AUDIENCE COUNCIL ENGLAND RESPONSE TO PUBLIC PURPOSE REMIT CONSULTATION The Audience Council England working with its 12 Regional Audience Councils has considered the proposals put forward and made a number of specific points as noted under each of the six Public Purpose headings below. While members were largely in agreement with the scope of the remits, there was an overwhelming call for simpler and unambiguous language in documentation intended for public consumption. Members also noted a significant lack of references to entertainment which was felt to be an essential element in the BBC’s offering if programmes and services were to engage with licence fee payers. 1. Sustaining Citizenship and Civil Society • Scope of remit about right for news, current affairs and politics • The role of the BBC in supporting community cohesion is missing; as are the BBC’s responsibilities in forming people’s views of the world around them • Some concern as to the possibility of hidden agendas leading to the BBC being seen as supporting government policy • Language is complicated and not helpful • Title somewhat inaccessible and unclear; was this remit about the BBC providing information to encourage participation in a democratic process, or was it about personal responsibility for involvement in and contribution to that process – or both? • While journalism and factual information are clearly primary means of fulfilling this purpose, informal and non-journalistic content (for example an unfolding storyline in a continuing drama) might have a broader reach and the potential to provide understanding in a less structured manner. 2. Promoting Education and Learning • This is a clear and necessary purpose • Misses out on informal learning and personal development • Language very clear in some places but over-complicated in others 3. Stimulating Creativity and Cultural Excellence • Members agree with the remit and priorities but feel they are expressed in an overly worthy way • The aim of stimulating creativity and cultural excellence is important in safeguarding the expression of British voices on British TV amid the many American offerings • BBC needs to show a willingness to take risks 4. Representing the UK, its nations, regions and communities • A complex matrix whose fulfilment is felt to be almost impossible to assess • There are national services for Scotland, Wales & Northern Ireland but no equivalent for England; the closest parallels are regional opt-outs and Local Radio. • Nationality is a natural and obvious community of interest but there are many others – religion, age-band, lifestyle, life-stage • Community cohesion and positive local representations as important for this remit as for the first Public Purpose • Younger members noted they are poorly served as a community • Current and typical BBC coverage of national (ie UK) events recognised as a continuing strength. • Some broadcaster-originated occasions fulfil the same expectations, for example continuing drama, Reith/Dimbleby Lectures, Comic Relief/Children in Need, while series such as Question Time reflect concerns to a UK-wide audience 5. Bringing the UK to the world and the world to the UK • The remit is woolly • The BBC’s integrity is paramount; people tune into the BBC because it is trusted and this position must be safeguarded • Domestic services have an important role to play in relaying and connecting relevant world news 6. Helping to deliver to the Public Benefit of Emerging Technologies • Remit is clear but there is a need for a simple guide for the public • Information needs to be user friendly • The BBC should not be alone in offering help; the wording raises too great an expectation • Interaction is not an end in itself but a means to an end that benefits the user 12.04.07 Purpose Remits consultation: Response to BBC Trust from Audience Council Scotland 27 April 2007 1. Do the priorities adequately reflect the requirements of the Charter and Agreement? • The Council felt that, broadly speaking, the priorities in the Purpose Remits adequately reflected, if at a high level, the BBC’s duties as outlined in the Charter. However the priorities in “Reflecting the UK, its nations, regions and communities” should be more concrete in describing the actions to be taken by the BBC to contribute to public value in the context of specific nations, perhaps describing the complementarity between the roles of network and opt-out services for nations and regions. 2. Do the priorities need amending in any way? If so, how? (Please answer with reference to specific priorities). Representing the UK’s nations, regions and communities • Some of the initial statements regarding “What the BBC will do to achieve this purpose” appear vague. For instance, with regard to Priority 1 (Represent the different nations, regions and communities of the UK) the existing text reads not as a priority but as a statement reiterating the overall vision of the purpose. Instead it could state the BBC’s priority to “provide national, regional and local services which reflect, discuss and connect communities”. • It is suggested that Section 3 (Priorities) should include a requirement for more in-depth coverage of news and current affairs in a post-devolution context. • Audience feedback in Scotland shows a significant degree of dissatisfaction with the quality and extent of coverage of Scottish affairs on network news programmes. The priorities should embody a commitment to accurate and proper coverage of devolved affairs across the UK. • The first priority commits the BBC to “across the range of its output, portray and celebrate the range of cultures and communities across the UK at national, regional and local level”. To this should be added: “with network coverage adequately reflecting the cultures of the four nations comprising the UK”. • The commitment to ‘Support the UK’s indigenous minority languages’ should include reference to Scots. Promoting education and learning • Reference should be made to the provision of learning resources in languages other than English, e.g. Scottish Gaelic. 3. Are there any important priorities that have been missed? • In “Representing the UK, its nations, regions and communities” there should be a specific priority to promote understanding of how the UK nations are governed within the framework of devolved institutions and the UK and European Parliaments. 4. Do the Purpose Remits present the BBC with enough challenge in promoting the Public Purposes? If not, how might they be improved? (Please answer with reference to specific Remits and /or priorities). See response to question 2 above. 5. In addition to the measures included in annex I to each Purpose Remit, are there any other performance measures which the Trust should use to monitor the Purpose Remits? In measuring the quality and quality of representation of UK nations and regions, the use of the phrase “my area and community” is too vague. It should be substituted with separate questions referring to “my country”, “my local area” and “my community”. 6. How well do you think the BBC is currently delivering the Purpose Remit priorities? In particular: a) are there any priorities which the BBC could deliver better? If so, why? b) are there any priorities which you think are being delivered well? If so, why? (Please answer with reference to specific priorities) The Council has significant reservations about aspects of the delivery of the “Representing the UK, its nations, regions and communities” purpose. These are detailed in the Council’s Report to the Trust 2007. Audience Council Wales Response to BBC Trust Consultation on Purpose Remits General Points 1. It should be made explicitly clear that all the Purpose Remits are relevant to all the BBC’s services. This is particularly true for Sustaining Citizenship and Civil Society, which should not be interpreted as relating only to the BBC’s News and Current Affairs output. 2. The reading age needed to understand the Purpose Remit documents is very high. They are not easily accessible to the majority of licence fee payers. 3. Poor drafting and lack of consistency between the various Purpose Remit documents in the Welsh language versions. 4. The word national is sometimes used to mean the UK and at other times to mean the nations of the UK. It should be used consistently to mean the nations of the UK to avoid confusion. 5. Cultural diversity needs to be embedded in the Purpose Remits. Representing the UK, its nations, regions and communities includes a reference to faith playing a critical role in world events but some concern was expressed that faith was not referred to elsewhere in the Purpose Remits. 