Film, television and radio pervade Australian life, reflecting and shaping the culture of our nation, and providing a window through which to view the culture of others.
The Government believes that it is important for Australians to see and hear material that reflects Australian experience and heightens awareness of Australian achievement and potential. A range of government policies operate to fulfil this ambition, including local content quotas and support for local production.
Australian programs comprise 60 per cent of all programs shown on television. In recent years, Australians have enjoyed increasing levels of Australian material on radio. Box office receipts for Australian films increased to 7 per cent of the total in 1992-93.
These are powerful media. Almost all Australian homes have a television and a radio. Nearly 80 per cent have a VCR. Cinema box office receipts are increasing every year.
More and more, Australians get much of their news and information through television and radio. The immense power that this gives electronic media proprietors is properly a matter of concern for many Australians. The Government's cross-media ownership rules provide a check on this power. Our national broadcasters have a special independent role to reflect the nation's diversity.
In the 1980s the film industry and commercial television and radio experienced considerable upheavals. Each has emerged stronger in this decade and well placed to meet the challenges of new television and communications services.
The Government recognises in this statement that as the opportunities are created by developments in communications technologies, content will be the defining element. The skills that we have developed in film, television and radio will help us to become a major content provider. Australian television programming is attracting significant audiences around the world. We are now an established supplier of programming, with a high reputation for quality drama, documentary, and children's material. Our multicultural society is another significant advantage, giving us an insight into the cultures of other countries. In addition we have a sophisticated communications system with modern infrastructure and high levels of creative and technical skill in these industries.
For all these reasons we are now well placed to take advantage of the communications revolution by establishing a sound creative infrastructure. The challenge is to adapt our film and television production industries so that they deliver whole libraries of programs and applications which will find audiences in Australia and overseas. However, a creative infrastructure will only be effective where all existing players in the industry identify and pursue common ends.
This will require the cooperation of:
The inclusion of the audio-visual services sector in recent international trade agreements (General Agreement on Trade in Services) may have an impact on the longer term viability and growth of the Australian film industry. Australia will not feel any immediate impact from this but as negotiations proceed towards liberalisation of trade, the Government recognises its responsibility to ensure that our cultural objectives are not jeopardised.
The Australian film industry has enjoyed enormous success since its renaissance in the 1970s. In 1992-93, total expenditure on Australian film and video production was more than $1.2 billion. A number of Australian films, including the recent Muriel's Wedding and Priscilla Queen of the Desert, have achieved local box office revenues equal to foreign movies made on vastly bigger budgets.
Australian creative personnel - directors, actors and cinematographers - have been remarkably successful in the international film industry.
The energy and expertise of independent producers have made Australian film today what it was in the 1920s - a cultural treasure. Independent production has created a film industry which has a diversity of voices, promotes efficiency and is cost-effective.
The Government will continue to support the development of the Australian film industry by:
In 23 of the 24 OECD nations, governments subsidise film industries, through either passive or active investment. Even in the United States, various regulatory and other incentives are offered at federal and State levels.
The Government confirms that it will continue to provide direct funding to support production of Australian films and our film idustry as part of our creative infrastructure. The cultural dividend alone makes it wise for governments to invest in the Australian film industry. And it has been in pursuit of this dividend that the Commonwealth has supported the industry for the last quarter of a century. There is no intention to turn back the clock and provide film industry support through accelerated tax incentives.
Integrated support for the film industry is provided through the Department of Communications and the Arts and portfolio specialist agencies.
The Government contributes to the production of films, documentaries and television programs through assistance programs under the auspices of the Australian Film Finance Corporation (FFC), the Australian Film Commission (AFC), Film Australia Pty Ltd and the Australian Children's Television Foundation.
The Government-funded Australian Film, Television and Radio School plays a significant role in industry training. Further indirect assistance is also provided through a range of taxation and local content requirements.
The FFC was established in 1988 to invest in qualifying Australian films as set out in the Income Tax Assessment Act 1936. Since its establishment, the Government has invested over $400 million in Australian films and television programs with total budgets of around $830 million. The Government believes that the involvement of the private sector is essential to the development of our film industry, and the target for FFC private sector participation has been set at 40 per cent across all projects funded. In addition there is a minimum of 15 per cent private sector participation with respect to each project, except for children's programs and some documentaries which may drop below 15 per cent. The only exceptions to this are special `Feature Film Fund' projects in which the FFC provides up to 100 per cent of the budget.
The requirement for private sector participation means that in a large number of cases, funding will only be made available if there is marketplace interest in the project demonstrated through a pre-sale or a licence fee.
