Media essays

The ABC of a nation -- Australia's identity through independent, national broadcasting
What is the ABC's role in recording national identity?
By Kay Roberts

Introduction
From its inauguration in 1932, when federal parliament decided a national broadcasting service would have huge potential for shaping a nation, the Australian Broadcasting Corporation (formally Commission) has played a significant role in shaping our national identity. This piece provides an overview of the ABC beginning with the Charter contained in section six of the Australian Broadcasting Corporation Act 1983.
There is an extensive source of references on the ABC - Annual Reports, Editorial Policies and other corporate publications, online articles, interviews and speeches, historical books and sociological essays. There are also website publications that devote space to ABC issues.
The ABC is a survivor. There is always someone ready to protect, defend or criticise its vital role in the Australian community. Australia's identity is enriched and promoted through the ABC just as the Charter requires.

The ABC Charter
Functions and duties
The ABC's Charter sets out the fundamental functions and duties of the Corporation and is guaranteed in legislation (see attached copy of the Charter). It requires the ABC to provide:
o Innovation, involving a willingness to take risks, be inventive and open to fresh ideas both inside and outside the ABC.
o Comprehensiveness, in both mainstream and specialist broadcasting with a balance between programs of wide appeal and specialised programs.
o High standard across all program genres and forms.
o National identity and cultural diversity that expresses Australia's social, cultural and regional variance.
o Entertainment and information that engages, amuses, analyses and challenges the Australian community.
o Promotion and encouragement of the arts and educational programs.
o Independence to make its own decisions on programs and services on behalf of the Australian people, free from government interference or any private interest and control.
If the Charter were not incorporated in legislation the ABC could operate entirely differently. The Charter provides a clear benchmark for all to apply when assessing how effective the ABC is in recording our identity.

Statement of purpose
The Charter was reaffirmed in a Statement of Purpose by the ABC Board in 1995 - “As Australia's national broadcaster and major cultural organisation, the central objective of the ABC is to extend the range of ideas and experiences available to Australians and contribute to the development of values within the community and a sense of national purpose and identity” (ABC, Editorial Policies 1995).
Government challenges guiding principle
One of the eight guiding principles contained in the Statement of Purpose, is to provide 'the best, most reliable and independent coverage and analysis of contemporary issues, ideas and international, national, State, territory and regional events'. This was challenged in May 2003 when former Minister for Communications, Richard Alston, accused the 'AM' program of 68 instances of bias in its coverage of the Iraq war. He argued the ABC had not kept faith with the Charter in that the program was biased, with anti-coalition and anti-American opinion in its coverage of the Iraq conflict. These allegations were investigated by the ABC's Independent Complaints Review Panel (ICRP) that accepted only two of the complaints made.
In an interview with Barrie Cassidy for the ABC's 'Insiders' program (1/6/03), when asked about editorial content of the ABC in regard to coverage of the Iraq conflict, Senator Alston said “This whole debate is not about the Government trying to shape the ABC's coverage that would be interference of the worst kind. It's really about accountability, in other words if the ABC has editorial guidelines, if it has obligations under the ABC Act to provide fair and impartial coverage then it is legitimate for people to ask whether or not those standards are being maintained.”
“The Review found 'AM' reported 'reliably and competently' over 30 days of war coverage and that none of the Minister's complaints amounted to evidence of systemic anti-American or anti-coalition and partisan reporting. The review executive also noted that war coverage is a most testing and vulnerable time for a broadcaster's reputation and that, in this test, 'AM' provided rigorous and reliable analysis of the Iraq conflict” (Lateline, ABC TV 21/7/03).

ABC Editorial Policies
The ABC would appear to publish the most extensive set of broadcasting guidelines available in Australia, including mandatory requirements such as the ABC's Code of Practice, program objectives and general policies. These policies allow program makers and the public to “understand the editorial and ethical principles that are fundamental to the ABC. Most importantly, they seek to reflect the standards that ABC audiences expect of their national broadcaster” (ABC Editorial Policies, 2002).
Key values and the Charter of editorial practice
With all ABC activities the corporation aims to follow four key values. They replicate those of the Australian Journalists Association Code of Ethics (MEAA), and are - honesty, fairness, independence and respect.
As contained in the editorial policies, “The ABC requires integrity and accuracy, balance and impartiality, independence from political, commercial or other sectional interests, and respect for the rights of others, that is, subjects, program participants and audiences.”
The Charter of Editorial Practice for news and current affairs is a clearly defined set of standards for the ABC to adhere to. The nine standards ensure that the ABC's responsibilities and obligations in Australian society are met in line with the legislation. Two examples are, “In serving the public's right to know, editorial staff will be enterprising in perceiving, pursuing and presenting issues which affect society and the individual”, and “Editorial staff will ensure that coverage of newsworthy activity within the Australian community is comprehensive and non-discriminatory” (see attached Charter of Editorial Practice).

