report by the committee of review of the special broadcasting service

Committee of Review of the SpecialBroadcasting Service Serving MulticulturalAustralia - the Role of Broadcasting - Report bythe Committee of Review of the SpecialBroadcasting Service, December 1984 Canberra,Australian Government Publishing Service,1985. Part One, pp xix-xx and 12-85.

SBS Review Committee,The Hon F. X. Connor, QC,Chairman

Terms of Reference

1. Having regard to:

(a) the Government's desire to fostermulticulturalism and the provision ofmultilingual radio and multiculturaltelevision services;

(b) the statutory powers and functions ofthe Special Broadcasting Service (SBS)as set out in the Broadcasting andTelevision Act 1942 and theBroadcasting and Television (SpecialBroadcasting Service) Regulations; and

c) the services provided by otherbroadcasters;

the review shall examine and makerecommendations on the following matters:

i) the operational and programmingpolicies, administration, accountabilityand organisational arrangements of theSBS:

ii) whether other arrangements including,for example, amalgamation with theAustralian Broadcasting Corporation,might be more appropriate for theprovision of multilingual and

multicultural services;

iii) how such services might best bedeveloped in the future;

iv) the extent to which other broadcasterssuch as public broadcasters or theAustralian Broadcasting Corporation,might be involved in the provision ofsuch services;

(v) the principles which should governgreater community participation in theprovision and development of suchservices;

(vi) structures to ensure sensitivity toethnic community needs and wishesand to promote adequate consultationwith ethnic communities;

(vii) means by which multilingual radio andmulticultural television services mightadequately provide English languagelearning; and

(viii) consequential changes in legislative oradministrative arrangements.

2. The final report of the review is to beforwarded to the Minister for Communicationsby 30 November 1984 and there may beinterim reports on particular issues.

Synopsis and Summary ofRecommendations

Synopsis

2.1 The Committee was instructed to take intoaccount the Government's commitment tomulticulturalism, and to the continued existenceof radio and television services providing ethnicand multicultural programs. In other words, it

1Making Multicultural Australia Report by the Committee of Review of the SBS

Report by the Committee of Reviewof the Special Broadcasting Service

was not within our scope to question theprinciple of multiculturalism or the concept ofmulticultural broadcasting, and we would nothave wished to do so.

2.2 In asking us to examine the role of the SBSand to make recommendations on the futuredevelopment of ethnic broadcasting, theGovernment was inviting us to consider theresponsibilities of each sector of the Australianbroadcasting system for providing ethnic andmulticultural services. The Government'semphasis was on the national and publicbroadcasters, but the clear implication was thatthe commercial sector could also play a role. Allbroadcasters, for example, are potentially able toprovide programs in areas not reached by othersectors and, in a wider context, can ensure thattheir programs recognise and affirm themulticultural nature of Australian society.

2.3 Our Terms of Reference were therefore verybroad. They allowed us to recommend a majorrestructuring of a good part of the Australianbroadcasting system, conceivably involving theamalgamation of the two government sectorbroadcasters, or major changes in the roles andresponsibilities of the EA stations in Sydney andMelbourne. Our terms of reference also gave usthe opportunity to influence the operations ofover half of the public broadcasting stationsround Australia.

2.4 What follows is a brief summary of ourfindings on those issues which emerged duringour year-long review as being of most concernand interest to the public. It is by no means acomprehensive synopsis of the report, but itcovers what we believe to be our mostimportant, and in some cases perhaps,controversial, findings. We give a list of all ourrecommendations after this synopsis.

The operational and programming policies,administration, accountability andorganisational arrangements of the SBS

2.5 The Committee found the radio stations2EA and 3EA to be generally satisfactory interms of their operations and their programs.

Indeed, audience research and our ownconsultations with the community, as well assubmissions and evidence, attested to the s u c c e s sof the stations in attracting, and keeping, theaudiences for whom they are intended. Theseaudiences value the stations highly for homelandnews, music, information and entertainment;often they provide a virtual lifeline for theelderly, the newly arrived, the isolated.

2.6 Naturally, we heard criticisms of someprograms for alleged deficiencies in qualityand/or content. In this respect it was necessaryto distinguish between criticisms which werejustified and which reflected the views of themajority of listeners and those which sometimescame from vocal, disaffected minorities. We feltthat criticisms frequently arose from the factthat the SBS had done very little to train radiobroadcasters and co-ordinators or to providesufficient facilities for them so as to ensureappropriate standards in production andpresentation. Although some broadcasters wereprofessionals in their homeland before theycame to Australia, many of the skilledbroadcasters on the EA stations are virtually self-taught and the high standard of some of theirprograms is greatly to their credit.

2.7 The SBS itself concedes that radio has beenovershadowed by television in terms of resourcesand attention paid to it and has been observedto be the 'poor cousin' of the organisation.Thegeneral audience satisfaction, to which we havereferred, exists in spite of the unhappiness in theradio branch due in part to poor industrialrelations between co-ordinators and broadcasterson the one hand and management on the other.Closely associated with this is the highlyunsatisfactory engagement arrangements for co-ordinators and broadcasters.