In recognition of the increasing internationalisation of the entertainment industry, and the opportunities presented for creative collaboration, the Government will also continue to provide funding for certain international co-productions. The FFC will continue to invest in films made pursuant to treaties with other governments, including the United Kingdom, Canada and Italy. These are certified by the Department of Communications and the Arts on the advice of the AFC.
The Government also promotes the development of film and television projects through the AFC, which was established in 1975. In addition, tax incentives remain available under divisions 10B and 10BA of the Income Tax Assessment Act.
Active investment by the Commonwealth in film production and film tax incentives is only available to productions which are identifiably Australian, having a preponderance of Australian elements, including Australian creative control, cast and crew, themes and location.
The ABC is one of Australia's primary cultural institutions and our pre-eminent national broadcaster. The SBS provides a unique window onto multicultural Australia. It is a service without parallel in the world - and the Government will continue to support it.
The performance of our national broadcasters has never been more closely scrutinised by the community than at present.
One of the features which makes our national broadcasters so valuable is that their editorial and programming independence is guaranteed through legislation. Accordingly, the Government will require effective adherence by the ABC and the SBS to the charter responsibilities.
This year, the Government committed to a three-year funding agreement for both the ABC and the SBS--guaranteeing funding in real terms. This has given them the opportunity to engage in significant forward planning without uncertainty about the level of future funding. This further strengthens their independence.
YEAR ABC SBS
1994-95 $515.1million $75.7million
1995-96 $525.2million $79.4million
1996-97 $548.3million $81.7million
The ABC, as the national broadcaster, plays a vital role in the encouraging, developing an Australian culture. It employs more creative talent and disseminates more cultural `product' than any other Australian organisation. It is a major part of Australia's artistic and cultural life. ABC Television presents over 100 hours of quality Australian drama each year, along with in-house documentaries and documentaries commissioned from independent Australian film-makers. In 1992-93 the ABC spent some $222 million on programming for television.
The ABC forges links with the artistic and cultural community by:
ABC television reaches 98 per cent of Australians through terrestrial broadcasts to capital cities and regional areas and the Homestead and Community Broadcasting Satellite Service to remote areas. It operates 24-hour broadcasting, seven days a week.
In 1993, ABC Television broadcast over 100 hours of first run Australian drama to reach its highest ever Australian content levels. On average, more than 75 per cent of ABC TV's evening programming is Australian.
Much of the drama broadcast on ABC TV has received Australian and international accolades. Programs such as Brides of Christ, Police Rescue, Phoenix and Janus have set new standards in productions.Children's programs such as Playschool and Bananas in Pyjamas have also achieved unprecedented success.
ABC TV has also maintained a strong commitment to coverage of the arts. Sunday Afternoon presents five and a half hours of interviews, arts, documentaries and performance programs each week.
As the communications revolution unfolds, the ABC's role in developing Australia's national identity, fostering cultural diversity and encouraging cultural expression will become even more important.
In February 1993, the ABC commenced a satellite television service to South-East Asia in accordance with its charter. Australia Television is an English-language service which provides regionally focused news, current affairs, education and general entertainment programming.
It has retransmission arrangements in place with regional broadcasters and cable operators in the Philippines, Thailand, Vietnam, Singapore, China and Laos.
The challenge for the service is now to attract the large potential audience in South-East Asia able to receive the direct satellite signal.
ABC Radio is a world class radio service offering high quality news, current affairs, entertainment, music, drama, and arts programming. It has a commitment to high levels of Australian content across all its networks.
ABC Radio broadcasts more than 120 plays each year, and over half of these are Australian. ABC Radio networks also ensure that a minimum of at least 20 per cent of all music broadcast is performed by Australians, and 5 per cent of the music is of Australian composition.
The ABC provides five domestic radio services:
Radio Metropolitan: which has stations in all State capitals, Canberra, Darwin and Newcastle;
ABC Regional: with stations and outposts in 48 regional centres throughout Australia;
Radio National: which is a specialist network with studios and production units in every State;
ABC Classic FM: a national network devoted to music (particularly classical music), performance, audio arts and features; and
Triple J: an FM youth network which reaches all State capitals, Canberra, Darwin and Newcastle. Triple J has achieved great success in the radio youth market and is currently being extended to 44 regional centres.
People in rural areas are provided with at least one radio service (ABC Regional). When the Second Regional Radio Network is completed in 1995--96 they will also have access to Radio National and in some areas ABC Classic FM.