Accountability and the ABA
Due to dissatisfaction with the ICRP findings Senator Alston referred his complaints on the Iraq coverage to the Australian Broadcasting Authority (ABA) for investigation. He claimed the ABC's internal review panel was not at arm's length from the organisation and therefore couldn't be completely impartial when considering complaints about itself.
In a letter to Senator Alston (6/6/03), Chairman of the ABC, Russell Balding, wrote that the news and current affairs division has “effective procedures and practices in operation that assist it to deliver news and current affairs programs that reflect the Charter requirements of independence, accuracy and impartiality. The distinction between factual news and analytical material or content, and the need to ensure appropriate differentiation of the two formats in the ABC's programs, is acknowledged in the Division which has
suitable arrangements necessary for the achievement of the legislated requirements of independence, accuracy and impartiality”.
Also in an opinion piece for 'The Australian' (July 2003) Balding highlighted that none of the panellists on the ICRP have a current or past association with the ABC. They have various backgrounds including - commercial television (Channel 7), John Fairfax Holdings Ltd, the Australia Press Council, SBS, The Sydney Morning Herald, commercial radio (2GB), the University of NSW law faculty, the NSW Community Relations Commission, Sydney Theatre Company, the Film Finance Corporation and the NSW Board of Studies.
An investigation by the ABA is underway and is expected to take several months to complete. Former Chairman of the ABA, Professor Flint was heading the investigation amid claims of bias towards the ABC and other major conflicts of interest. The Board of the ABA sought legal advice in April this year as to whether Professor Flint was suitable to hear the complaints about the ABC since his book, Twilight of the Elites, backs the Iraq war and attacks the bias he sees within the ABC. His resignation as chairman on 7 June this year however has left the ABC investigation in abeyance. It could be argued that the ABC's ICRP is far more independent, objective and free from interference than the ABA, under the reign of Professor Flint.
In his letter to Senator Alston of June last year, Mr Balding noted that the ABC's News and Current Affairs Division:
o Attaches suitable weight to the role of the ABC's editorial policy documents.
o Has introduced a centralised news collection system that facilitates quality control.
o Is implementing arrangements for the sharing across media and programs of facilities and high cost items so as to permit focus on quality.
o Has introduced editorial resources dedicated to oversight and review functions within and across media.
In addition to complaints management and program quality reviews, the Board made other significant improvements to editorial and program governance which were:
o Completion of a major review of the ABC's Editorial Policies, introduced in August 2002.
o Public disclosure each quarter through the ABC's internet site of the volume and nature of audience contacts, including complaints.
o Monthly governance reports to the Board from each Executive Director of the Corporation, including a report on adherence to Editorial Policies.

About ABC Audiences
The ABC is required by the legislation to inform, educate and entertain its audiences throughout Australia and internationally. “Across television, radio and new media services, the ABC strives to engage its audiences with an independent, distinctive and appealing mix of programs and content. It competes energetically for audiences - but on its own terms as a public broadcaster that aims to reflect the diversity of Australia and its culture” (ABC Corporate Plan 2001-04). A primary factor in determining the ABC's success is its audiences and the ABC uses analysis of audience behaviour and trends, audience attitudes and perceptions of ABC services, and audience contacts and complaints to assess its effectiveness in this regard.

Newspoll survey
An appreciation survey conducted by Newspoll in June 2003 showed that 9 out of 10 Australians believe the ABC provides a valuable service and offers good quality programming and information, while 8 out of 10 respondents see the ABC as being distinctly Australian and contributing to Australia's national identity (ABC Annual Report 2002-03). The audience trends suggest a positive attitude to the ABC which achieved record audiences during the past 12 months. “This dynamic, highly competitive media environment is characterised by new entrants and competing media forms which provide audiences with an increasing range of options and sources from which to seek
information” (ABC Annual Report 2002-03).