6. Terms used should be more clearly defined. For example, citizenship might be interpreted as social engineering if not defined. The Trust is setting demanding and idealistic Remits. But before a proper assessment of the appropriateness or otherwise of these can be reached, definitions of the terms used are required. Introducing terms without explanation or qualification could confuse the BBC’s audiences. Question 1 How well do you think the BBC is currently delivering the Purpose Remit priorities? Are there any priorities that the BBC could deliver better (and if so, why) and are there any priorities which you think are being delivered well (and if so, why)? The BBC is, broadly, delivering the Purpose Remit priorities at present. Question 2 Do the priorities need amending in any way? If so, how? Yes – as follows: Sustaining Citizenship and Civil Society – Priority five should be amended to read “Enable audiences to access, understand, interpret and interact with different types of media thus promoting media literacy.” Promoting education and learning -There are no references to languages other than English. This fails to recognise the multi-lingual nature of the UK’s education systems. The statutory status of the Welsh language should be recognised. It was also felt that the Priorities should more explicitly reflect the different formal education systems in the nations of the UK. Stimulating Creativity and Cultural Excellence – Sentences such as “You can expect the BBC to offer the best examples of creative work that engage and delight audiences and break new ground. The BBC will also support your own creative and sporting activities.” could raise people’s expectations beyond what the BBC can deliver and should be qualified. The priorities: 1. Priority 1 - The Priority as worded at present suggests that the BBC has no reputation for creativity. The words ‘maintain’, or ‘sustain’ would be more appropriate than ‘establish’. 2. Priority 2 - Explicit reference should be made here to Sport to ensure that it is encompassed as a cultural activity, and subsequent references to cultural activities should be amended to read ‘cultural and sporting activities’. 3. Priority 5 – ‘Nurture’ or ‘encourage’ would be more appropriate words than ‘support’. The 2006 Charter Agreement’s Clause 8 2(a) states that the BBC has a responsibility to ensure it “enriches the cultural life of the UK through creative excellence in distinctive and original content”. There need to be agreed indicators against which excellence can be measured in order for references made to excellence to be meaningful. Representing the UK, its Nations, Regions and Communities – The draft Priorities should require and ensure that the BBC’s services reflect the reality of devolution in the UK and it is essential that the BBC’s services embrace this as a mainstream issue of the contemporary UK. As it noted in its 2005/06 Annual Review, the Council “felt that greater efforts should be made to include news stories which reflected Welsh experience in UK news bulletins... Council expressed concern regarding the provision on the BBC’s UK news bulletins noting that stories which were not applicable to Wales were sometimes broadcast without reference to the fact that they did not have the same relevance to Wales as to England following devolution. It also felt that there could be value in contextualising stories relating to England by referring more often to the situation in Wales and making comparisons.” Emerging Communications – The opening phrase should be rephrased to say “You can expect the BBC to help everyone in the UK to access content across a range of platforms”, refocusing on the primacy of content provision for the BBC. Priority 6 - The lack of universal access to BBC radio services on DAB currently, and for the foreseeable future in the case of some services, is a key issue in relation to ending the ‘digital divide’ in Wales. Audiences in Wales have made Council very aware of the strong feelings arising from digital deprivation. (Currently 57% of the audience in Wales cannot receive Radio Wales or Radio Cymru on DAB and an estimated 70% of Welsh speakers in Wales are unable to receive Radio Cymru on DAB.) Question 3 Are there any important priorities that have been missed? Sustaining Citizenship and Civil Society – add an additional priority – “encourage the development of a vibrant and inclusive civil society encompassing all the communities of the UK.” The importance of the BBC acting in a socially responsible manner should be added to this Purpose Remit. Question 4 Do the Purpose Remits present the BBC with enough challenge in promoting the Public Purposes? If not, how might they be improved? Bringing the UK to the world and the world to the UK- Identified as an important priority, which the BBC currently succeeds in delivering well, but it felt that the use of the word ‘sustain’ in Priority 1a in relation to bringing the UK to the world, suggests a Corporation resting on its laurels. Question 5 In addition to the measures included in Annex I to each Purpose Remit, are there any other performance measures which the Trust should use to monitor the Purpose Remits? 1. The tools used should be able to measure objectively whether or not the BBC is delivering the Purposes, rather than the audiences’ perception of delivery. This is essential in order to avoid the danger of consumer populism becoming the driver for BBC output. 2. It is also essential that audience research is undertaken in a way that ensures that results are meaningful in Wales terms to identify when opinions are significantly different in Wales to those in the UK as a whole. Question 6 Do the priorities adequately reflect the requirements of the Charter and Agreement? Yes, subject to the suggested revisions noted above, this is broadly the case. The Audience Council for Northern Ireland Submission to BBC Trust Purpose Remits Consultation 27April 2007 1. Introduction: Council has discussed the Purpose Remits in its own meetings and at the Joint Audience Councils’ Conference. The following submission is based on Council’s discussions informed by feedback from licence fee payers in Northern Ireland. On 27 March 2007, Council hosted an Accountability Breakfast with a range of opinion formers specifically to discuss Purpose Remits and Service Licences. The views expressed at this meeting are also reflected in Council’s submission, and the relevant extract of this meeting is appended. 2. General Points: Council believes that the 6 Public Purposes are interrelated and should not be interpreted as stand alone aims. Council believes that entertainment and fun are insufficiently represented in the Purpose Remits. Entertainment is relevant across the remits and not just in the one relating to creativity. The BBC should provide a vision of what can be achieved through challenging output, but it must also provide a balance of broad appeal and entertainment to retain and engage the audience. Religious life is not adequately reflected in the Purpose Remits, For instance, no place has been given to celebration and worship. The Purpose Remits might go further in stating the overall aims of each remit. For instance, the remit for Sustaining Citizenship and Civil Society might aim to create a fair an inclusive society. The 4th remit might articulate an aim of promoting mutual understanding. The governance framework needs to better reflect the fact that the audience is now more in control of their own consumption. The BBC’s role in holding society to account is not sufficiently reflected in the Purpose Remits. The Purpose Remits need to take account of the evolving situation in Northern Ireland, particularly the fact that there is a border and North South links in many aspects of life. 3. Sustaining Citizenship and Civil Society: Council believes that this Purpose Remit is too narrowly focussed on News and Current Affairs. Difficulties in defining citizenship mean it is also hard to measure. Citizenship needs to be understood in the widest sense and not just in terms of constitution and government. This remit should also be explicit about serving the diverse needs of the whole audience. 4. Representing the UK, its Nations, Regions and Communities Council notes the responses of licence fee payers in Northern Ireland to BBC Trust quantitative research on the Purpose and Priorities. Respondents were asked to rate each Priority for importance to themselves as an individual and to society, and also to rate how the BBC performed against each Priority. Council notes a number of Priorities in this Public Purpose where there was a considerable gap between the importance rating and performance rating in responses from Northern Ireland: The BBC supports language(s) with programming and other content* The BBC caters for my area and my community The BBC represents my area and my community to other people in the UK The BBC helps me feel more involved in my local communities The BBC reflects my religious and other beliefs appropriately (* all who speak indigenous minority languages) Council suggests that these are particular priorities for the audience in Northern Ireland. 5. Emerging Technologies: Council believes that it is important that the BBC can move quickly on new technology, and that the Purpose Remits and governance framework facilitate this. The remit has to be challenging so that the BBC does not lag behind in technology. The BBC is primarily a content provider and should be realistic about the possibility of universal access and use of all technology. Nonetheless, a commitment to media literacy and bringing the benefits of digital technology to underserved groups is also important. There were concerns about the restrictions that digital rights management for on demand services placed on the audience. Council also noted that ‘emerging technologies’ had in fact already arrived for younger people. Services need to be provided for young audiences which reflect the ways they wish to use media, such as creating and controlling their own content. If the BBC does not engage young people through its use of technology it will be difficult to achieve the first Purpose, Sustaining Citizenship and Civil Society, in the future. 