2.8 In order to overcome these defects we havemade a number of recommendations aboutregularising the status of co-ordinators andbroadcasters, developing the radio to fullprofessional status, improving industrialrelations and training broadcasters.

2.9 Multicultural television is still young, and as


yet is not seen by people outside the ACT,NSW and Victoria. While it appears to bemuch appreciated by those who watch it, itmust be said that the number of viewers so farremains relatively small, and includes manymore people of non-English speakingbackground than Anglo-Australians. This runscounter to the objectives of multiculturalism,which is intended to involve everyone, and itgives cause for concern about the performanceof 0/28. We do not expect the channel to attractlarge audiences; we do, however, expect nearlyeveryone to dip into it from time to time.

2.10 It is not possible to say definitively what isat fault, and allowances must be made for therelative youth of the service. There is, however,considerable criticism of the Channel's programpolicy - particularly for the lack of Australian-produced programs with a multiculturalemphasis; on the other hand, its news service isuniversally praised. It may be thatmulticulturalism has not been translated intotelevision in a sufficiently appealing way. To dothis is a difficult task, and will become more soas the service extends to centres with smallerpopulations of non-English speakingbackground.

2.11 We have recommended a number ofmeasures designed to change or strengthen theprogram policy emphasis of 0/28; but we see thetask of building television audiences to anacceptable level as perhaps the major oneconfronting multicultural television in theimmediate future.

2.12 In both radio and television, we haveavoided any proposals likely to lead to anorganisation on the scale of the ABC, withextensive facilities and a very large staff on anational basis. We have placed an emphasis oncontinued use of contracted facilities and staff.In the case of television particularly, we endorsemaximum use of ABC facilities by Channel0/28, for its in-house production, including - ifat all possible - co-siting of ABC-TV and 0/28;and as a way of encouraging the localproduction industry, the increased purchasingand commissioning of work from independent

producers in all States.

2.13 The Committee heard considerablecriticism of the existing Special BroadcastingService, from within and outside theorganisation, for alleged insensitivity, ineptmanagement and administration, rigidity andresistance to change, discrimination and poorcommunications. We found - with assistancefrom our management consultants - that manyof these criticisms were justified. We must pointout, however, that many of the organisation'sproblems have their roots in historicalconstraints imposed by an awkward transitionfrom community-based radio stations to a fully-fledged statutory authority, and by the hastyintroduction of the television service, graftedrather uncomfortably on to the existing radiostructure.

2.14 Central to the SBS's internal problems hasbeen the requirement that it engage staff underthe Public Service Act 1922 and its relationshipwith the Public Service Board. One consequencehas been a concentration of people of Anglo-Celtic background in the major decision-making positions and in most of theadministrative jobs, and ill-defined and insecureemployment terms and conditions for creativepeople - many of whom are of non-Englishspeaking background. The fault does notnecessarily lie with the Public Service Board;indeed the SBS itself must shoulder some blamefor its inadequate, sometimes incompetentperformance, especially in industrial relationsmatters.

2.15 Nevertheless, the fact remains that publicservice practices are generally unsuited to theoperations of a broadcaster, which needs to beable to act quickly, decisively and flexibly. Wehave therefore recommended that the SBS, likethe ABC, be removed from the nexus with thePublic Service Board. We have made a range ofother recommendations designed to ensuremore equitable recruitment and employmentpractices, a more workable organisationstructure, stricter accountability, improvedinternal communications, proper mechanismsfor industrial relations, upgrading of grievance


and appeals systems, and mobility of staffbetween the SBS and other program producingorganisations such as the ABC and theAustralian Film Commission.

Whether other arrangements including, forexample, amalgamation with the AustralianBroadcasting Corporation, might be moreappropriate for the provision of multilingualand multicultural services

2.16 Perhaps the most difficult question facingthis Committee was that of the futurerelationship between the ABC and theorganisation providing multiculturalbroadcasting services. At one extreme was theidea of a formal amalgamation between the twobroadcasters; at the other, totally separatedevelopment. Between the two lay a range ofoptions involving various kinds of formal andinformal links.

2.17 If public opinion were our sole guide, wewould have had no hesitation in decidingagainst amalgamation; for the overwhelmingmajority of those who spoke or wrote to us,gave evidence, or took part in consultations,were opposed to any merger between the SBSand the ABC. The perception that the ABC hasbeen insensitive to the needs and interests ofsome sections of Australian society, especiallyethnic communities, is still very strong. TheABC has a major job ahead of it inimplementing the multicultural responsibilitiesrecently spelt out in its new statute. TheCommittee was not convinced of the ABC'sunderstanding of multiculturalism, or of theprospect of any real or immediate changes,despite the Corporation's stated commitment tothe task. The Corporation itself stated at theoutset that it did not wish to absorbmulticultural broadcasting at this time; later itexpressed an interest in absorbing the televisionservice but as a second ABC channel subject toan undertaking to maintain the present volumeof multicultural broadcasting. It maintained itsdisinterest in taking over ethnic radio.

