Presentation on SABC Draft Editorial Policies 10 October 2003

Presentation on SABC Draft Editorial Policies

10 October 2003

2

Agenda

1. Overview of draft policies

2. Process of public consultation

3. Response to campaign

4. Analysis of submissions received

5. Next steps

3

• On 25 April SABC published a number of draft editorial policies for public comment:

• Mandate

• News

• Programming

• Language

• Universal service and Access

• Local content

• Religion

• Education

• Focused on those policies mentioned in the Broadcasting Act

•The policies explain the SABC’s approach to different areas of its performance e.g. how we will fulfil mandate to broadcast in all official languages

Background on the policies (1 of 4)

4

• Why did the SABC publish these policies?

• Broadcasting Act (as amended) states that the SABC must develop draft editorial policies, allow for public comment on them and then submit them to ICASA within 3 months of conversion

• When finalised, these policies will fulfil two purposes:

• A guide to editorial staff in their daily decision making

• A guide to the public on what they can expect from the public broadcaster

• The policies did not give detail on schedules or programme content - they rather provide a high level description of what can be expected from the SABC as a public broadcaster

• Some policies will replace existing policies from 1995 which are now outdated while others are new

Background on the policies (2 of 4)

5

Background on policies (3 of 4)

Scope

• They apply to all SABC content, whether produced by SABC or not

• Where they have particular relevance to either the commercial or the public broadcasting division, this is stated

Methodology

• International comparative review

• Review of existing policies against legal and regulatory requirements

• Workshops and brainstorming sessions

• Drafts prepared and circulated for comment

• Responses fed into database

6

Background on policies (4 of 4)

Structure

• Draft policies structured to minimise difficulties in implementation:

• Clearly stated set of commitments in the draft policies

• Outlined to which areas of the SABC each draft policy is applicable and how it should be applied

• Cross-referred between the policies, when the same issue is dealt with in more than one policy

• Linked each draft policy to legislation, regulations and PBS mandate

• Built in reporting requirements to Board on the implementation of the policies

• Standardised the period of time the policies will stand - each will be applicable for 5 years and will then be reviewed by Board

• Stated that the policies are underpinned by certain assumptions, including the structure and funding of the Corporation. If these assumptions change, the policies may need to be amended

7

Overview of draft policies

Mandate

• Not strictly one of the draft policies - rather acts as an introduction to the package of policies

• Outlines SABC understanding of public broadcasting in SA - therefore a critical background to the policies

• Lays out the core editorial values of the SABC:

• Equality• Editorial independence• Nation building• Diversity• Human Dignity• Accountability• Transparency

• Contains the amended Editorial Code• Lays out the principles of editorial responsibility and upward referral

8


Programming • Primarily focused on explaining how we deal with issues such as the airing of violence, sex and bad language

• This draft policy replaces the Guidelines on Programme Content which were approved by Board in 1995

• The policy now consistent with the new Code of Conduct for Broadcasters and also applicable to radio

• Areas covered, include:

• Language

• Discrimination and stereotypes

• Violence

• Grief and Suffering

• Children.

• Sex and nudity

• Programme complaints etc

9


News, Current Affairs and Information (1 of 2)

• Explains the SABC’s role in providing meaningful news, current affairs and information programmes from a South African perspective

• Sets out the following commitments for news practice:

• We do not allow advertising, commercial, political or personal issues to influence our news

• We include a range of different views on issues

• We respect people’s right to reply to criticism

• We correct mistakes as soon as possible

• We do not use language that is sexist, racist or discriminates against any person or group

• We always check information and confirm the accuracy of any report

10


News, Current Affairs and Information (2 of 2)

• We try to ensure fair gender representation – and seek out the views of women

• We protect people who provide us with information. If a court orders us to identify a source of information, we support the journalist’s decision and provide them with legal help

• We respect people’s right to privacy – unless it is in the public interest to reveal information

• We cover accidents and disaster with compassion. We do not show footage of the dead unless there are compelling reasons to do so

• We give full or extended live coverage to events of national importance

• During elections the SABC makes sure that voters are given sufficient information to enable them to make informed choices about who to vote for

• We comply with the restrictions on the sponsorship of news and current affairs programmes

11


Language (1 of 5)• Replaces the Language Policy of 1995

• Policy is founded on the constitutional imperative to treat all languages equitably and with respect