5. Education and Learning: Council believes that the remit should make further reference to informal learning. APPENDIX A: EXTRACT OF NOTES FROM ACCOUNTABILITY BREAKFAST On 27 March 2007, Council hosted an Accountability Breakfast with a range of opinion formers specifically to discuss Purpose Remits and Service Licences. The following extract relates to the discussion on Purpose Remits. BBC Trust Accountability Breakfast: Purpose Remits and Service Licences Consultations 27 March 2007 Broadcasting House Belfast BBC Trust and Audience Council for NI: Rotha Johnston, National Trustee for NI (Chair) Clifford Harness, Audience Council for NI Rick Hill, Audience Council for NI Aodán MacPoilin, Audience Council for NI Sharon O’Connor, Audience Council for NI Carrie Matchett, Head of Governance and Accountability, NI Attendees: Mr Tom Collins, Director of Communications, Queen’s University Mr Graham Davis, Head of Entrepreneurship, Invest NI Mr Stephen Dowse, Executive Officer, Young Farmers’ Clubs of Ulster Mr Tom Brawley, Ombudsman for NI Ms Eleanor Gill, Chief Executive, Consumer Council for NI Mrs Eileen Kelly, Director, Educational Guidance Service for Adults Mr Eamonn McCartan, Chief Executive, Sports Council for NI Mr Joe McDonald, Ulster Farmers Union Mr Paul McGill, Communications Officer, NICVA Sir Desmond Rea, Chairman, NI Policing Board Discussion: There followed broad discussion with a number of key themes: • The importance of reflecting the diversity of audiences in NI, and offering something for everyone. • The need to take account of the digital divide (e.g. the needs of older people and other areas of digital deprivation and low media literacy) in the framework and delivery. • The need to take account of the fact that the audience was now in more control of their consumption, and that young audiences in particular had different needs and uses of media. • Other demographic groups, such as older people, should also be catered for. • The need to make entertainment more prominent, without diminishing the offering of challenging output. • The importance of reflecting NI’s particular context including North/South as well as East/West links. • Welcome for the new governance arrangements. o the importance of a clear and strong performance management framework. o the need to engage with all sections of the community. A number of points were raised in discussion, reflecting a range of views: Purpose Remits: • Where was the fun and entertainment? Should this not have greater prominence than a priority within the 2nd Purpose remit? Are the Purpose Remits too worthy and not reflective of the audience need to be entertained? It was noted that this point had been reflected in the online consultation feedback. • The BBC should also provide a vision of what we can be through challenging output, but by striking the right balance so that people did not switch off due to a lack of broad appeal and entertainment. • Was the BBC role in holding society to account missing or not sufficiently explicit? • How does the regulatory framework reflect the BBC’s role in the island of Ireland? Nothing in the Purpose Remits appeared to reflect the particular evolving situation in Northern Ireland with a border and North South links in many aspects of life e.g. sport, business, culture. There is a unique all Ireland arena for broadcasting, and the BBC needed to articulate its position. It was noted that the Audience Council had established links with RTÉ’s Audience Council. • The BBC’s understanding of demographics was questioned, particularly in terms of meeting the interests and needs of older people. This was demonstrated by the decision to end Love Forty (the Radio Ulster programme aimed at senior citizens) as well as the Irish language policy, and the mix of English and Irish in the Late Show with Karen Kirby. • It was important that the first remit was explicit about Sustaining Citizenship and Civil Society for all. The BBC should not aim for the common denominator but meet the diverse needs of all audiences. Citizenship should be understood in its widest sense and not merely in relation to constitutional or government issues. • The BBC has a role to play in connecting people of all types. Sometimes contributors to programmes did not have the opportunity to impart the message that they came on air with, to the detriment of audiences. • The BBC needed to take account of the digital divide. How would older people take part in the digital world? There was a great deal of confusion among consumers regarding digital switchover and what they needed. • It was not clear what ‘cultural excellence’ in the 3rd Purpose Remit meant. • The 4th and 5th Remits (Representing the UK, its nations, regions and communities; Bringing the world to the UK and the UK to the world) needed to be representative of different communities. • ‘Emerging’ communications had in fact already arrived for younger audiences in particular. Young people have left traditional broadcasters behind. Youth programmes tended to be corralled into dedicated slots which did not suit an audience using YouTube and Bebo. Young audiences were able to create their own content, and if the BBC tried to impose quality it could lose these audiences. • There was a concern that if Purpose Remits were not reviewed for 5 years the younger audience would have moved on in terms of media and the BBC would not be able to reach out to them. This would make it difficult to achieve the 1st Remit on Sustaining Citizenship and Civil Society. • The Purpose Remits should go further in terms of stating their aims or ends. For instance, the 1st Purpose Remit should be about Sustaining Citizenship and Civil Society to create a fair and inclusive society. The 4th Remit should state the aim of reflecting different communities to promote mutual understanding. • There needed to be a balance between the broad appeal reflected in the Purpose Remits and programmes which were tailored to a specific audience, such as the farming community. Different sections of the audiences had to have their very specific needs met. The farming community felt that there had been a squeeze on programmes made specifically to cater for their interests, but as licence fee payers they expected more. There was a range of views in the value of some farming output, reflecting the diversity of the audience. • The 6 Public Purposes are, and should be, interrelated. The BBC tended to segment different types of programmes and subjects so that the interrelationships were lost e.g. in news reports “we will leave politics now and move on to education”. • Similarly, religious broadcasting was included in the 4th Purpose Remit, but also applied to the 1st Purpose Remit. Was business specifically represented? It could apply to at least 4 of the Purpose Remits. Business coverage was prominent in the schedules but could be criticised for being entertainment led rather than reflecting reality. Coverage excluded key groups and aspects e.g. women and the social economy. • There was not adequate opportunity for people to take action on the basis of programming e.g. through follow up contact details. • The BBC needed to engage with people outside Belfast as much as possible. • The Ulster Orchestra is a jewel in the crown of cultural life here and the BBC has an obligation to broadcast more of the orchestra’s concerts. • The framework should reflect the fact that the audience was now in control, e.g. using DVDs and internet rather than scheduled TV and radio broadcasts. • There was concern that the Trust approach to downloads for the on demand services was restrictive and not in the interests of licence fee payers. Indigenous Minority Languages Review Audience Council Submission to the Trust A. Introduction The Audience Council for Northern Ireland, building on the work of its predecessor the Broadcasting Council for Northern Ireland, has identified provision for indigenous minority languages as a key audience priority for 2007/08. It is conducting a two stage consultation as a means of informing the BBC Trust’s assessment of appropriate provision for indigenous minority languages. In the first stage of the consultation it received 28 submissions, and also hosted Accountability Breakfasts on 3 and 5 April for representatives of Ulster-Scots and Irish language interests respectively. This submission represents the initial views of the Council with regard to provision for Ulster-Scots and Irish language. It is based on the opinions of licence fee payers expressed within this consultation exercise and also drawing on relevant evidence previously submitted to consultations for Charter Review and Ofcom’s Review of Public Service Broadcasting. B.The BBC Role : Council believes that the BBC has a unique role to play in supporting indigenous minority languages. This is recognised in the BBC Purpose Remit : Representing the UK, It’s Nations, Regions and Communities. Council is encouraged by the remit’s recognition that the BBC ‘has a well-established commitment to support the UK’s indigenous minority languages’ and that ‘continuing and strengthening support from the BBC is crucial to safeguarding this key aspect of the UK’s indigenous cultural heritage.’ Council agrees that the BBC has a duty to safeguard indigenous minority languages which require particular recognition and support to survive and which are key to our cultural heritage. Council recognises that for many people Irish and Ulster-Scots are important expressions of their cultural identity. Language links and underpins this expression through many aspects of life, including family, community activity, the arts, education and beliefs. Linguistic diversity therefore has a resonance with several of the BBC Purposes and Priorities from education and learning through to creativity and citizenship. Council notes that submissions from Irish and Ulster-Scots communities emphasised the value of recognition and affirmation for their language and heritage, and the benefits to society as a whole in engaging with diversity and affirming identity. Council suggests that Northern Ireland is at a particular point in its history and political development where respect for diversity and social cohesion are critical to civil society. The BBC has a key role to play in reflecting linguistic diversity and the wider cultural context to a broader audience and to promote understanding and debate about different aspects of life in NI. This is very much in accord with its public purpose to “reflect the many communities that exist in the UK … based on geography, on faith, on language … to stimulate debate within and between communities of the UK…” Council also notes the fuller official recognition which the languages have in the Good Friday Agreement, St Andrews Agreement and the European Charter for Regional Or Minority Languages. Irish language, like Welsh and Scottish Gaelic, is a Part III language whilst Ulster-Scots has Part II status, and a road map has been published by the Ulster-Scots Academy Implementation Group with the aim of achieving Part III status. Council believes that the BBC’s role is particularly important in Northern Ireland as there is no provision in the commercial sector and there are no plans to address this. Council notes increased access in Northern Ireland to TG4, the Irish language TV channel based in the Republic of Ireland. However, it also notes Ofcom’s Statement On Programming for the Nations and Regions as part of its Review of Public Service Broadcasting, which states that “audiences in Northern Ireland will have distinct needs that cannot be met by TG4 programming alone.” C. Demand for Enhanced Provision : There was a strong message from the two Accountability Breakfasts and consultation submissions that current provision does not meet current audience needs or demand in either volume or range. This message was reinforced by the BBC Trust’s independent survey on the audience response to Purpose Remits and Priorities. The survey measures the gap between how important respondents believe a priority is and how well they think the BBC performs. It showed a very large gap of 37 % points between importance and performance for the priority “The BBC supports languages with programming and other content” in Northern Ireland 1. This is one of the largest performance gaps in the survey, albeit necessarily based on a small sample. 1 Trust Purpose Remit Consultation : Licence Fee Payer Quantitative Research (BMRB). Sample size for Northern Ireland was 59. Evidence from the 2001 census showed that there were 167,000 people with some knowledge of Irish, representing over 10 % of the NI population. This compares with 92,000 people in Scotland with some Gaelic language ability, just 2 % of the population of Scotland.2 Moreover, since 2001 there has been a marked growth in the number of people with an interest and ability in Irish, with young people in particular driving demand. In 2006 there were 4000 children attending Irish medium schools, and again this represents a considerable growth in recent years. However, Council notes the significant disparities in the volume of hours of output between Irish and Ulster-Scots on one hand and Welsh and Scottish Gaelic (the other Part III languages under the European Charter) on the other. Council awaits further Trust research on the same. Given the disparities in spend Council was not surprised by the results of the BBC Trust Survey on Purpose Remits which showed that the gap between importance and performance for supporting indigenous minority languages was significantly greater for Northern Ireland than for Scotland and Wales. Whilst all three languages are considered important, the performance for Northern Ireland was deemed to be considerably lower. (Again this is based on a small sample for Northern Ireland). 3 Council recognises the view that the Irish language experienced a historic underprovision in output which, in spite of considerable progress in the volume and scope of output in recent years, has never been fully addressed. Council believes that this is the time for provision to be reassessed against the principles outlined in the BBC’s Public Purpose Remits. This reassessment provides an opportunity to demonstrate fairness in allocation of funds to the various indigenous minority languages according to audience need. Council notes that it is more difficult to provide accurate figures for speakers of Ulster-Scots as it was not included in the 2001 census. The Life and Times Survey in 1999 reported that 35,000 people or approximately 2 % of the population in Northern Ireland language spoke Ulster-Scots or knew someone who did. However, the Ulster-Scots Agency argues that this is a reflection of the low esteem accorded to the language as well as a lack of awareness. The Ulster-Scots Language Council estimates around 100,000 speakers in Northern Ireland. Whilst Council understands the difficulty in measuring precise demand for Ulster-Scots it does note that since the Life and Times Survey there has been 8 years of significant development and activity and consequent growth in awareness and interest. The place of Ulster-Scots within the community has also changed dramatically with recognition in the St Andrews Agreement and the European Charter for Regional Or Minority Languages, the creation of a 2 2001 Census 3 Trust Purpose Remit Consultation : Licence Fee Payer Quantitative Research (BMRB). North South language body, a new curriculum development unit and generally raised awareness. Moreover, Council understands that the two languages are also strong expressions of cultural identity and heritage in Northern Ireland. It notes that research for Ofcom’s Review of Public Service Broadcasting, Phase 3, found that :”a sense of Ulster Scots identity is as likely to be based on an association with music, heritage and other cultural factors as it is with language. We believe that there is a need within Northern Ireland to have this sense of identity appropriately reflected and portrayed on PSB channels.” Council believes that Ulster-Scots is at a particular stage of development whereby it needs programmes and content to raise awareness which will in turn stimulate demand and provide greater public value. It is essential therefore that there is parity of commitment to the two languages and the communities which they represent. This too, is recognised in research : “There was acknowledgement among those surveyed that if there were going to be programmes in Irish, there should also be programmes for the Ulster- Scots community.”4 D. Nature Of Provision : The Audience Council consultation asked for licence fee payers’ views on the type of provision that was required to serve the needs of each language. The responses provide useful information about the range and balance of needs and how they might best be served. Nonetheless, Council believes that as well as taking these views into account, there is a need for BBC management to carry out more detailed work to understand the various needs within each language community and how they might best be served. Management plans should reflect the range of needs through different platforms, genres and formats. It is important that plans adapt to changes in need over time and that they extend the benefits of new technology. There was broad consensus that the two languages were at different stages of development and had some specific needs in relation to broadcasting. Some of the main themes from the consultation are reflected below : Irish Language : 4 Ofcom Review of Public Service Broadcasting, Phase 3 Council recognises that there is a demand for a greater volume of quality programming in Irish, to serve a variety of audience needs. It observes a consensus of opinion among Irish language speakers that the greatest gap in provision is on television. There is also a strong sense that online provision should increase significantly to serve a wide range of needs, including those of learners and younger people. Overall radio was judged to be the medium which required least increase in programme hours, although some uplift would be welcomed. Council believes that Irish language provision must reflect the wide range of needs within the language community. For instance, fluent speakers require a wide variety of programmes across different genres to reflect their diverse interests and to give the service depth. In contrast more accessible programming is required for less fluent speakers. It was noted that the strongest demand for Irish language programming came from young audiences and services should take that into account, without ignoring the needs of other sections of this diverse audience. Care should be taken to reach this audience through new technology and output that reflected their particular preferences and consumption patterns, particularly through the use of new technology and interactivity. Council notes very positive feedback on the quality of Irish language programmes overall. However, concerns have been expressed about the quality of spoken Irish in some circumstances. A balance must be struck which reflects the need for accessibility but also recognises that