2.18 Against this resistance, the Committee hadto weigh the view of a number of leading

proponents of multiculturalism that nationalbroadcasting, to be a truly national service,should serve specific as well as general needs;and that to confine ethnic/multicultural servicesto a separate body was antipathetic to the policy- supported by the Government - that whereverpossible these services should be part ofmainstream organisations. This would notnecessarily mean amalgamating the two existingbroadcasters; rather, it might involve theestablishment of a new national broadcastingauthority absorbing elements of each. A similarauthority was contemplated by the Committeeof Review of the ABC, but not accepted byGovernment.

2.19 This Committee also had to take accountof the fact that separate development of the twobroadcasters, especially as the SBS extends itstelevision service round Australia, was likely tocause wasteful and costly duplication of staff,facilities and even services. This could beeliminated by bringing them into a closerrelationship. In addition to any cost savings inthe longer term, benefits would flow fromsensitising ABC management and staff to theneeds and interests of a multicultural society.

2.20 In view of the substantial communityopposition to any arrangement at present whichmight be construed as a merger of the ABC andthe SBS, the Committee has recommendedagainst it for the time being. Instead, we haverecommended the closest possible co-operationbetween the two organisations at many levelsand in many areas; in some cases - such asaudience research - we believe joint mechanismsare possible now. At the same time, we havemade many recommendations designed to bringthe SBS 'into line' with the ABC, so that anyfuture integration of the two could be made assmoothly as possible. We have recommendedthat in 1990, there be a joint review of bothorganisations, to decide on the futuredevelopment of national broadcasting. It maywell be that by then the idea of a nationalbroadcasting authority responsive to the needsand interests of all Australians will appear asboth desirable and acceptable to a majority ofpeople in the light of the performance of the


two national broadcasters during the rest of thedecade.

How such services might best be developed inthe future

2.21 To replace the SBS, we have recommendedthe establishment of a new statutory authority,the Multicultural Broadcasting Corporation,responsible for the provision of ethnic radio2EA and 3EA, and multicultural televisionChannel 0/28. The legislation establishing theCorporation will ensure that in all majorrespects it is similar to the ABC: i.e. while beinggiven an equal degree of independence, it willbe subject to the same constraints.Two important features are:

• chief executive (known as Managing Director)appointed by the board, not by theGovernment;

• direct government funding, no advertising orsponsorship.

2.22 The EA radio system could be extendedeither by setting up an individual EA station ineach capital city outside Sydney and Melbourne;or the present Sydney/Melbourne EA programscould be nationally networked. We have notrecommended either of these options. The roleof other broadcasters in providing ethnic radiois discussed below.

The extent to which other broadcasters, suchas public broadcasters or the AustralianBroadcasting Corporation, might be involvedin the provision of such services

2.23 The Committee came down firmly infavour of public broadcasters as the majormeans of providing ethnic radio programservices in parts of Australia not covered by theEA stations. To assist ethnic public broadcasters,we support the production by the SBS/newCorporation in consultation with them of aprogram package containing material -particularly news, current affairs, features andinformation - of a kind they do not have theresources to produce themselves. A range of

programs will also be made by a specialistprogram packaging unit and distributed to allpublic broadcasting stations, the ABC andcommercial stations wishing to use them. Theywill include programs by and for Aboriginal andIslander people as well as for ethniccommunities - though overall we believe theprimary responsibility for Aboriginalbroadcasting should lie with the ABC.

2.24 To ensure that locally-relevant ethnicprograms, as well as EA-produced programs, areavailable in all centres with substantial ethniccommunities, we have recommended that ethnicpublic broadcasting stations be licensedwherever in Australia there is sufficientcommunity interest and support. We includeMelbourne and Sydney in this. We feel that,due to the large populations of ethnic people tobe serviced in these cities, and the consequentdemands for time on the EA stations by bothnew and existing broadcasting groups, thesecities could well merit a second major outlet forethnic broadcasting.

2.25 On the controversial question of fundingfor ethnic public broadcasting, we haveconcluded

• that the SBS/new Corporation should remainthe conduit for government subsidies for thetime being - we have not been able to reachunanimity as to a permanent solution for thedistribution of these subsidies; our differingviews are contained in Chapter 6;

• that the level of subsidy should be increasedto $1 million for 1985-86, but that subsidiesnot be extended to low coverage suburbancommunity stations carrying ethnic programs;and

• that compliance with the government's 'Codeof Principles' for ethnic public broadcastersshould no longer be a condition of funding.

2.26 The Committee was not convinced thatpublic television organisations presented asufficiently coherent or developed approach forus to recommend a major role for them in


providing ethnic or multicultural programmingin place of Channel 28 or through statutorychannel-sharing arrangements withmulticultural television. Instead, we havesupported their access, on an agreed basis, tosome Channel 0/28 airtime, and we haverecommended that public televisionorganisations be used by multicultural televisionas one source of local input into programming.