• Makes series of clear commitments for radio and TV, formalises many current practices, e.g. multi-lingual programming, rotation of cognate languages

General commitments

• Commit to maintaining distinct and separate radio services in all official languages (and to allocate resources fairly to each language service)

• Commit to treating all official languages equitably across the television portfolio, although we will give more time to more widely spoken languages

• Commit to integrating sign language into programmes

• Commit to accommodate other non-official languages such as Khoi, Nama and San

12


Language (2 of 5)Guidelines on what equitable treatment means:

• No guidelines in previous policy

• Policy lays out how the SABC understands equitability on TV

• Means fair, just and reasonable, does not necessarily mean equal time

• Has to be achieved while also making sure broadcasts are accessible to as many viewers as possible - more time for more widely understood languages

• Equitability is achieved through both unilingual and multilingual programming and by rotating cognate languages

• Is measured by a number of criteria:

• time allocation to different languages

• scheduling of different language programmes when audiences are available

• range of programmes in different languages

• resourcing of programmes in different languages

13


Language (3 of 5)

Guidelines on time allocation:

• No guidelines for time allocation in previous policy

• Policy now makes explicit the factors that will be taken into account when time allocations for different languages are devised for TV

• In determining allocations of time to different languages on television, the SABC has due regard to:

• The number of home language speakers of a language in the coverage area of a channel

•The geographical spread of the language

•The extent to which members of a language community are able to understand other languages

•The extent of marginalisation of the language

•The extent to which a language is understood by other South Africans

14


Language (4 of 5)

Specific commitments

• Radio language services to broadcast news and current affairs, children’s programmes and educational material

• TV to provide news in all official languages

• TV to also focus on producing drama and children’s educational programmes in various languages

• Selected TV news and events of national importance to carry sign language - to be expanded progressively

15


Language (5 of 5)

Specific commitments (cont)

• Management to submit an annual 3 year language action plan that includes:

• Future goals arising from the policy

• Summary of previous year’s TV airtime per language per genre (including sign language)

• A summary of the findings of any relevant research conducted

• A summary of professional development programmes implemented to meet the competence and skills needs of implementing this policy

• A summary of investigations conducted into the use of technology and the applications of technologies to implement this language policy

• Highlights to be included in Annual Report

16


Universal Service and Access (1 of 4)

• Policy describes the SABC’s approach to achieving universal service and access

• Aims to facilitate the provision of a comprehensive end-to-end public broadcasting service for all South Africans

• SABC has not had policy on this subject before, therefore the policy defines universal service and access and sets aims for its achievement

Proposed definition

“The provision of a range of audio and video broadcasting services to citizens. The services shall include, but are not limited to, radio and television programmes that cater for information, cultural, religious and educational needs and are delivered via the most appropriate technical means available at an affordable cost to broadcasters and audiences alike.”

17


Universal Service and Access (2 of 4)

SABC Aims for Broadcasting Universal Service and Access

• To ensure that all South Africans have access to a broadcasting service

• To ensure that a radio service in each official language, providing a range of programmes is broadcast (initially to reach at least 80% of the speakers of each language)

• Thereafter, to ensure that audiences have access to a range of radio services in a variety of official languages

• To ensure that at least two public service channels, providing a range of programming in a variety of official languages are broadcast (initially to reach at least 90% of the population)

18

Overview of draft policiesUniversal Service and Access (3 of 4)

Factors to be taken into account when considering the expansion of a service:

• The extent of the proposed coverage

• The number of people to reached by that expansion

• The extent of need of those people

• The cost of the expansion

• The nature of the service to be provided by the expansion

• Frequency spectrum availability

19

Overview of draft policiesUniversal Service and Access (4 of 4)

Commitments

• Management to determine responsibility in the SABC for driving the implementation of this policy

• Management to submit to board an annual 3 year action plan, including:

• A report of the Universal Service and Access achievements against the stated aims, including reasons

• A breakdown of the services extended the previous year, including increase in population coverage and cost

• Highlights to be published in Annual Report

20


Local content • SABC has not had policy on local content before

• This policy outlines the SABC’s commitment to airing local content on radio and TV, in line with ICASA’s prescribed quotas

• Policy contains relevant ICASA definitions and outlines responsibility within SABC to track and report on compliance