broadcasting is influential in setting standards. There were some concerns about the standard of pronunciation and spelling of Irish names and words on mainstream programmes. There is also a need for programmes and content in ‘the mainstream’ which are accessible to a broader audience, including people with little or no knowledge of the language. There was a range of suggestions about genres and formats, including a news programme , a news online service, cartoons dubbed into Irish, and more documentaries. Council notes the strong interest in learning Irish which needs to be represented in provision appropriate to different age groups. It believes that the BBC should recommence work on BBC Jam provision for Irish language as there is no apparent competitive impact and a gap in provision. Young people in Irish and English medium schools looked to the BBC to provide this public service. Council suggests that consideration should be given to the needs of children in Irish medium education. Council notes the suggestion that more use could be made of the archive of high quality programmes already broadcast, through on demand services. The consultation suggested that care should be taken when scheduling to avoid clashes with other key Irish language services such as TG4’s 7 pm news service. The view was expressed that the BBC should play a role in fostering Irish language initiatives, for instance perhaps by broadcasting part of the Radio Failte schedule. Others suggested that programmes should be made available free of charge to Raidio na Gaeltachta. English subtitles were considered important as a way to help non-speakers and learners access Irish language programmes. Some submissions suggested that digital options should be pursued to allow viewers to opt in or out of subtitles according to their needs. More targeted promotion of output would help audiences to access programmes of interest to them. The BBC could make use of partnerships to help promote its services to the target audience. Council noted wide support for a policy for Irish language, detailing the BBC’s commitments. Many felt that an annual review against clear targets was appropriate. Ulster-Scots There is a need for more provision for Ulster-Scots across the breadth of output. Ulster-Scots programming is accessible across the community and therefore should be part of mainstream output. For instance an eclectic music programme could be presented in Ulster-Scots and be valued by a wide audience in its totality. It is important that the Ulster-Scots language and cultural identity is affirmed within society, and broadcasting has a key role to play in this. There was some sense that Ulster-Scots was stigmatised in the media, reinforcing stereotypes. It is recognised that radio programmes play a key role, especially for learners, and that this is the platform where most provision will be expected. Submissions tended to suggest that 30 minutes per day at this stage would be deemed appropriate. The volume and quality of online provision should be enhanced significantly. Submissions looked for a broader and deeper range of content, including a focus on language. Online content should be of a high quality, reflect the language status, and be regularly refreshed. There was an interest in a small increase in television output. It was further noted that television output would be important for young people in particular. Whilst it is recognised that most Ulster-Scots speakers were from older age groups, the broadcasting need was for programmes which allowed young people to hear and associate with the language as well, and thus stimulate demand. Council notes that curricula for primary and post-primary education including GCSE are being prepared and consequently there will be a need for BBC educational programmes in time. There is recognition of the value of programmes which celebrate or explore Ulster-Scots heritage in all of its diversity. However, it is also noted that cultural programmes do not address the need for language programming and there is a need for both. There needs to be greater variety of content across different genres and beyond magazine programming. There was concern that output and content did not reflect the current status of Ulster-Scots as a European regional language, for instance by referring to it as a ‘tongue’ rather than a ‘language’. The quality of output (programmes and websites) was critical. A lack of structure in A Kist o Wurds, for instance, struck audiences as reinforcing a ‘homespun’ stereotype that did not reflect the community. It was also important to present in a natural voice. Output needs to reflect the full linguistic range of Ulster-Scots and not just the lighter more accessible forms. Subtitles are appropriate at the more differentiated end of the spectrum. Consultees expressed the view that the BBC should work more closely with the Ulster-Scots community to train people to produce and present their own programmes. Ongoing partnerships should be established with the community to help better understand developing needs and to tap into the range of material being generated within the community. More use of archive material would be welcomed and would enhance provision. More regular scheduling would be of benefit to listeners. Partnerships would be a key way to enhance provision in a cost effective way. For instance, BBC Northern Ireland might broadcast more programmes from BBC Scotland, or it might collaborate with European broadcasters to dub cartoons. Again, more targeted promotion of output would help audiences access programmes of interest to them. There needs to be a clear 3-5 year strategy and plan for Ulster-Scots programmes with annual progress monitoring. E. Displacement of English-language programmes : Council acknowledges there can be a displacement factor for audiences when Irish language programmes are scheduled in place of English language programmes. Ulster-Scots is largely accessible to mainstream audiences, except at the highly differentiated end of the linguistic spectrum and so this is much less of an issue. Council believes that plans to enhance provision for Irish should take into account the need to avoid undue displacement for audiences who cannot understand the language. However, this is not in itself a reason to restrict provision, but rather a challenge of providing the best possible balance of output across different platforms and schedules to meet the diverse needs of the audience. Consultation submissions have suggested that even with incremental growth the volume of programmes in Irish will not have a significant displacement effect. Council further notes that one of the key needs for indigenous minority language coverage is to provide access and exposure to a wide range of people, including those not already aware of or engaged with them. Appropriate provision should take account of this need by planning accessible and informative programmes for a broader more general audience. F. Funding and Partnerships : Council believes that additional funding should be made available to BBC Northern Ireland to provide incremental enhancements in provision for Irish and Ulster-Scots. There should be greater parity of spend between Irish and Ulster-Scots, and this should aim to reduce the gap in spend with Scottish Gaelic and Welsh. Council believes that it is appropriate and important that the principle of additionality for Welsh and Scottish Gaelic is also observed for Irish and Ulster-Scots. This will enable BBC Northern Ireland to meet the needs of Irish and Ulster-Scots speakers without undue displacement of other programmes which also have a public value. There was considerable consensus among submissions that the two languages should not have to compete for the same funding stream, but should be developed in a context of diversity. Council supports this view. Council supports external funding and partnerships with other providers which deliver benefits to licence fee payers in Northern Ireland. However, the BBC has a unique role and obligations under its Public Purposes which must be fulfilled with or without external funding. Council notes Ofcom’s submission to the consultation, based on its Phase 3 Review of Public Service Broadcasting. Council understands the added benefits that TG4 brings to Irish language speakers in Northern Ireland, but agrees that it is not appropriate for the provision of services from the Republic of Ireland to be the whole solution for Irish language broadcasting in Northern Ireland. It believes that, in line with its Public Purposes, the BBC has a unique role to play in reflecting the different communities across the UK, stimulating debate and safeguarding cultural heritage. This provision from the BBC should seek to close the gap with Scottish Gaelic and Welsh. Council believes there should be proactive engagement to maximise the potential of partnerships and extend the provision and range of both Irish Language and Ulster-Scots programmes. It supports the work of the Irish Language Broadcast Fund and notes the view that similar provision should be available for Ulster-Scots. Council also notes the enthusiasm in both communities for partnerships to extend the range of output in a value for money way. For instance, the Ulster- Scots community would be interested in more programmes from BBC Scotland. G. Conclusions and Way Forward On the basis of its consultation the Audience Council believes that current provision for indigenous minority languages does not adequately