The principles which should govern greatercommunity participation in the provision anddevelopment of such services

Structures to ensure sensitivity to ethniccommunity needs and wishes and to promoteconsultation with ethnic communities

2.27 We deal with these two matters togetherbecause we believe they are aspects of the sameissue. The demand for community participationin broadcasting services, and for consultationabout community programming needs, is aparticularly vocal one in the context of ethnicand multicultural broadcasting. It was clear tothe Committee that, as regards the SBS, thisdemand might not have been as widespread orvocal as it was if the organisation had takensome relatively simple steps in the past to makeits audiences feel that their views were canvassedand taken into account in program planning.

2.28 It is true that the SBS has been somewhathampered in establishing consultativemechanisms by uncertainty about its future andby its legislative environment. Moreover, thedegree and nature of community participationand consultation which characterises publicbroadcasting, while commendable, are not ingeneral appropriate to a statutory authority.That said, we believe that the multiculturalbroadcaster, because of its special responsibilitiesand need for sensitivity, does require somemechanisms which are different from, or at leastadditional to, those of its counterpart the ABC.We have, therefore, recommended a range ofconsultative mechanisms, including

• A National Consultative Council, selected bya combination of nomination and Ministerial

appointment.

• A community liaison unit within theorganisation.

• Ethnic Radio Program ConsultativeCommittees, at least for some programs.

• Strengthening the role of broadcasters and co-ordinators.

2.29 We do not believe direct participation -e.g. in the form of access programs - isappropriate to a national broadcaster, but weconsider that other techniques, such as talkbackradio, public meetings, phone-ins, andinterviews with community spokespeople, canhelp to involve people in their broadcastingservices.

Means by which multilingual radio andmulticultural television services mightadequately provide for the information andeducational needs of migrants, includingEnglish language learning

2.30 The Committee strongly affirms the role ofethnic radio and multicultural television inproviding information to their listeners andviewers, particularly information and advice formigrants on rights, obligations and on availableservices, of a kind which will help them settleinto Australian society. We concluded thatmulticultural television could play a greater rolein this area than it has in the past, by increasingits use of community service announcements,particularly in community languages.

2.31 We have recommended the establishmentof units within ethnic radio and multiculturaltelevision to ensure that information items areproduced to a high standard and are relevant tothe audience. These units will be responsible formaintaining close liaison with sources ofinformation such as Government departments,and for supplying material which can be used asappropriate by other broadcasters - ABC, publicand commercial.

2.32 The Committee found that to date little


use had been made of SBS radio and televisionservices for educational purposes, except in thebroader educative sense. We noted withapproval the current development of an Englishlanguage learning series for television, andagreed with other reports which have seen thelearning of English as a priority area of need.Other important needs in education includedcommunity language learning and maintenance,the acquisition of survival skills, transitionprograms and other forms of adult and furthereducation. The ABC and the multiculturalbroadcaster both have a role to play, andmaterial produced by them can be distributed toother broadcasters where needed.

2.33 We felt that educational broadcasting was aparticularly important area for co-ordination ofplanning and production between the ABC andthe multicultural broadcaster, and we haverecommended various areas of co-operation.

Consequential changes in legislative oradministrative arrangements

2.34 The major changes to legislative andadministrative arrangements which flow fromour recommendations are

(a) the removal ofmultilingual/multicultural servicesfrom the Broadcasting and TelevisionAct 1942.

(b) the introduction of an act to establishthe Multicultural BroadcastingCorporation, similar to the AustralianBroadcasting Corporation Act 1983.

All other consequential recommendationsaffecting legislation are listed at the end of thischapter.

Summary ofRecommendations

The SBS and the ABC (Chapter 5)

Recommendation

We recommend that the first priority is toestablish a statutory authority better designedthan the SBS to develop a more effective ethnicradio and multicultural television service

We recommend that the ABC and the newMBC should increase co-operation betweenthem, sharing resources, co-ordinating programplanning and exchanging personnel

We recommend that the Government shouldappoint a further inquiry in 1990 of both theABC and the MBC with a view to consideringtheir integration. In the meantime bothorganisations should be encouraged to worktowards the aim of a single nationalbroadcasting authority.

We recommend that each of the ABC andthe MBC should have a statutory obligation tomake a specific report at six-monthly intervalsto the Minister of Communications on the stepstaken towards co-operation and co-ordination ofresources and facilities and that these reportsshould be tabled in Parliament

The relationship between the SBS, the publicbroadcasting and commercial sectors, andAboriginal broadcasting (Chapter 6)

Recommendation

We recommend that in place of the nationalradio network proposed by the SBS theorganisation should develop a program packagefor distribution to public broadcasting stations.That package should consist of national andinternational news, homeland bulletins, publicaffairs, settlement and other information, andradio features in various languages includingEnglish. The material should be produced by aprogram packaging unit staffed by specialist


producers and function in co-operation withethnic public broadcasters.

We recommend that ethnic public broadcasting stations should be licensed wherever there issufficient community interest and support towarrant their establishment. The presentcategory system for public broadcasting stationsshould be expanded to provide for an 'ethnic'category. The Government should callapplications for such a licence in Melbourne assoon as possible, and in Sydney and Perth ifdemand is established. Should the ethnic publicbroadcasters in Canberra not be successful intheir current application for a licence,consideration should be given to calling afurther licence application in that city.