General commitments

• To ensure that local TV content is a significant and visible part of the SABC’s schedules, throughout the broadcasting period, and in prime time, in line with the quotas prescribed by ICASA

• To ensure that the SABC commissions a significant amount of its local television content from the independent production industry, in line with the quotas prescribed by ICASA

• To continue to play a high level and wide variety of SA music across the SABC radio stations, in line with the quotas prescribed by ICASA

21

Overview of draft policiesReligion

• Replaces previous Board policy

• Largely consistent with previous policy - two major changes:

• Quotas of airtime for major religious groupings have been taken out of the policy

• We now state that these quotas are developed on a 3 yearly basis after consultation with the RBP

• We lay out criteria to be considered when determining airtime allocations: Census data on the % of population in each religious group, the need for all religions to be reflected in religious programming etc

• A clause allowing airtime to be purchased by religious groups has been inserted, with a number of checks - detailed operational guidelines to be developed

22


Education (1 of 3)• Replaces Board policy of 1995

• Sets out the framework within which the SABC implements its educational mandate and responds to the national literacy and skills development challenge

General commitments

• To provide range of quality educational programming including programmes that support curriculum based activities of the education and training sectors and programmes that support public education

• To ensure that PBS stations and channels dedicate adequate airtime to educational programmes that are scheduled at appropriate times. At least one TV channel to screen programmes specifically in support of school curricula and this to be supplemented by PBS radio

23


Education (2 of 3) General commitments (cont)

• To ensure that commercial services support a culture of lifelong learning through informal knowledge building initiatives relevant to their target audience and format

•To provide educational programmes in various official languages and sign language

• To broadcast a significant amount of locally produced educational material

• To implement a coherent education methodology that incorporates a multimedia approach

• To supplement educational methodologies through outreach programmes

• To ensure that sufficient resources are dedicated to implement the educational mandate

24


Education (3 of 3) Implementation

• SABC will develop annual three year action plan which identifies education priorities, including hours of programming for each of the educational mandate areas

• Educational mandate areas which have been identified are:

• Early childhood development

• Children at Home

• Formal education

• Youth development

• Adult and Human Resources development

• Public Education

25

Challenge - to make the policies widely accessible and easily understandable

• Policies launched to key stakeholders and press on 25 April

• Copies of draft policies made available at all SABC regional offices together with detailed, easy to read summaries in six official languages

• Copies of the policies accessible on SABC website and intranet in all official languages.

• Full page ads, summarising policies and inviting people to comment in Rapport, City Press, Sunday Sun, Beeld, Daily Sun, Illanga, The Herald, Daily Dispatch

• In order to reach rural areas:

• Detailed easy to read summaries of the policies distributed to over 1000 post offices countrywide, in six official languages

• Poster campaign in 6 languages in post offices

Process for public consultation

26

• Use of own media

• Promos ran on SABC radio stations and TV channels until early May intensively, and on a more low key basis thereafter

• SABC talk shows and discussion programmes were used to promote discussion on the policies until June 13

• Public meetings

• Held public meetings in each of the 9 provinces

• Between 200 and 500 people attended each meeting

• Gave public the opportunity to interact directly with members of the SABC board and management.

• Comments on policies had to be made in writing:

•Drop-off at regional offices

•e-mail, fax or post

Process for public consultation

27

Response to campaignPublicity

• Editorial coverage

• Focus in print media overwhelmingly on the upward referral and “objectivity” issue. 20 newspaper columns on upward referral alone

• SABC talkshows and discussion programmes encouraged discussion on all aspects of the policies.

28

• Excellent response by the public to the SABC’s call for comments on its draft policies. 920 written submissions on the draft policies received. 847 from individuals, 73 from organisations. Lots of goodwill in responses – “ownership” of SABC

• The programming policy attracted the most number of comments with 600. The next most commented on policy was Language and then Religion and News.

Response to campaign

Submissions

Comments per policy4%

16%

5%

7%

9%45%

10%

4%

Education

Language

Local content

Mandate

News

Programming

Religion

Universal Access

29

• Most comments on the policies were general in nature with many comments on issues of taste and decency but there were approximately 250 specific suggestions on how the policies should be adjusted.