reflect the needs of audiences in Northern Ireland. The BBC has a unique role to play in safeguarding indigenous minority languages that is clearly defined in its Purpose Remit. The Audience Council believes that there should be incremental growth in provision for both Irish language and Ulster-Scots, closing the gap between provision for these languages and other comparable indigenous minority languages in the UK, such as Scottish Gaelic. An incremental approach means that account can be taken of the wider community’s ability to absorb the impact of any increased output. Council notes that although enhanced provision carries real value to audiences the cost over a 5 year period is relatively very small. It is important that resources are provided in a manner that does not cause the two languages to compete with each other for funding, or cause a diminution in service in English. The principle and precedent for additional funding has been set for Scottish Gaelic and Welsh and should now apply to Irish Language and Ulster-Scots. The consultation demonstrated that there are improvements and changes to provision which can be made in the shorter term, bringing significant benefit to audiences. Council suggests that these should be given early consideration and implemented in a timely way. These include : Quality : There are opportunities to address concerns in the Ulster-Scots community about the quality of provision, including the structure and presentation style of A Kist O Wurds. Further consideration might also be given to achieving a very high standard of spoken Irish whilst ensuring that programmes remain accessible. BBC Jam : Council notes the disappointment in the Irish language community regarding the suspension of BBC Jam. It observes that there is no apparent commercial interest in this particular aspects of BBC Jam and is therefore of the view that in this instance the Trust should allow work to recommence on these modules. Dual language commentary : Council notes the opportunity for more dual language (Irish and English) commentary for sports events on digital television. This would not result in any displacement for other sections of the audience. Archive material : Council also noted the enthusiasm for an increase in archive material available on demand. This would enhance provision to those with an interest in Irish language and Ulster-Scots without any displacement for other sections of the audience. Council notes the Online : Council notes the clear demand for further online provision for both Irish language and Ulster-Scots output, and the particular benefits this can bring to different sections of these communities, such as learners and younger audiences. It notes that enhanced online provision has no displacement impact for other sections of the audience. Council therefore believes that online provision should be enhanced significantly in the short to medium term and that appropriate funding should be provided for this. Council notes the wide support in its consultation for strategic plans for provision of Irish language and Ulster-Scots output, which would be subject to annual review. Council thanks the various organisations and individuals who contributed to its consultation. It wishes to reflect further on the consultation responses, to understand the research which the Trust is currently engaged in, and to consider whether any further audience research would be helpful in informing the Trust’s decision. APPENDIX 1 : NOTES OF THE ACCOUNTABILITY BREAKFAST, 3 APRIL BBC Audience Council for Northern Ireland Minority Indigenous Languages Consultation Accountability Breakfast : Ulster Scots 3 April 2007 Attendees : BBC Trust and Audience Council for Northern Ireland : Rotha Johnston, National Trustee for NI Clifford Harkness, Audience Council for NI Rick Hill, Audience Council for NI Aodan MacPoilin, Audience Council for NI Carrie Matchett, Head of Governance and Accountability, NI Trish Davey, Accountability Manager, NI BBC NI : Peter Johnston, Controller NI Mark Adair, Head of Public Policy and Corporate Affairs Kieran Hegarty, Head of Learning and Interactive Guests : Mrs Anne Smyth, Chairman, Ulster Scots Language Society Dr Clifford Smyth, Ulster Scots Language Society Dr Roy Hewitt, Treasurer, Ulster Scots Language Society Dr Linda Hagan, Director, Ulster Scots Curriculum Development Unit, Stranmillis University College Ms Jackie Reid, Ulster Scots Curriculum Development Unit, Stranmillis University College Mr Andrew Smith, Ulster Scots Heritage Council Mr John McIntyre, Ulster Scots Language Council Mr Jim Millar, Director of Language and Education, Ulster Scots Agency Mr Mark Thompson, Chair, Ulster Scots Agency Dr Philip Robinson, Ulster Scots Language Agency Notes 1. Introduction Rotha Johnston, the BBC National Trustee for NI, welcomed guests to the meeting. She explained that the purpose of the Accountability Breakfast was to gather feedback from people with an interest in Ulster-Scots with respect to the Audience Council’s consultation on Indigenous Minority Languages. The role of the National Trustee and Audience Council for Northern Ireland at this meeting was to listen to the feedback so that it could advise the BBC Trust. Rotha Johnston explained that representatives of BBC NI management were also present in a listening capacity rather than to respond to feedback. Controller, Northern Ireland, Peter Johnston, added that he and his colleagues from BBC NI management were pleased to be in attendance to listen to the views about Ulster-Scots provision. The National Trustee gave a presentation which explained the BBC’s new governance framework and tools and the roles of the BBC Trust and the Audience Council for Northern Ireland. She explained the Purpose Remits and Service Licences and the consultation timeline in 2007. The National Trustee explained that the Audience Council for Northern Ireland is leading a two stage consultation process as a means of informing the BBC Trust’s assessment of appropriate provision for indigenous minority languages. The Council wishes to understand audience needs and concerns in this area and to identify key developmental priorities or considerations for BBCNI's minority language output over the next 3-5 years. 2. Discussion of Consultation Questions Guests were invited to feedback their views on the consultation questions. The following notes reflect the range of views raised in discussion, and do not suggest that there was consensus on every point. 1. How do you assess adequacy of current minority indigenous language provision from BBC? • Distribution across television, radio, online? • Volume? • Content? • Presentation style? • Does output reflect needs, interests and concerns of language users and learners? There is a need for greater provision for Ulster-Scots and for a wider range of programmes across different genres. It is important that Ulster-Scots is presented within mainstream programmes, as part of the general programming mix. Unlike Irish, the language can be generally understood by the wider audience in Northern Ireland. The ‘normalisation’ of Ulster-Scots within the schedules is key to affirming the language and culture and to ensuring that it is heard by the wider audience, including young people. Ulster-Scots could be woven in more comfortably to the existing schedule, helping to move away from stereotypes and to find a more natural space. There was general consensus that radio is the most important medium for language output. Ideally the language would have its own radio station but the resource limitations were recognised. It was suggested that at this stage 30 minutes of Ulster-Scots per day was required, rather than 30 minutes per week. More resources are required to provide a greater range of programmes. The demand for radio was evidenced by the high level of interest (28 enquiries) about the 6 community radio licences secured from Ofcom. Television coverage is also important but there was recognition that it was an expensive medium and the view was expressed that there was not yet sufficient capacity in the BBC or the community to resource it fully. However, it is an important medium for younger people. The community also looks to online provision as an important resource. The needs of young people needs to be reflected in output. There was, however, concern that the website did not reflect the current European status of Ulster- Scots as a language. There is greater potential within the Ulster-Scots community (for instance in drama and comedy) that BBC NI has not yet tapped. Training is required from the BBC to release this potential and to enable the authentic voice of Ulster-Scots to be better reflected. The Ulster-Scots community wishes to present itself more directly to the audience rather than be interpreted and represented by people outside the community. Increased commitment to Ulster-Scots language and culture is sought. Programmes about the Ulster-Scots culture are a key way in to the language for a wider audience. There are concerns about the presentation style on A Kist O Wurds which were widely shared in the Ulster-Scots community. A lack of structure in the programme, especially in loosely chaired discussions, could seem cheap or lazy and reinforce stereotypes. The quality of verbal presentation is very important on a language programme, and there is a widely shared view that presentation needs to be more natural. Quality is as important to the Ulster-Scots community as quantity of output. Programmes and content which give out the wrong messages are detrimental to the needs of Ulster-Scots. BBC NI needs to grow its knowledge, expertise and capacity for Ulster-Scots to the same level as exists for Irish language. This should involve continued working in partnership with the Ulster-Scots community. 