Audience contacts
Analysis of audience contacts from the last Annual Report reinforces the view that the majority of Australians support the ABC. There were over 186,000 contacts across the corporation last year and of these 44,000 were complaints. This sounds like a considerable negative statistic. However the vast majority ( 39000)
of complaints were about things such as programming and scheduling and the like.
Of the remaining 5000 complaints, 2775 claimed party political or other bias, 837 alleged lack of balance and 1332 claimed factual inaccuracy. Had these areas amounted to 39000 complaints then there would be cause for real concern about how the ABC presents its programs and services. The remaining 142,000 contacts reflect the audience's interest in what the ABC offers and how it can be improved. The contact categories and the amount of contacts indicate that Australians feel they are a part of the ABC and can and do have a say in its operations, standards and practices.

Quantitative research
In 1994 quantitative research measured client and taxpayer appreciation of services, in dollar terms. The independent study of public budget outlays in Australia, by the Economic Planning Advisory Commission, established public willingness-to-pay for the different taxpayer funded activities of government. The study found that “the mean willingness to pay through taxes for arts and public broadcasting support ($129) exceeded the then mean liability for these activities ($121) by seven per cent per taxpayer. Unlike other areas, such as family assistance, defence, unemployment benefits, general government assistance, where decreases were indicated, in the arts and public broadcasting field an increase would be supported” (ABC, Cultural Ministers Council, discussion paper, The Cultural Benefits and Value of Public Broadcasting, June 2001).

Online participation
The ABC online website has seen a gradual increase in audience participation and use since the first appreciation survey in 1998 (8 per cent). By 2003, 20 per cent of Australians claimed to have used the ABC website. “Consistent with 2002, about 90 per cent of the ABC site's users believe it provides good quality information, though the proportion who believe it is very good is up from 32 to 38 per cent” (ABC Annual Report 2002-03).
Cultural Benefits of Public Broadcasting
The ABC is a major cultural institution of the nation, developing, promoting and disseminating Australian culture to local and international audiences. “The ABC and national cultural outcomes are inextricably linked” (Cultural Ministers Council discussion paper, June 2001). The ABC defines “culture” in a broad sense to include drama, dance, music, crafts, literature, film, as well as visual, graphic, design, acoustic, hybrid, community and multimedia arts. Documentary projects, current affairs and news also have significant cultural value at the ABC in that they contribute to the nation's understanding of itself and its place in the world. “The activities are all essential to Australian cultural life and contribute to a sense of national identity, informing, entertaining and expressing the cultural diversity of the Australian community” (discussion paper, June 2001).Culture in news and current affairs
ABC news and current affairs programs offer social perspectives and cultural insights through independent analysis of political, economic and cultural issues, locally and around the world. On television these are provided through programs such as - Australian Story, Four Corners, Stateline, 7.30 Report, Compass, Landline and Foreign Correspondent. On radio this is achieved through - Late Night Live, Australia Talks Back, The Planet, Bush Telegraph and Asia Pacific and other local radio programming. There is also an indigenous unit for production of cultural and educational programs on ABC TV and radio.

Community culture
A current example of the ABC's role in recording and reflecting culture in Australia was its presence at a two day conference at Moonee Valley Racing Club on 7 and 8 June 2004 entitled 'Communities in Control - Revolution in Community. Why? How? Now!' The conference attracted an unprecedented 1500 participants (turning away a further 600 who wanted to come but couldn't be accommodated) from around Australia.
The conference brought together prominent leaders in the Australian community such as:
o Federal Treasurer, Peter Costello.
o State Minister for Victorian Communities, John Thwaites.
o CEO Pratt Foundation, Sam Lipski AO.
o Executive Director Australia Institute - Australian National University, Dr Clive Hamilton.
o Social research commentator and author, Dr Hugh McKay.
o Broadcaster and social commentator, Phillip Adams.
Themes of the conference were:
o Recognising why values do matter.
o Identifying the indicators to building greater community groups and better communities.
o Advocating the need for more courageous and pioneering leadership, not just managerial leadership.
o Ensuring the valuing of community groups as important social assets.
o Encouraging communities to partner with government and business without losing control.
The ABC was there to record this event from two programming areas - ABC TV's Compass program and 774 local radio, through the broadcasting from the conference of Lyn Haultain's afternoon program. ABC broadcaster, Phillip Adams, gave the closing address titled - 'Revolutionising the culture - why we need a revolution now'. Clearly the ABC is meeting its Charter obligation to reflect and contribute to the nation's own identity and feelings about itself as a community, by recording and participating in this conference. The ABC was presented with a gift (a painting) at the end for its services in community development and cultural identity, accepted by Ian Mannix, Melbourne Manager of ABC.