Submissions

No. of specific suggestions made per policy

6%

20%

5%

20%10%

25%

10%4%

Education

Language

Local content

Mandate

News

Programming

Religion

Universal Access

30

The nature of the organisational submissions differed with those made by individuals. The submissions by individuals tended to focus on general comments and frequently did not specifically address the draft policies.


Submissions

Nature of individual submissions

1031, 89%

124, 11%

Generalcomments

Specificrecommendations

Nature of organisational submissions

125, 61%

79, 39%

General comments


31

The organisations’ submissions tended to have comments more evenly spread among the policies. The policy which was commented on the least by organisations was the Universal Access policy, with the Language, Programming and Mandate policies receiving the most attention.


Submissions

Individual vs. Organisational per policy

0%5%

10%15%20%25%30%35%40%45%50%

Ind

Org

32

Comments received

• 60 comments were received on the Education policy which amounted to 4% of the total comments received on all policies.

•There was a lot of praise for the SABC’s educational programmes, particularly Takalani Sesame.

•There were many calls for the SABC to provide more educational programmes.

• There were criticisms that some of the SABC’s educational programmes encourage children to be immoral.

Analysis of submissions

Education

45

15

General comments Specificrecommendations

Education policy - comments made

“Children need stimulation in their own language...Programmes like Takalani Sesame should not have various languages mixed in one – rather keep languages separate and coherent”. N. Oelson, no.556

33

Comments received

•There were suggestions that educational programmes should also focus more on addressing disability issues and health issues such as HIV/Aids.

•Some submissions suggested that all educational programmes be in English and some submissions argued against a multi-lingual approach in educational programmes, saying that each language should have a dedicated slot.

• It was suggested the policy should state that extreme caution must be exercised in sponsoring educational programmes and also proposed that the policy include reference to child-centered human rights issues such as HIV / Aids and child abuse.

• Submissions said the policy should state the importance of democracy / citizenship education.

• There were suggestions that the policy give more emphasis to the portrayal of women and girl children and that a clause be included on the promotion of gender equality.

•There was criticism that the policy needs to have specific concrete measures so that progress can be evaluated.


Education

34

Comments received

• 221 comments received on the draft Language policy – 16% of total comments received on all policies.

• That the SABC should treat all official languages equally (not equitably)

• That there should be more programming in marginalised languages and that there should be redress for these language groupings

• That the size of the language grouping should be the only criterion which determines the amount of air-time for that language


Language

171

50

Generalcomments


Language policy - comments made

“We are also tired of being made fools. Muvhango is not a Venda drama”. F Mbedzi, no. 575

35

Comments received

• Submissions called for the policy to commit to targets for airtime for each language.

• Submissions asked that a commitment to a % budget allocation for various languages be included in the policy.

• There was the suggestion that the policy include a commitment that English will not dominate on the SABC and that it will not be used as an anchor language.

• Many deaf organisations made the submission that the policy should reflect that a holistic approach is needed for meeting the needs of the deaf and that sign language alone is not good enough. There was also the suggestion that the policy commit to providing sub-titles in all official languages.

• There was the suggestion that the policy be reviewed every year, and not every 5 years.

• It was suggested that the policy commit to covering events of national importance in at least 6 languages.

• Submissions suggested that the grouping of cognate languages together be approached with caution and that the policy reflect this.


Language

36

Language

Current Performance

• Airtime for African languages in prime time has increased since 1999, from approximately 25% to 30%, across SABC 1 and SABC 2.

• Now providing television news in each official language, for the first time.

• Clearly still gains to be made. Regional channels will be of great assistance. SABC envisages that over time the majority of content on the regional channels will be in languages other than English.

SABC 1 - prime time language breakdown

71%

29%

English

Other

SABC 2 - prime time language breakdown

47%

53%English

Other

37

Comments received

• 69 comments received on the draft Local Content policy – 5% of total comments received on all policies.

• That the SABC should re-build the necessary in-house capacity to produce local content

• That there should be more local drama

• That ICASA’s quotas should be exceeded

•That the SABC should commit to local content quotas beyond music on radio.


Local content

57

12

Generalcomments


Local content policy - comments made“In regard to local content, the current draft is inadequate in regard to radio. It could do well to spell out local content commitments that encompass drama, documentaries and participatory programming.” Rhodes University, Department of Journalism and Media Studies, no. 902.