2. What Criteria or considerations should inform BBC’S commitment to indigenous minority language services in NI? • How much importance should BBC attach to audience size in making investment decisions ? • How should BBC evaluate its commitments to language services against the requirement for other broadcast priorities? • What should the balance be between radio, television and online in next 3-5yrs? • Should there be equivalence in expenditure and output between Irish and Ulster Scots? It was noted that television programmes with a cultural theme such as Nicht O Ulster Scots and Jim Fenton’s programme drew significant audiences. The Ulster-Scots community is keen to understand the level of audience interest that makes a programme viable. It is felt that there is a potential audience for high quality material which meets the needs of target groups. Moreover, television exposure brings its own affirmation and enables people to engage with their Ulster-Scots identity. The group attending the Accountability Breakfast represents a small part of the Ulster-Scots community. Opportunities to engage with the wider community on these matters would be welcomed as of mutual value. BBC as a public service broadcaster has a unique responsibility towards indigenous minority languages. The BBC should respond to the needs of its licence fee payers and also to the current climate of enthusiasm for Ulster- Scots. The case for equivalence should be understood on the basis of equal rights, recognised in legislation and policy. Although the BBC is not bound by the European Charter for Regional Or Minority Languages it has a duty to licence fee payers. Given the close association between language and cultural identity, unequal provision promotes a sense of a second class culture which is detrimental to social cohesion. Like all public services the BBC should deliver in a basis of equality, with all licence fee payers entitled to affirmation of their identity. 3. What Criteria or considerations should inform BBC’S commitment to indigenous minority language services in NI? • Do Irish and Ulster Scots speaking audiences require different broadcast strategies and types of provision? • Should English language subtitles be included? • Are there subject areas, curriculum or other needs that should inform the prioritisation of BBCNI expenditure • What should be the balance between education/learning, cultural and entertainment programming? • What importance/priority should be given to broadcast partnerships in the delivery of minority language services? Ulster-Scots is at a different stage of development to the Irish language. The assessment of appropriate provision for the Ulster-Scots language should not be demand-led but based on a principle of equivalence with Irish. The provision of more Ulster-Scots programming would in itself stimulate demand as awareness grows. If anything, the less developed language should be the one to receive most funding. Output should reflect the different registers of Ulster-Scots, from very accessible dialogue to full Ulster-Scots, which might merit subtitles. There is a danger of focussing unduly on lighter use of Ulster-Scots which does not reflect its status as a language. There is a need for education support, as curricula are being developed for primary and post-primary levels. However, funding for this and Ulster-Scots provision in general is not just the responsibility of the BBC. The BBC might form partnerships with government and other funding bodies, such as the European Media Fund, to enhance Ulster-Scots provision. The idea of repeating BBC Scotland programmes in Northern Ireland is welcomed as a cost effective way to meet the needs of this audience. There are opportunities to work with other minority languages in Europe in a cost effective way, for instance to produce European cartoons in different languages. The audience for education and learning is likely to be broadly the same as the one interested in cultural and entertainment output. However, it is important to understand that the range of needs should be served and that the provision of cultural output does meet the need for language programming. It is necessary to consider the needs of younger audiences, taking account of their media consumption preferences, for example, generating and sharing content on the web, using YouTube, podcasts, and listening to niche radio stations. Email marketing campaigns could raise awareness. 4. How should the BBC Trust measure/define “appropriate provision” in the delivery of indigenous minority language services for BBC audiences in Northern Ireland? • How relevant are expenditure and output relativities with BBC commitments to minority languages in Scotland and Wales? • What do you feel would represent an appropriate level of funding for indigenous minority language output – should these services receive new/fully additional monies (as suggested in the Broadcasting Council’s submission to DCMS)? • If additional monies are not available for indigenous minority language services from BBCNI, which/if any elements of existing or planned services would you displace, adjust or delay in order to facilitate the development of such output? Fully additional funding is required to ensure that the needs of indigenous minority languages are met, without competing with other needs. Unlike other languages, indigenous minority languages have a particular need for support to safeguard them and their place in our cultural heritage from threat. Irish and Ulster-Scots should not compete for funds but have equivalent ringfenced allocations. Funding for Ulster-Scots should approach provision for Scottish Gaelic. It is felt that Ulster-Scots in this community is closer to the position of Scottish Gaelic than Scots in Scotland. 5. How should the BBC Trust measure/define “appropriate provision” in the delivery of indigenous minority language services for BBC audiences in Northern Ireland? • With what frequency should the BBC Trust formally review the Corporation’s minority language provision and how might/should performance be measured? • Should the BBC develop policies detailing its commitments to indigenous minority languages – what should these include? A 3 – 5 year strategic plan for equality of provision is necessary. It should incorporate targets and measures for annual review. BBC NI should have policies with regards to the Ulster-Scots language. 3. Conclusion The National Trustee, Rotha Johnston, explained the next steps for the Review of Indigenous Minority Languages. Local consultation activities will be complemented by research which is being undertaken by the BBC Trust and will inform its decision-making about language services at local level and across the UK. A second-stage consultation (which will draw upon Trust research and audience feedback to this initial review exercise) will take place in mid-summer 07 and final BBC Trust decisions are expected in autumn 07. The first stage of the consultation would close on 20 April, having been extended from 11 April to accommodate the holiday period. Rotha Johnston thanked participants for their time and important contributions to the debate. Guests had received information packs with details of the consultation and were invited to make submissions by 20 April. APPENDIX 2 : NOTES OF THE ACCOUNTABILITY BREAKFAST, 5 APRIL BBC Audience Council for Northern Ireland Minority Indigenous Languages Consultation Accountability Breakfast : Irish language 5 April 2007 Attendees : BBC Trust and Audience Council for Northern Ireland : Rotha Johnston, National Trustee for NI Clifford Harkness, Audience Council for NI Rick Hill, Audience Council for NI Aodan MacPoilin, Audience Council for NI Carrie Matchett, Head of Governance and Accountability, NI Trish Davey, Accountability Manager, NI BBC NI : Peter Johnston, Controller NI Mark Adair, Head of Public Policy and Corporate Affairs Kieran Hegarty, Head of Learning and Interactive Guests : Déaglan Ó Doibhlinn Carn Tóchair [Co. Derry] Seán Mac Giolla Ceara Comhalbas Uladh Tomás Ó Ruaire Foras na Gaeilge Pilib Mac Cathmhaoil An tIúr, Co an Dúin Janet Muller POBAL Gráinne Gillen Nua-Media Co Fhear Manach Réamonn Ó Ciaráin Gael Linn Marcas Mac Ruairí Glór na nGael Pól Deeds An Droichead Albert Fry Cumann Chluain Ard Séan Moragáin Séamas Ó Donnghaile Comhairle na Gaelscolaíochta Bunscoil Mhic Reachtain, Béal Feirste Paddy Kelly Caltúrlann Robert McMillen Irish News Conchubhar Ó Liathán LÁ 1. Introduction Rotha Johnston, the BBC National Trustee for NI, welcomed guests to the meeting. She explained that the purpose of the Accountability Breakfast was to gather feedback from people with an interest in Irish language with respect to the Audience Council’s consultation on Indigenous Minority Languages. The role of the National Trustee and Audience Council for Northern Ireland at this meeting was to listen to the feedback so that it could advise the BBC Trust. Rotha Johnston explained that representatives of BBC NI management were also present in a listening capacity rather than to respond to feedback. Controller, Northern Ireland, Peter Johnston, added that he and his colleagues from BBC NI management were pleased to be in attendance to listen to the views about Irish language provision. The National Trustee gave a presentation which explained the BBC’s new governance framework and tools and the roles of the BBC Trust and the Audience Council for Northern Ireland. She explained the Purpose Remits and Service Licences and the consultation timeline in 2007. The National Trustee explained that the Audience Council for Northern Ireland is leading a two stage consultation process as a means of informing the BBC Trust’s assessment of appropriate provision for indigenous minority languages. The Council wishes to understand audience needs and concerns in this area and to identify key developmental priorities or considerations for BBC Northern Ireland's minority language output over the next 3-5 years. 