football season and about 16 hours a day outside the season and included a high level of repeat material. 11 ABA (1996), Opinion of Category of Broadcasting Service Australis Media Limited ( Australian Communications and Media Authority 14
18 Matters to be considered by ACMA possible about the amount and type of music clips to be broadcast, including a sample broadcast list. Other matters (section 22(g)) Under section 22(g) of the BSA, ACMA may consider such other matters it thinks fit when providing a broadcasting service category opinion. Bearing in mind the range of television services that could be provided, ACMA does not propose to limit the range of other matters it might consider at this time. Other matters that may be relevant include the sources of revenue to fund the operation of a service. While section 22 of the BSA does not explicitly require ACMA to consider whether a proposed service will carry advertising and whether users will pay a fee to subscribe to the service, these matters are likely to be relevant considerations, bearing in mind the criteria which define the service categories. Applicants for broadcasting service category opinions will be asked to provide information about whether a subscription fee will be charged and whether the licensee will receive revenue for advertisements broadcast on the service. As noted above, the definition of a commercial broadcasting service in section 14 of the BSA includes the criterion that such services are usually funded by advertising revenue. However, this does not mean that a service which carries advertising will automatically be a commercial broadcasting service. The definition of open narrowcasting service at section 18 of the BSA does not prevent such services from carrying paid advertisements and being funded by advertising, provided that their reception is limited in some way. Australian Communications and Media Authority 15
19 Appendix A Relevant Legislation Extracts from the Broadcasting Services Act Objects of this Act (1) The objects of this Act are: (a) to promote the availability to audiences throughout Australia of a diverse range of radio and television services offering entertainment, education and information; and (aa) to promote the availability to audiences and users throughout Australia of a diverse range of datacasting services; and (b) to provide a regulatory environment that will facilitate the development of a broadcasting industry in Australia that is efficient, competitive and responsive to audience needs; and (ba) to provide a regulatory environment that will facilitate the development of a datacasting industry in Australia that is efficient, competitive and responsive to audience and user needs; and (c) to encourage diversity in control of the more influential broadcasting services; and (d) to ensure that Australians have effective control of the more influential broadcasting services; and (e) to promote the role of broadcasting services in developing and reflecting a sense of Australian identity, character and cultural diversity; and (ea) to promote the availability to audiences throughout Australia of television and radio programs about matters of local significance; and (f) to promote the provision of high quality and innovative programming by providers of broadcasting services; and (fa) to promote the provision of high quality and innovative content by providers of datacasting services; and 4 Regulatory policy (1) The Parliament intends that different levels of regulatory control be applied across the range of broadcasting services, datacasting services and Internet services according to the degree of influence that different types of broadcasting services, datacasting services and Internet services are able to exert in shaping community views in Australia. (2) The Parliament also intends that broadcasting services and datacasting services in Australia be regulated in a manner that, in the opinion of the ACMA: (a) enables public interest considerations to be addressed in a way that does not impose unnecessary financial and administrative burdens on providers of broadcasting services and datacasting services; and (b) will readily accommodate technological change; and Australian Communications and Media Authority 16
20 6 Interpretation (c) encourages: (i) the development of broadcasting technologies and datacasting technologies, and their application; and (ii) the provision of services made practicable by those technologies to the Australian community. (1) In this Act, unless the contrary intention appears: broadcasting service means a service that delivers television programs or radio programs to persons having equipment appropriate for receiving that service, whether the delivery uses the radiofrequency spectrum, cable, optical fibre, satellite or any other means or a combination of those means, but does not include: (a) a service (including a teletext service) that provides no more than data, or no more than text (with or without associated still images); or (b) a service that makes programs available on demand on a point-to-point basis, including a dial-up service; or (c) a service, or a class of services, that the Minister determines, by notice in the Gazette, not to fall within this definition. 11 Categories of broadcasting services The following categories of broadcasting services are broadcasting services to which this Act relates: (a) national broadcasting services; (b) commercial broadcasting services; (c) community broadcasting services; (d) subscription broadcasting services; (e) subscription narrowcasting services; (f) open narrowcasting services; (fa) international broadcasting services. 11A Dual categorisation of international broadcasting services An international broadcasting service may also fall into another category of broadcasting services. 12 Method of regulating particular services (1) Commercial broadcasting services, community broadcasting services, subscription television broadcasting services and international broadcasting services require individual licences. (2) Other broadcasting services (other than national broadcasting services) are to be provided under the relevant class licence. Australian Communications and Media Authority 17
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