38

Local content on television

• To date, SABC has been able to sustain high levels of local content, both in the performance period and in prime time

Local Content Current Performance

54.6151.50

60.31

69.49

48.27

42.43

•0

•10

•20

•30

•40

•50

•60

•70

• ave

rag

e %

loca

l

SABC 1 SABC 2 SABC 3

Full dayPrime Time

•Source: Broadcast Schedules•Week 14 - 31 (31 March - 3 August 2003)

39

Local content

• As of end August, local content quotas have increased substantially – public channels must now have average of 55% and may only count local repeats at 50% of their duration for a limited number of screenings after which local repeats must be counted as foreign content.

Local Content Current Performance

57.1961.31 61.70

76.57

47.4443.91

•0

•10

•20

•30

•40

•50

•60

•70

•80

• ave

rag

e %

loca

l

SABC 1 SABC 2 SABC 3

Full dayPrime Time

•Source: Broadcast Schedules•Week 35 - 38 (25 August - 21 September 2003)

40

Comments received

•


Mandate

41

49

Generalcomments


Mandate - comments made“We strongly recommend that reference to upward referral, particularly as it turns the CEO into the Editor-in-Chief should be totally discarded. What we suggest is to have the highest level of referral being the Head of News…” Freedom of Expression Institute, no. 928

“Much of public discourse on the draft has focused on the issue of upward referral. Personally, I find the positions articulated in the draft, and in explanatory comment by the Board and Management, both cogent and logical”. J Netshitenzi, no. 911

“On the matter of upward referral, we believe it is simply normal that a hierarchy of authority must exist in a journalistic enterprise. A reporter is not the same as an editor, and editors have rank in turn. The buck stops with the editors-in-chief. But these should be journalistic staff, not management. Perhaps the solution is as simple as not referring to the CEO as editor-in-chief, and making the MD news the mandatory referral point for high impact issues”. Democratic Alliance, no.889

41

Comments received

• 90 comments were received on the Mandate policy which amounted to 7% of total comments received. Although more comments were received from individuals than organisations on this policy (57 from individuals vs 33 from organisations) this is the only policy where specific recommendations outweighed general comments.

• On the issue of upward referral there were contrasting submissions. Some argued that the current provisions should remain as is while others stated that the section should be deleted in its entirety. Many submissions argued that the current formulation should be revised to make it clear that upward referral stops with the editorial heads.

• Submissions were generally supportive of the editorial values although there was the view that these values should not bind the news division as they would undermine its independence.

•There were suggestions that provisions be included on the SABC’s role in supporting the African renaissance and in providing truly national coverage.

• There were suggestions that the following provisions in the Code be reworked to be clearer: privacy, coverage of government, protection of sources.


Mandate

42

Comments received

• 119 comments were received on the News policy which amounted to 9% of total comments received. • There were many calls for CNN to be brought back and for the SABC 3 news to be moved back to 8pm. (These comments are probably indicative of the fact that the policy process took place at the same time as these issues were being dealt with).•There were calls for non-Western news networks such as Al Jazeera to also be used by the SABC but there was also opposition to such networks.•There were criticisms of the SABC’s news coverage of certain provinces, particularly the more rural ones.


News

95

24

Generalcomments


News policy - comments made

“The working class hardly ever makes it onto SABC news and current affairs programmes”. COSATU, no.886

“The news footage of violence death and destruction needs to be kept to an absolute minimum”. B Richert, no. 591

43

Comments received

• There were calls for more positive news stories to be given airtime and there were appeals for less violence in news bulletins.

• It was suggested that the SABC’s role in news should emphasise its independence above other principles.

• It was suggested the policy should not refer to the role of news in nation-building as this is more appropriately the role of the state.

• It was suggested that the policy include a clause on the coverage of Africa.

• It was suggested that the policy include a clause on the coverage of crime stating that there should be a context and explanation in reporting of crime.

• It was suggested that the policy explain the decision making structure around apologies and corrections.

• There were calls for additional clauses on gender issues to be included in the policy.

• There were suggestions that the policy should provide for more positive coverage, particularly of government initiatives.

• There were calls for the term “public interest” to be defined or not to be used at all.