2. Discussion of Consultation Questions Guests were invited to feedback their views on the consultation questions. The following notes reflect the range of views raised in discussion, and do not suggest that there was consensus on every point. 1. How do you assess adequacy of current minority indigenous language provision from BBC? • Distribution across television, radio, online? • Volume? • Content? • Presentation style? • Does output reflect needs, interests and concerns of language users and learners? Although the overall quality of Irish language programming is high, there is a need for greater provision to meet the needs of this section of the audience. There is a particular need to increase output on television. The Flight Of The Earls was welcomed as a very high quality programme – but more was required across different genres. For instance, apart from Seanchai there was no Irish language drama on television. Irish language programmes still seem to be perceived as an exception within the schedule. Output should reflect the needs of audiences at different levels of knowledge of Irish, from learners to fluent speakers. Programmes should cover a range of subject matter beyond the language itself. Fluent speakers have a particular need for a wide range of programmes across different genres that reflect their interests and needs. Provision should take account of the broad needs of Irish-speaking families. Irish medium schools need an attractive schedule of programmes for children on television. Online provision is also very important for younger sections of the audience. High quality online content, such as Colin and Cumberland, may not reach its potential audience due to lack of promotion on other platforms, especially television. Irish language needs to be reflected in mainstream programmes. It is important that people who do not speak Irish come into contact with the diversity of language here. For instance, when people use Irish names this should be reflected in phone-in programmes. More could be done to promote the range of Irish language programmes that is available. Welsh speakers have their own online news service whereas Irish has no profile on the bbc.co.uk/ni news service. The Irish language Act demonstration in Belfast received insufficient news coverage. Radio provision is appreciated but there needs to be greater volume. The main weekday Blas slot might be reconsidered as it coincides with TG4 news. There is some concern with the quality of spoken Irish and other Celtic languages on the media. Standards are very important as they inform how learners will use the language. 2. What Criteria or considerations should inform BBC’S commitment to indigenous minority language services in NI? • How much importance should BBC attach to audience size in making investment decisions ? • How should BBC evaluate its commitments to language services against the requirement for other broadcast priorities? • What should the balance be between radio, television and online in next 3-5yrs? • Should there be equivalence in expenditure and output between Irish and Ulster Scots? The level of output should reflect the proportion of the audience which could understand Irish – so at least 15 % of programming should be in Irish. Future provision should take account of an historic underspend on Irish in the past. Audience size is difficult to measure for Irish language programmes due to the sample sizes involved. However, the BBC has a responsibility for supporting Irish under its Public Purposes and therefore criteria should reflect what is needed to actively promote and reflect the diversity of languages, rather than look just to audience size. Others considered spend per speaker too low, relative to Scottish Gaelic and Welsh. Another view was that Irish language broadcasting is a legislative responsibility which should be covered by the draft Irish Language Act. The BBC should not take on board this responsibility. The BBC should take account of what the audience wants. For instance, listeners enjoyed Caschlar and were disappointed that it was shortened. 3. What Criteria or considerations should inform BBC’S commitment to indigenous minority language services in NI? • Do Irish and Ulster Scots speaking audiences require different broadcast strategies and types of provision? • Should English language subtitles be included? • Are there subject areas, curriculum or other needs that should inform the prioritisation of BBCNI expenditure • What should be the balance between education/learning, cultural and entertainment programming? • What importance/priority should be given to broadcast partnerships in the delivery of minority language services? It is acknowledged that Irish and Ulster-Scots are at different stages of development and have different needs such as supporting Irish medium education. There is no need for equivalence between Ulster-Scots and Irish. Proportionality is a better guide to allocating spend. Irish should be compared with other Part III languages under the European Charter, such as Welsh and Scottish Gaelic. The Committee of Experts’ Monitoring Report for the European Charter had noted that tying Irish to Ulster-Scots had delayed some of its development. Languages should therefore be served in relation to their own circumstances. There are opportunities for more Irish language commentary as a digital option for sport. Another suggestion was for an Irish language soap with English subtitles. Partnerships can help to enhance provision through additional funding. The BBC should continue to seek funding from the Irish Language Broadcasting Fund. However, funding secured through partnerships should not replace funding from the BBC. Partnerships can also help in other ways. For instance, a live link with Radio Failte would be of benefit to the production staff on the Irish language station. BBC NI might work with Foras Na Gaeilge on opportunities for promoting its output more widely. English subtitles would be welcomed. Irish subtitles would also be helpful to allow learners to follow native speakers more easily. 4. How should the BBC Trust measure/define “appropriate provision” in the delivery of indigenous minority language services for BBC audiences in Northern Ireland? • How relevant are expenditure and output relativities with BBC commitments to minority languages in Scotland and Wales? • What do you feel would represent an appropriate level of funding for indigenous minority language output – should these services receive new/fully additional monies (as suggested in the Broadcasting Council’s submission to DCMS)? • If additional monies are not available for indigenous minority language services from BBCNI, which/if any elements of existing or planned services would you displace, adjust or delay in order to facilitate the development of such output? There was consensus that additional funding is required to support Irish language programmes. Indigenous languages require particular support to protect them and their place in our cultural heritage. Irish language should receive a guaranteed level of funding on a par with other Part III languages, Scottish Gaelic and Welsh. The budgets for particular genres, such as Entertainment and Education, should allow for Irish language provision. 5. How should the BBC Trust measure/define “appropriate provision” in the delivery of indigenous minority language services for BBC audiences in Northern Ireland? • With what frequency should the BBC Trust formally review the Corporation’s minority language provision and how might/should performance be measured? • Should the BBC develop policies detailing its commitments to indigenous minority languages – what should these include? There should be a formal review of indigenous minority language provision once a year. Policies should reflect the number of Irish language speakers as a proportion of the community. 3. Conclusion The National Trustee, Rotha Johnston, explained the next steps for the Review of Indigenous Minority Languages. Local consultation activities will be complemented by research which is being undertaken by the BBC Trust and will inform its decision-making about language services at local level and across the UK. A second-stage consultation (which will draw upon Trust research and audience feedback to this initial review exercise) will take place in mid-summer 07 and final BBC Trust decisions are expected in autumn 07. The first stage of the consultation would close on 20 April, having been extended from 11 April to accommodate the holiday period. Rotha Johnston thanked participants for their time and important contributions to the debate. Guests had received information packs with details of the consultation and were invited to make submissions by 20 April.