We recommend that a Joint StandingCommittee comprising representatives of theNational Program Packing Unit and ethnicpublic broadcasters be established to ensuremaximum co-operation in program planningand distribution.

We recommend that for the time being the SBSor its successor should remain the distributionoutlet for government subsidies to ethnicbroadcasters. Mr Lippmann is in favour of thisas a permanent solution. The Chairman and MsDunne recommend that the funds should bedistributed ultimately by a body other than SBSor its successor, to be determined in the light ofevents.

We therefore recommend that the Governmentpay through the SBS to

(a) approved ethnic public broadcastingorganisations a basic grant instead ofthe present subsidy and smallpayments to accommodate the SBSprogram material and

(b) to public broadcasting stations a one-off grant to defray the cost of changingprogram schedules and/or the cost ofpurchasing satellite equipment.

We recommend that funding for ethnic public

broadcasting be extended to Sydney andMelbourne but that low coverage communitystations in those cities carrying ethnic programsshould not be funded.

We recommend as a high priority thatgovernment funding for ethnic publicbroadcasting be increased to $1 million for1985-86.

We recommend that adherence to theGovernment's Code of Principles no longer be acondition of funding for ethnic publicbroadcasters, and that they be subject only tothe Australian Broadcasting Tribunal's programstandards, as are other licensed broadcasters.

We recommend that the SBS be prepared toallow public television organisations access toChannel 0/28 on an agreed basis.

In the event that grants for ethnic publicbroadcasting replace subsidies, we recommendthat where ethnic public broadcasters haveprograms on commercial channels because ofthe absence of a public station, they shouldcontinue to be able to form an association andapply for a grant.

We recommend that a working party consistingof the ABC, the SBS, DAA, Aboriginalbroadcasters on EA stations and public radioAboriginal broadcasting organisations beestablished to develop a co-ordinated plan forAboriginal broadcasting in Sydney andMelbourne.

We recommend that the SBS develop acomprehensive publicity and consultationprocedure to involve Aboriginal communities inthe EA programs and to promote awareness oftheir existence.

We recommend that the National ProgramPackaging Unit encompass programs for the useof Aboriginal broadcasters throughout Australiaon public or ABC stations.

We recommend that SBS continue and expandthe employment of Aboriginal people


throughout the organisation.

A new organisation - the MulticulturalBroadcasting Corporation (Chapter 7)

Recommendation

We recommend that multicultural and ethnicbroadcasting services be administered by aseparate authority, and the new authority shouldbe given its own Act of Parliament.

We recommend that a new independentstatutory body, to be called the 'MulticulturalBroadcasting Corporation' (MBC), should beestablished to replace the present SBS.

We recommend that it should be the functionof the new organisation to provide an innovativeradio and television service of a high standard aspart of the Australian broadcasting andtelevision system consisting of national,commercial and public sectors.Without limitingthe generality of that function, the MBC shouldprovide radio and television programs which:

(i) entertain, inform and educate theAustralian community including itsethnic, Aboriginal and Torres StraitIslander communities;

(ii) contribute to the development of amulticultural society by promoting acommon sense of Australian identity,mutual understanding, appreciationand acceptance of the diverse culturesand traditions within the Australianpopulation.

We recommend that the new organisationshould be under a statutory obligation to haveregard to the services provided by the AustralianBroadcasting Corporation and to co-operateclosely with that body.

We recommend that the AustralianBroadcasting Corporation Act be amended toinclude a corresponding obligation on the partof the Australian Broadcasting Corporation toco-operate with the new organisation.

We recommend that it be part of the charter ofthe MBC that it acknowledge the commoninterests it shares with ethnic publicbroadcasters and that it be under a statutoryobligation to co-operate with them by providingprograms and services for them as appropriateand required.

We recommend that in the provision by thenew organisation of its radio and televisionservices within Australia it should have regard to

(i) the standards from time to timeprovided by the AustralianBroadcasting Tribunal in respect ofradio and television services; and

(ii) radio and television services providedby the commercial and publicbroadcasting sectors of the Australianbroadcasting and television system.

The Chairman and Ms Dunne agree with theSBS recommendation that a Board of five toseven directors would be appropriate for theMBC. Mr Lippmann considers the Boardshould have seven to nine members.

We recommend that the Board members shouldbe part-time, appointed for a period notexceeding five years and be eligible forreappointment, that there should be a part-timeChairman and Deputy Chairman appointed bythe Government and that there be a staff-electedmember of the Board.

We recommend that the duties of the MBCBoard should be specified in the legislation.

We recommend that the chief executive officerbe known as the Managing Director and beappointed by the MBC Board.

We recommend that the chief executive beappointed for not more than five years witheligibility for reappointment. The functions ofthe position should be stated in the enablinglegislation. The chief executive should be an ex-officio member of the Board.