News

44

Comments received

• 600 comments were received on the Programming policy which amounted to 45% of total comments received on all policies. 536 of the comments were general in nature, with only 22 of these general comments from organisations. 64 specific suggestions were made on the policy. • There were many complaints about sex, violence, profanity and sci-fi shows.• There were complaints that too many adverts are broadcast.• There were many complaints about the recent changes to SAFM and there were many appeals for there not to be changes to RSG.


Programming

536

64

Generalcomments


Programming policy - comments made“I am writing to view my shock at what is aired over 5fm airways during family friendly hours. A week ago Mark Gillman said to a 14 year old kid at about 7am ‘Does your Dad ever take a swing at you? I hope you have a wall behind you when he does’. This is unacceptable and I want to know why he is allowed to continue with such behavior”. (Craig French)

45

Comments received

• There was the view that the policy should provide for an independent ombudsperson against whom complaints can be lodged. There was also a suggestion that the BCCSA be asked to administer complaints against the SABC’s policies. There was an appeal that the complaints be dealt with quicker, that quarterly complaints report be sent to board and be made public. Another suggestion was that members of the public assist the Broadcast Compliance team or that a toll free number be provided for the lodging of complaints.

• There were suggestions that the watershed be moved later.

• There were suggestions that the policy provide for profanity to be edited out or for additional provisions on profanity including a dedicated symbol.

• Submissions suggested that the clause on children allow for participation by children in developing programmes and a commitment to provide a variety of genres for children.•There was a suggestion that the policy commit to showing less violence.


Programming

46

Comments received

• 141 comments were received on the Religion policy which amounted to 10% of total comments received on all policies

• There were suggestions that the only criterion in the policy for allocating airtime should be the amount of support for each religion and that these quotas be stated in the policy. However, there was also the submission that the policy allow for each religion to be treated equally.


Religion

115

26

Generalcomments


Religion policy - comments made

“We appreciate to see programmes of all religions such as Hindi, Islam etc. But why should Christianity still dominate even today?” N Tshabalala, no. 557

47

Comments received

• There was both support for and opposition to the policy’s emphasis on multi-faith programmes. The RBP suggested that the policy stipulate that 80% of each religion’s programming will be made up of faith specific programming.

• There were suggestions that the policy emphasise “affirmative action” on religion but there were also suggestions that there was no need to address the past.

• There was both support for the concept of paid religious broadcasting and criticism of this.


Religion

48

Comments received

• 59 comments were received on the Universal Service and Access policy which amounted to 4% of total comments received on all policies. In real terms, this policy attracted the least number of specific suggestions – only 9.

• There were a number of complaints received about the lack of services in particular areas, particularly in rural areas.


Universal Service and Access

50

9

0

10

20

30

40

50

General comments Specificrecommendations

Universal Access policy - comments made

“All technological know-how should be harnessed so that citizens gain access”. P Kondile, no. 642

49

Comments received

• There was the suggestion that the policy state how marginalised groupings will be given access and that it give more attention to promoting access by people with disabilities, including the blind.

• Submissions suggested that the policy emphasise that the goal of universal access takes precedence over economic efficiency.

• There was a suggestion that the % universal service coverage targets laid out in the policy are not high enough.

• There was the view that the terms “access” and “service” need to be dealt with distinctly.


Universal Service and Access

50

• Full report has been made to top management and Board (early October)

• Board has approved that the policies be re-worked in certain areas. These include:

• Mandate (upward referral)

• Consolidated approach to meeting the needs of the deaf

• Clauses on privacy, protection of sources, race, gender, disability, HIV/ Aids, Children, Africa, crime, reporting between elections etc

• Scheduling of educational programmes

• Dealing with complaints – ombudsperson?

• Role of the RBP

• Internal workshops to be held during October / November – suggestions will be discussed and re-drafting will be agreed on.

• Board to approve final policies in December

• Policies to be submitted to ICASA before 31 December

• Publicity campaign providing feedback to public to resume in December.

• Training programmes on new policies will roll-out in January

Next steps

51

• Campaign successful - exceeded SABC expectations.

• Had to run campaign within severe constraints including very tight time-table, budget constraints, fairly arbitrary list of policies in the Broadcasting Act, DoC consultation on similar issues at the same time.

• Key success – achieved a certain amount of goodwill amongst stakeholders and public.

• Key challenge going forward - to meet their expectations.

Conclusion

52

Thank you

Documents

Presentation on SABC Draft Editorial Policies 10 October 2003