The Arts in Australia
The ABC has strong links with the arts in Australia and within the Charter must “encourage and promote the musical, dramatic and other performing arts in Australia” (ABC Charter). The ABC concentrates on three main areas in relation to arts and culture:
o Making Australian and international arts visible, available and accessible by presenting, reporting on, exploring and providing a forum for critique, debate and commentary on the arts across all ABC services.
o Forging links between the ABC and the wider artistic and cultural community through commissions, acquisitions and collaborative ventures with artists and arts organisations and by providing an outlet for all facets of Australia's artistic talent and activity.
o As an employer and a supporter of the arts, drawing on, encouraging and presenting the talents of writers, musicians, directors, composers, designers,
performing artists, film and video makers, program makers and others in the arts.
Arts programming at the ABC is usually vulnerable to funding cuts at a time when the ABC is under pressure to become more mainstream and corporatised. Its commitment to fostering the arts however is still strong and proactive. The arts are presented in their diverse form through ABC TV, radio and online. Radio national in particular offers a comprehensive set of programs devoted to the arts and culture. Many of these are sometimes the only outlet for artists/performers to show their work (particularly in poetry and playwriting). The alliance between the ABC and Symphony Australia allows for promotion and fostering of the State symphony orchestras and the range of ways they reach the Australian community through performances, recordings, special competitions and awards.

Educating a nation
The ABC is a powerful institution for educating the nation. The ABC through its Charter recognises that education and culture are necessary to understanding our identity in the world. Current programming demonstrates the value the ABC places on educating Australians. There are science shows such as 'Catalyst' and 'The New Inventors' on ABC TV, and 'The Science Show' on Radio National, along with other locally produced radio programs. There are wide ranging documentaries that are educational and cultural, covering topics about Australia or elsewhere around the world.
One ABC educational program that received criticism recently was 'Play School' ('The Age', 3 June 2004). The Prime Minister John Howard accused the ABC of “running a politically correct agenda by allowing the children's television program 'Play School' to introduce the issue of lesbian parents”. The show aired a story about a girl called Brenna going to a fair with her two mothers. “This is just a very foolish thing for the ABC to do,” he said. “I mean this is an example of the ABC running an agenda in a children's program. “If people want to debate that issue, do it on a program like 'Lateline', but not on 'Play School'.” Federal Minister for Children and Youth Affairs Larry Anthony said it is the role parents to educate their children on such matters. “It should be up to me, not the Australian broadcaster,” he said. Actor and 'Play School' presenter Reece Muldoon said, “To actually get in there and criticise 'Play School' over showing what's not just mum and dad and a white picket fence…that's been 'Play school's' job for a long time now, to show life is very diverse” (ABC News Online 3 June 2004). Head of Children's Television at the ABC, Clair Henderson, said the passing reference to a child with two mums was in keeping with the program's philosophy to show the diversity of family types in Australia.

Conclusion
The ABC has a long history of independence, contributing to our national identity in a primary, significant way. The development of our culture is in large part due to the existence of the ABC. It stands tall as a major institution recording and reflecting Australia and its people. From its BBC-influenced beginnings to now in the 21st century, the ABC has maintained its place in Australian society by contributing to the development and pursuit of a socially cohesive, educated and diverse nation.
Audiences are generally happy with the ABC. When it is challenged the ABC has mechanisms and processes inside and outside the corporation to overcome problems. With pressure on it to be more commercialised beyond the promotional, merchandising shops and centres, the ABC has resisted the push to introduce advertising into programming. Instead it has remained true to the Charter by producing programs and services of an independent, creative quality that can only enhance our identity.
Perhaps Australian author Tim Winton best sums up the role of the ABC in our culture:
“For all its flaws - its prissy political correctness and occasional indulgences - the ABC is the chief agent of culture in this country. There is no public institution more precious. Nothing else has kept the sequinned wolf from the door in hard times or shallow. After all, it's the only thing that stopped us being colonised a second time. Who can imagine Australia without the independent, commercial-free broadcaster we grew up with and rightly took for granted? A government hostile to the independence of our national broadcaster is hostile to the survival of our strangely distinct character as a people.”

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