9Making Multicultural Austral ia Report by the Committee of Review of the SBS

Programming for ethnic radio (Chapter 8)

Recommendation

We recommend that the EA stations bedeveloped to full professional status.

We recommend that the current radio seniorproducer positions be redesignated andappropriate personnel appointed to service theprogram packaging units and other specialistproduction areas.

We recommend that all management staff ofethnic radio should be people of demonstratedethnic sensitivity, including where appropriatepersons of non-English speaking background.

We recommend that the rescheduling of 2EAand 3EA as proposed by the SBS not beimplemented.

We recommend that programs on 2EA and 3EAbe rescheduled to accommodate additionallanguage groups and provide a more equitabledistribution of airtime.

We recommend that program time on ethnicradio should continue to be allocated primarilyon the basis of language.

We recommend that the following additionalfactors should be among those taken intoaccount in the allocation of airtime on 2EA and3EA: cultural maintenance and informationneeds, socioeconomic background, educationallevel, extent of English language usage, ageprofile, cultural diversity, and patterns of cross-listening in different communities.

We recommend that a minimum of one hourper week should be allocated to each languageprogram.

We recommend that, in any future schedulingof 2EA and 3EA, special consideration shouldbe given to the smaller and more recentlyarrived groups and a proportionately greateramount of airtime allocated to meet their needs.

We recommend that the midnight-to-dawnservice on 2EA and 3EA as proposed by the SBSnot be implemented.

We endorse the proposal by the SBS that theGovernment determined criteria for ethnicbroadcasting be formally withdrawn.

We recommend that a new set of guidelines forbroadcasters be prepared in consultation withbroadcasters, station management andappropriate community bodies. Such guidelinesshould be published and made known to thepublic through language programs.

We recommend that, in order to improve accessto music material received on transcription fromoverseas, resources be made available forcataloguing, dubbing and archiving of suchmaterial.

We recommend that, following consultationwith broadcasters, a uniform system of handlingcommunity announcements should bedeveloped and made known to communityorganisations and through language programs. Aproper record should be kept of allannouncements broadcast in case of complaintsbeing received and for statistical purposes.

We endorse the proposal by the SBS to givehigh priority to providing information on localcommunity issues.

We recommend that the SBS proposal toprogressively introduce a significant componentof English into language programs not beimplemented.

We endorse the proposal by the SBS that ethnicradio should have adequate production facilitiesto ensure effective promotion andencouragement of performing artists from theethnic communities.

We endorse the proposal by the SBS that itshould develop its library of high qualityoverseas program material of relevance to ethnicradio audiences in Australia and recommendthat language co-ordinators and broadcasters

1 0Making Multicultural Australia Report by the Committee of Review of the SBS

and ethnic public broadcasters be consultedabout the selection of such material.

We recommend that resources be made availableto allow broadcasters at 2EA and 3EA to meetfrom time to time, and with ethnic publicbroadcasters, to exchange ideas and to discusscommon problems.

We endorse the proposal by the SBS that IPETSshould be equipped with high speed dubbing,ADP cataloguing and modern distributionfacilities to expand its services and include in itsactivities the distribution of program materialby terrestrial and satellite distribution systems.

We recommend that community liaison officersshould be appointed at 2EA and 3EA topromote programs on ethnic radio and todevelop a general community awareness of thestations.

We recommend that assessment of programcontent on 2EA and 3EA be by a system ofongoing monitoring of language programs byprogram consultative committees, with expertadvice where necessary.

Program policy for multicultural television(Chapter 9)

Recommendation

We recommend that multicultural televisionaim for a level of 50 per cent Australian contenton programs by 1988 and that the criteriadefining Australian content be those used by theAustralian Broadcasting Tribunal in its analysisof ABC and commercial programs.

We recommend that multicultural televisionprovide employment and training for people ofnon Anglo-Celtic background in on-air jobs inall types of programs, including news andcurrent affairs.

We recommend that if multicultural television isto increase substantially its production of dramain English or primarily in English, it must as afirm policy ensure that such productions offer

work for producers, actors, writers, composersand others of non Anglo-Celtic background andthat its drama and documentary programsactively counter stereotyped images of ethnicgroups and Aboriginal people.

We recommend that approximately 50 per centof programs in prime viewing time (6.00 p.m.-10.00 p.m.) be in English of a multiculturalnature and that, during the same period, thecriteria for selection of non-English programsshould be primarily based on quality andaudience appeal; with the proviso that thecriterion of quality be flexible so as to meet theneeds of communities for whom limitedmaterial is available.

We also recommend that the SBS explore thepotential for producing or commissioning low-cost material of various kinds in communitylanguages particularly when no suitable materialis available for certain ethnic communities.

We recommend that where a program ofparticular relevance or interest to an ethniccommunity is shown the introduction to thatprogram should be in the relevant communitylanguage as well as English.

We endorse the SBS Subtitling Unit's view thatthe televising of programs in their originallanguages with subtitles retains the integrity ofthe original languages.