The Government has recently given the ABC permission to establish a news radio service (the Parliamentary and News Network) to be transmitted on the down time of the Parliamentary Broadcasting Network. This service will cover the capital cities and Newcastle.
The ABC's international radio service, Radio Australia, provides a 24-hour English and foreign language service. Radio Australia broadcasts news and information-based programs designed primarily to encourage awareness and understanding of Australia within its target regions of the Central and South-West Pacific, South-East Asia and North Asia.
The SBS delivers quality radio and television to a multicultural Australian audience.
SBS's programs are carried by satellite and rebroadcast terrestrially in centres around Australia. The television network is available to around 14.5 million Australians (75 per cent of the population), and SBS's multilingual radio service is available in most capital cities. The SBS is funded primarily by the Government, ($75.7million allocated in the 1994-95 Budget) but is permitted to supplement this through sponsorship and other activities. Current SBS Board policy is that neither commercial sponsorship nor advertising is permitted on SBS Radio.
The SBS spent some $24.6million on programming in 1992-93.
SBS TV is available in all capital cities, most large regional centres and another 26 centres which receive the service via the Self Help Broadcast Reception Scheme. Every week SBS TV is viewed by over 3 million Australians.
SBS policy ensures that half of the SBS TV program schedule will be in languages other than English. One Australian in five was born overseas and 40 per cent of the population has at least one parent who was not born in Australia. SBS programming aims to reflect this diversity.
To achieve this it has had to rely mostly on access to overseas material - its funding arrangements have allowed SBS little scope to initiate and broadcast Australian content. Given the high costs involved, SBS has averaged just three hours of first-run local drama each year.
In recognition of the importance of developing programming to reflect Australia's multicultural society, the Government will provide $13 million over four years to SBS to commission high quality Australian programs.
The programs will include drama series, low-budget features and documentaries that reflect Australia's cultural diversity. Priority will be given to those which can also be sold to the international broadcasting market. The SBS production fund will allow SBS to annually commission approximately 30 hours of multicultural drama, documentaries, low-budget features and feature films. It will be administered separately from SBS's normal operating budget by SBS Independent, which will commission product from independent producers throughout Australia.
This new injection of funding will provide major employment opportunities for people from non-English speaking backgrounds and Aboriginal and Torres Strait Islander people.
What it produces will have a strong export potential, not the least in Europe and the Asia-Pacific region. With its experience in translation, subtitling and multicultural broadcasting SBS is perfectly situated to tap into these markets with a high quality Australian product. Revenue derived by SBS Independent from distribution of the programs will be re-invested in similar projects.
Importantly, this funding will encourage the broadcast of the rich mixture of contemporary voices and visions currently found in other Australian creative genres such as literature, film and the visual arts.
Australia's SBS Radio is the world's only multilingual, multicultural national radio network. It broadcasts more hours per week in more languages, and reaches more non-English speaking and Aboriginal audiences than any other radio network in Australia.
Programs on SBS Radio include local and international news, community information, cultural events, music, sports and entertainment features. SBS Radio has made migrants feel at home, helped newcomers to adjust and long-term settlers to maintain their cultural identity.
What began in 1975 as four hours of programs a day in eight languages grew into the present weekly schedule of 66 languages.
In 1994, SBS Radio was extended through the creation of a national network and second frequencies in Melbourne and Sydney. The extra air time and expanded reach has given more time to language programs and allowed the addition of English language multicultural programming and news. The network now reaches listeners in Sydney, Newcastle, Wollongong, Melbourne, Geelong, Darwin, Perth, Adelaide and Brisbane, and will soon be heard in Canberra and Hobart.
Commercial television ratings confirm that Australians prefer local programming over imported product. Last year, nine of the ten highest rating programs on commercial television were Australian. Government has regulated the commercial broadcasting sector since its earliest years to require it to meet mandated levels of Australian content and all stations now exceed the Australian quota requirements.
Despite its late start, Australian television is world competitive. The Australian television industry has, like the film industry, achieved growing success in exporting Australian programs. In 1993, overseas sales of Australian programs raised revenue of over $65 million.
The Government has maintained a structured approach to the development of the television industry. Production funding and training schemes have developed programs and skills.
To give Australians access to a wide range of high quality Australian programs the Government will increase Australian content on commercial television by establishing the Australian Television Production Fund. Through this Fund, from next financial year, and for a period of three years, the Government will provide $20 million per annum to the television production industry.
The Government has decided to establish the special television production fund to increase Australian content on our screens, strengthen the industry at large and provide it with additional support during the onset of the new communications era.
