The
BBC Trust ordered a review of acceptable standards following the row
over obscene phone messages left for the actor Andrew Sachs by Jonathan
Ross and Russell Brand.
The report - written by BBC creative director Alan Yentob and director
of archive content Roly Keating - calls for clear guidelines on
intrusion, intimidation and humiliation to to ensure that everyone
involved in programme making understands that such behaviours are
unacceptable.
Of 2,206 adults aged over 16 were questioned for an Ipsos Mori survey.
The main findings were:
- Where audiences are concerned about the area of taste and morality
on television as a whole, this is often connected with broader
concerns about falling standards in terms of quality and the
over-reliance on reality formats.
- Standards of morality, values and behaviour in the media in
particular are not a top-of-mind issue for the majority of the public.
- The BBC overall performs well in the audience's perceptions of
standards of morality, values and behaviour, compared to other
channels and broadcasters. The audience also has higher expectations
of the BBC.
- In general terms, the public do not want increased censorship or
regulation. The majority value the creativity of the BBC and accept
that it may sometimes lead to offending some people.
- When prompted, a significant proportion of the audience have
various concerns about standards of morality, values and behaviour in
the media as a whole, including newspapers, magazines, broadcasting
and online content.
- Strong language is an area of concern for some audiences; they
recognise when language is used for clear purpose or effect within a
programme - including comedy and entertainment - but dislike
'unnecessary' or excessive use.
- In certain genres, the offensive potential of strong language can
be compounded when it is combined with apparently aggressive or
bullying behaviour. This reflects broader public concerns about
aggression and bullying within society as a whole.
- There is little public consensus or agreement about what
constitutes offence: it means very different things to different
sections of the audience.
- The context in which potentially offensive content is placed is of
paramount importance to audiences, as are judgements of quality. Both
can make the difference between whether something is acceptable to
audiences or not.
- Tone and intent can also make strong material acceptable: the
'twinkle in the eye' of a performer and their skill in delivery can
make the decisive difference, even with potentially offensive
material.
- Age and socio-economic group go some way to describing who in the
audience is more likely to have concerns, but they do not tell the
full story.
- Younger audiences (11-15 year-olds) are uniquely self-selecting in
their choice of media content, through the web and magazines as well
as broadcast material. Though strongly drawn to more sexual content,
some express unease about the sexualised nature of the media world in
which they live and the pressure to 'grow up fast.'
- Sexual content on television and radio was a matter of relatively
low concern for audiences. There was an expectation that the
television watershed should be respected, and content on radio
appropriately scheduled. There is no appetite for a watershed in
radio.
- Some respondents commented that the transfer of some successful
series from BBC Two may bring a somewhat ‘edgier' tone to BBC One.
- Respondents expressed few concerns about standards on BBC Radio.
However, of all the BBC's services, Radio 1 has the most divided
response in terms of morality, values and behaviour.
- Audiences are conscious of the challenges presented by the growth
of online and on-demand content, but there is little awareness of the
BBC's 'G for Guidance' systems, or understanding that iPlayer has a
parent password protection scheme which prevents children accessing
adult content.
Conclusions
- Audiences accept potentially offensive content but believe it
should be there for a purpose. They have a sophisticated sense of
different programme genres, from serious documentary to reality and
entertainment. Producers should ensure that any potentially offensive
material has a clear editorial purpose and ask themselves is it
necessary? Does it enhance the quality of the experience for
audiences?
- Viewers understand and value the television watershed. The BBC
must respect and maintain its significance as a crucial contribution
to audience confidence in television standards. There is no audience
demand for a radio watershed.
- Of all BBC services, BBC One is the most sensitive, because of its
ability to unite generations and families in shared viewing. The bar
for the strongest language between 9pm and 10pm must therefore remain
significantly higher than on other BBC television channels.
- On all channels, producers, presenters, commissioners and
controllers have a shared responsibility to ensure that the force and
value of the strongest words is not weakened by over-use. The
mandatory referral of the most offensive language to Channel
Controllers reflects this and must be maintained.
- Mischievous banter, practical jokes and formats, which include
elements of confrontation and criticism, can all be legitimate, indeed the public tell us that they can add greatly to their
enjoyment; but programme makers, on-air artists and presenters must
ensure that they never tip over into malice, humiliation or harm.