We recommend that transmissions of children'sprograms commence at 4.00 p.m. on weekdays.We recommend that multicultural television besubject to the same statutory requirements asthe ABC in relation to children's programming,namely that it may submit programs to theABT for classification if its Board thinks fit.

We recommend that future audience researchattempt to ascertain the effects of subtitling,particularly on older children, and thatmulticultural television conduct experimentswith other strategies such as repeat programs inrevoiced form.

We recommend an increase in programming


relevant to the two to six year age group andadolescents.

We recommend that Channel 0/28 takeparticular care to schedule adult programs withpotentially offensive language at times whenchildren are not likely to be watching, or toprovide parents with adequate warning of suchprograms.

We endorse the suggestions for promoting 0/28children's programs made by Ms Helene Kon ofthe Australian Teachers of Media, which include

• fostering and promoting individualpersonalities to allow ready identification withparticular programs;

• appointing education liaison officers toprovide information to children and liaisewith schools and community-based children'sgroups.

We endorse the SBS recommendation that werecognise the SBS using other mass media topromote Network 0/28, and the need forincreased resources for such purposes.

We recommend that the SBS:

• actively pursue 'free' sources of promotionsuch as newspaper program guides;

• make more use of its own radio stations andpublic ethnic radio to promote multiculturaltelevision programs, and

• in its discussions with the ABC ensure thatthe cross-promotion of programs by ABC TVand multicultural television is a priority areaof co-operation.

We recommend that SBS extend its televisiontransmission hours into the daytime onweekdays, and that a priority element in thedaytime programming be programs designed tomeet the needs and interests of the ethniccommunities.

We recommend that resources be made available

to the SBS to permit an extension of programtransmission.

We agree in principle that additional resourcesshould be made available to multiculturaltelevision for gathering program materialoutside Sydney, subject to maximum co-operation between the SBS and the ABC as away of minimising both costs and duplication.

We recommend that, whether the multiculturaltelevision channel remains separate from theABC or not, its future program policy andschedules be closely co-ordinated with those ofthe ABC channel.

We recommend that the channel's programmingpolicy should be based not on audiencemaximisation at all times, but on the principleof providing material capable of attractingeveryone in the viewing audience at varioustimes (though not necessarily every day or evenevery week).

We endorse the SBS's revised objectives for itstelevision service.

Television production issues (Chapter 10)

Recommendation

We strongly endorse the proposition of theSouth Australian Film Corporation that the SBScontract some work to producers andproduction houses outside Sydney andMelbourne.

We recommend that multicultural televisioncontinue to obtain the majority of its Australianprograms from independent sources, by meansof its purchase of rights to independentlyproduced programs and by commissioningprograms; and that it make maximum use ofoutside facilities and concentrate onemployment of production staff on a short-termcontract basis.

We recommend that the SBS apply morerigorous scrutiny to the cost of commissionedprograms, if it has not already begun to do so.

1 2Making Mult icultural Australia Report by the Committee of Review of the SBS

We endorse the current approach of the SBSthat, in purchasing overseas material, everyeffort be made to achieve a proper transmissionplan, under which programs could be bought tofulfil overall program policy rather than havinga supply of programs which itself largelydictated the nature and 'look' of Channel 0/28.

We recommend a thorough-going review of thepurchasing policy for overseas material, takingaccount of:

• existing stocks of imported programs

• plans for local production/purchase ofAustralian material

• overall program policy and likelydevelopments in transmission and schedulingover the next three years.

We recommend that, in view of its capacity tonegotiate very favourable terms in its purchasingof overseas material, the SBS ensure that thebudget for overseas purchasing is set at a realisticlevel and that any resulting savings be re-directed to the purchase or production ofAustralian programs appropriate to amulticultural program policy.

While recognising the difference between theSBS and the ABC in that the former must callon outside resources constantly and to a fargreater extent than the ABC, we recommendthat the SBS be brought into line with the ABCon tendering procedures, in accordance with thegeneral emphasis of this report on standardizingthe operations of the two broadcasters.

News and current affairs (Chapter 11)

Recommendation

We recommend that the selection of newscontent should be made on the basis of theneeds and interests of the particular audienceand not on the basis of a fixed formula.

We endorse the proposal of the SBS to providein expanded form world and Australian news

including major ethnic and multicultural itemsof interest to particular programs for translationand broadcast by those programs. However,such material should be based on the needs andinterests of the community.

We recommend that the feasibility beinvestigated of appointing news and currentaffairs stringers in some countries not wellcovered by existing agency feeds in communitylanguage.

We recommend that the ABC be approachedregarding the supply to ethnic radio of news inAsian languages from Radio Australia.

We recommend that stringers be engaged incapital cities and provincial centres with highethnic populations not served by SBS radiostations.

We recommend that news bulletins bescheduled at a fixed, but not necessarily thesame point in each language program so thataudiences can become familiar with thebroadcast time.

We recommend that appropriate technicalfacilities such as editing equipment andlandlines be made available for exchange ofcurrent affairs material between languageprograms in 2EA and 3EA.

We recommend that current affairsprogramming in community languages onethnic radio should be encouraged andextended.