The Fund will encourage the creation of programs and of libraries of copyright owned by Australians through:
In any one year a maximum of 50 per cent of the Fund will be available to commercial television licensees engaged in production and the remainder will be channelled to Australian independent producers. Funds will be allocated on the basis of production proposals and competitive track record, in terms of achievement in production and export of programs.
Programs financed by the Fund will not count for quotas required under the Australian content rules. In this way, the Fund will substantially increase the amount of quality Australian programming we see on our televisions.
At least 10 per cent of the Fund should be spent on productions eligible for children's programming which will satisfy the C classification administered by the Australian Broadcasting Authority (ABA).
The detail of the Fund and its administration will be finalised through extensive consultation involving all relevant groups. The Government has asked the ABA to conduct these consultations and to report to the Minister for Communications and the Arts by February 1995.
It will be essential for the commercial television broadcasters and the production industry to work co-operatively to ensure the Fund meets its objectives. The Government confirms that it will not reduce funding to current film industry support programs as a result of the introduction of this initiative.
Australians will soon be able to access more television programs with the introduction of pay TV. Services will be delivered by satellite, microwave or cable - or a combination of these technologies.
The most exciting aspect of the introduction of these new services will be the need for programming. The providers of pay TV in Australia will be acquiring programs to encourage Australian television viewers to expand their viewing habits. There is great potential for the Australian film and television sector to provide much of this programming.
The Government is keen to ensure that the new pay TV services have an Australian drama element.
In 1992-93, the ABC was granted two satellite pay TV channels together with $12.5 million to assist in establishing services. ABC Pay TV, which will be operated through a subsidiary, will be on a fully commercial basis.
The Broadcasting Services Act requires pay TV operators to devote at least 10 per cent of their expenditure to Australian product. The Government will review this minimum once services have commenced, and may increase the level to 20 per cent.
The Government will continue to regulate the commercial television industry in the areas of Australian content requirements on both free-to-air and subscription (or pay) TV, codes of practice and the protection of special events.
The Government reaffirms the importance of Australian content requirements as a critical part of building Australian identity, character and cultural diversity. We need to create Australian content to enrich and export our culture and to build new industry and employment opportunities emerging in the new communications environment.
Australia has strict rules governing the national and commercial broadcasters. In broad terms, broadcasters must provide at least 50 per cent Australian programs and produce a minimum amount of first release Australian programming. There are also obligations on pay television: 10 per cent of the amount spent on drama must be invested in first release Australian drama programs.
Australian content requirements for free-to-air-television are set out in Television Program Standard 14, which is overseen by the ABA. The standard aims to encourage programs which are identifiably Australian, recognise the cultural diversity of the Australian community, are developed for an Australian audience, and are produced with Australian creative control. The standard is currently being reviewed by the ABA.
On 13 July 1994, the ABA released a draft discussion paper on Australian content requirements including children's programming. Its assessment of the current standard indicates a need for:
Following consideration of submissions, the ABA plans to issue later this year a draft standard for further public comment, before determining a standard in early 1995 which will phase in any new requirements.
The Government will continue to ensure that Australian television remains in Australian ownership in accordance with the Broadcasting Services Act 1992.
Broadcasting in Australia has traditionally been subject to limits on who can own and control media outlets. The objects of the Broadcasting Services Act in providing for the control limits are to ensure that Australians have effective control of the more influential broadcasting services and to encourage diversity amongst the more influential services. Foreign control of commercial television broadcasting licences is prohibited, and no foreign person may have company interests (as set out in the Act) in a licence exceeding 15 per cent; aggregate foreign ownership in a licence must not exceed 20 per cent.
The rapid globalisation of broadcasting, particularly through satellite television which will in the next few years extend throughout Australia, poses additional challenges to Commonwealth government regulation. This is why the Government has acted to protect the televising of major events at the commencement of subscription cable, satellite and MDS television delivery.
Development of media for young Australians is a fundamental element of the film and television industries.
Australia has led the world in legislating for content requirements with strict guidelines for children's television.
The Government supports film for young Australians principally through the Australian Children's Television Foundation which is developing multimedia materials alongside traditional programs. The Film Finance Corporation provides investment in children's film production under more favourable terms than adult drama and the Australian Film Commission provides investment in films and script development assistance for children's programs. This is backed up by the ABA's regulation that children should have access to a variety of quality television programs made specifically for them, including Australian drama.
Since 1982, the Australian Children's Television Foundation (ACTF) has operated as a national non-profit organisation to encourage the development, production and dissemination of high quality, innovative television programs, films and other
audio-visual media for children, and to encourage their distribution by any form of technology. It undertakes and initiates research and provides an authoritative source of information on all aspects of television, film and other audio-visual media relevant to children, including new interactive program applications.