- Audiences admire performers who take risks but have the expertise
to know when to draw a line. To support such talent, producers and
controllers must always be candid and open with them about judgements
of tone and content, and be prepared where appropriate to take and
enforce tough decisions.
- Risk-taking is as vital a part of the BBC's mission in comedy,
drama and entertainment as it is in other genres. As with all
programme making, the greater the risk, the greater the thought, care
and pre-planning needed to bring something groundbreaking to air.
Recommendations
- New series on television and radio For new series where questions
of taste and standards are likely to arise, there must be a discussion
with the commissioning executive early in the production cycle to
agree appropriate parameters of tone and content, to ensure that all
involved, including presenters and performers, have given thought to
questions of channel, context and slot. Even when a returning series
has established expectations of strong language and content, there
should be a similar discussion before the start of each run.
- Greater care over cross-channel transfers When a TV series moves
to a more mainstream channel - especially to BBC One - producers and
controllers should be sensitive to its new context, and give careful
consideration to adaptations of tone or format if necessary.
- Clearer policy on bleeping of strong language A clearer policy
should be set for the use of bleeping in TV and radio programmes. In
general, where strong language is integral to the meaning or content
of a programme, and other questions of slot, context channel etc have
been resolved, it should not be disguised. But when in other
circumstances a sequence that is editorially necessary happens to
contain the strongest language, it may be right to bleep or disguise
the words, even after the watershed.
- New guidance on malicious intrusion, intimidation and humiliation
BBC programmes must never condone malicious intrusion, intimidation
and humiliation. While they are all aspects of human behaviour which
may need to be depicted, described or discussed across the BBC's
factual and non-factual output, they must never be celebrated for the
purposes of entertainment. New guidance is needed to ensure that
everyone involved in programme making for the BBC understands that
malicious intrusion, intimidation and humiliation are unacceptable.
- Clearer audience information and warnings The BBC should always
recognise that some sections of its audiences are more readily
offended than others. We owe the public the information they need to
make informed choices about viewing and listening and to avoid
material they may regard as unsuitable for themselves or their
families. Each channel must make even greater efforts to ensure that
appropriate content information (eg. billings and presentation
announcements) is provided which enables informed judgements to be
made by all audiences, both pre- and post-watershed, about programme
content.
- Music radio Music radio thrives on strong personalities, and young
audiences value BBC Radio 1 highly; but editorial teams must be
reminded that particular care needs to be taken at times of day, such
as school runs, when different generations may be listening together.
- Major awareness campaign about online guidance The BBC has
pioneered content guidance and child protection mechanisms provided by
the iPlayer. Audiences are concerned about the internet as a space of
unregulated content and are insufficiently aware of the protection
available for BBC content. A major campaign of public information is
needed as soon as possible to raise awareness of the content guidance
and offer reassurance to audiences. The BBC should also work to ensure
that the next generation of Freeview and FreeSat PVRs have PIN
protection functionality.
- More regular audience research In-depth audience research, along
the lines of the findings in this paper, should be conducted more
often to ensure that the BBC maintains a full and detailed
understanding of audience attitudes to taste and standards. To keep up
with changes in audience taste, research should be commissioned every
two to three years. Careful attention should be given to key tracking
questions that will enable the BBC to identify changes in audience and
societal attitudes.
- Revision of Editorial Guidelines and Guidance The BBC's Editorial
Policy department should use the research, general principles and
recommendations in this report to inform the current general revision
of the BBC's Editorial Guidelines and, in particular, to clarify
audience expectations of tone and context. In addition, new Guidance
will be required to keep programme and content makers up-todate with
audience expectations of BBC content.
- Increased commitment to training The research findings offer new
opportunities to illuminate the understanding of taste and standards
for programme makers across the BBC. The findings should be briefed to
leadership groups in all content divisions by the Director and Chief
Adviser, Editorial Policy. The Colleges of Production and Journalism
should develop new training material that explores audience attitudes
specific to each of the key genres, which will be rolled out to
programme makers both in-house and independent. The audience research
and the conclusions of this report should also be made available
through normal Editorial Policy channels to all programme makers. The
findings of this study and the materials used in it should inform
online courses, which will be used to maintain editorial policy
standards.
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