Over the past decade the ACTF has improved the production environment of, and made a significant difference to, children's television in Australia. The Foundation has invested in both the script development and production of telemovies, mini-series and one-off dramas and encouraged wider industry involvement in children's media. The Foundation has produced 115 hours of programming which has sold into more than 90 countries. The ACTF's programs have received more than 45 awards both nationally and internationally.
The ACTF develops books and teacher/parent materials to accompany all of its programs. To date, more than 650 000 publications associated with Foundation programs and 65 000 videotapes have been distributed in Australia.
In March 1995, the ACTF will host the first World Summit on Television and Children. The Summit will address the need to achieve a greater understanding of developments in children's television around the world; to raise the status of children's programming; to draw to the attention of key players in broadcasting the importance of issues relating to children; and to agree on a charter of guiding principles in children's television.
The Government recognises that film, television and developing formats including CD-ROM applications are important sources of information, education and entertainment for children. It is also recognised that young people quickly adopt new formats such as interactive video games and multimedia.
The Government will maintain its support for the Australian Children's Television Foundation and will provide additional assistance for it to develop multimedia applications as part of a wider multimedia initiative (see Multimedia section).
Commercial radio plays an important role in developing Australian culture and talent. In addition to providing music services, less commonly recognised services include the development of Australian comedy programs and the opportunity to participate in public debate through talk-back radio.
Ninety per cent of Australians listen to commercial radio each week. They listen to a weekly average of 19 hours 52 minutes of commercial radio. Over 80 per cent of Australian households have three or more radios and 99 per cent of cars have a radio.
A minimum level of Australian content to promote the role of broadcasting services in developing Australian identity are part of the Australian Music Code of Practice. Metropolitan and regional stations in the pop/rock category must play at least 25 per cent Australian content; 15 per cent for Hits and Memories stations.
The Australian Music Performance Committee monitors observance of the Code. This voluntary group consists of music industry representatives including the Federation of Australian Broadcasters and the Musicians' Union.
Community radio and television are relative newcomers to the broadcasting sector but have grown remarkably in the past ten years. They provide a unique range of services and access to smaller audiences in both urban and regional Australia. Programming, which is predominantly radio, includes local news and information, targeted/interactive programming, ethnic language programming and niche entertainment of all kinds.
This year, the Government is providing $3.1 million through the Community Broadcasting Foundation to support access to broadcasting for indigenous Australians, ethnic communities and the print handicapped.
The Government will continue to promote diversity through the emergence of a greater number of television and radio services.
Indigenous broadcasters form an important and distinct broadcasting sector. Through their own broadcasting and communications services they produce linguistically and culturally relevant programs, strengthening, developing and restoring their cultures.
Until 1992, the Central Australian Aboriginal Media Association (CAAMA) operated the only licensed Aboriginal community broadcasting service. By the end of June 1994, there were six other licensed Aboriginal and Torres Strait Islander broadcasters. CAAMA's Alice Springs based 8KIN FM broadcasts 18 hours a day, reaching a potential audience of about 60,000 indigenous people from 25 major language groups.
Other Aboriginal and Torres Strait Islander media associations with community broadcasting licences operate in North-East Queensland, Brisbane, Perth, Darwin, and smaller stations in Western Australia and South Australia. Programs and issues covered on Aboriginal owned community radio stations include: news, sport, current affairs, music, talk-back, Aboriginal oral stories, health, employment, housing and land rights information as well as special programs for youth and the aged. In addition to the seven licensed broadcasters, 11 other Aboriginal and Torres Strait Islander regional media groups produce radio programs for the ABC and other broadcasters.
In addition, there are 80 organisations that hold community broadcasting licences under the Broadcasting for Remote Aboriginal Communities Scheme (BRACS). BRACS offers remote communities a unique facility to interrupt and replace existing radio or television services with their own programming.
Following the recommendation of the Royal Commission into Aboriginal Deaths in Custody, the Government has developed a Statement of Principles for Media Reporting on Aboriginal and Torres Strait Islander issues.
This Statement will now be released and is intended as a basic working document to assist the broadcasting and print media industries to develop their own detailed codes of conduct, in consultation with Aboriginal and Torres Strait Islander people. These codes of conduct will help the media to produce programs and publications which respect the dignity, traditions and contemporary achievements of these people, and which avoid reinforcing prejudice and stereotyped beliefs.
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