We recommend that talk-back facilities be madeavailable for general use at 2EA and 3EA assoon as possible.

We recommend that the SBS, as a matter ofurgency, reach agreement with the AJA to creditpart-time broadcasters responsible for preparingEA news and current affairs as journalistseligible for membership of the AJA in the sameway as agreement has been reached with theethnic press and AJA.


We recommend that the PSB and the SBSshould broaden their discussion about theproposed employment structure for broadcastersto consider how the need for members of alanguage group to prepare news and currentaffairs can be taken into account, particularly interms of qualifications and duty statementsrequired for such positions.

We recommend that a consultant be appointedto undertake a review of the news service. Theconsultant should be sensitive to the needs ofethnic communities as well as having anunderstanding of the operation of a multilingualnews service.

We recommend that an English language newsservice not be implemented on ethnic radio inthe near future.

We recommend an exchange between SBS andthe ABC of news stories of multicultural interestand that the ABC provide appropriate newsmaterial to the SBS from outside the SBScoverage.

We endorse in principle the SBS's proposal thatit substantially increase and diversify the sourcesof supply of international news items relevant toSBS audiences.

We recommend that the SBS establishmechanisms to ensure the maximum possibleco-operation between its radio and televisionnews resources.

We endorse the SBS proposal to staff its ownnews gathering facility in Melbourne.

We endorse the SBS proposal to establish a unitwithin the Television News Branch 'to provide aregular and separate program containing itemsof special interest to new migrants andindividual ethnic communities'

We recommend that the SBS considerestablishing a current affairs program tocomplement the news as a key element inoverall programming and station 'image', and toprovide an innovative approach - particularly to

multicultural issues.

We recommend that future plans for currentaffairs programs be determined only afterthorough consultation on audience needs.

We endorse the SBS's current policy ofsubtitling segments of the news where possible,and we recommend that where there is a choicebetween using a story that has to be subtitled orthe same story already dubbed, the SBS use theversion in the original language with subtitling.

We recommend that the SBS consider usingsubtitles, and explore the possibilities of dualsound transmission, for programs such asdiscussions or debates where accessibility to thecommunity concerned is particularly important.

Meeting major community needs: informationand education (Chapter 12)

Recommendation

We endorse the view of the SBS that ethnicradio should continue to have as its objectives aneed to provide information and advice tomigrants on their rights and obligations inAustralia, and should assist in the successfulintegration of non-English speaking migrantsinto Australian society.

We recommend that resources be provided forproduction of an information brochure on theuse of ethnic radio (and multicultural television)for information dissemination, for distributionto government and community serviceproviders.

We endorse the proposal of the SBS thatinformation units should be established at eachradio station to source and co-ordinate theproduction, dissemination and broadcast ofsettlement information.

We recommend that the proposed informationunits be closely involved with programproduction and presentation. TheProduction/Liaison Officer should work to theProgram Manager rather than as part of the


News Section.

We recommend that a Co-ordinator of RadioInformation be appointed at the appropriatelevel to head the Sydney unit, with particularresponsibility for liaison with major serviceproviders and co-ordination of national programcampaigns.

We recommend the development or extensionof suitable training programs for broadcasters toenable talk-back facilities to be used to their fullpotential.

We recommend that a procedure be developedas a matter of urgency to provide emergencyannouncements of ethnic radio. Responsibilityfor the preparation of such announcementsshould lie with the Program Manager and beundertaken by the information units at eachstation in consultation with broadcasters.

We recommend that the current guide How toUse Multicultural Television should be replacedwith a more attractive document which includesinformation about the audiences available tomulticultural television and their appreciation ofthe service.

We recommend that a Television CommunityInformation Unit be established headed by aCo-ordinator who is responsible to the Head ofPresentation, for the preparation andproduction of community serviceannouncements and other informationsegments.

We recommend the Unit be staffed with anexperienced producer/director and haveadequate research and production facilities, andthat additional production and researchpersonnel be contracted from time to time forparticular projects and campaigns.

We recommend that an Information LiaisonOfficer with experience in immigrant affairs andin radio and television production be appointedin the Secretariat Branch as the initial contactwith service providers and that the officer co-ordinate the development of the organisations'

information activities.

We recommend that community serviceannouncements in community languages onevening television be scheduled betweenprograms for a time not exceeding a total of 3minutes.

We recommend that daytime televisiontransmission time also be used to broadcastcommunity service announcements, particularlythose in community languages and that they bescheduled between programs for a time notexceeding a total of 3 minutes.

We endorse the SBS proposal for usingrecord/replay facilities which allow for theinsertion of local announcements and otherprogram material into the national signal andagree that it be provided with adequateresources to do so.

We recommend that provision of informationmaterial in community languages on ABC radioand television should be taken up by theABC/SBS Consultative Committee. Inparticular the use by the ABC of radio andtelevision announcements produced for use onethnic radio and multicultural television shouldbe considered.

We recommend that commercial stations beoffered the use of pre-recorded communityservice announcements prepared for broadcaston ethnic radio free of charge as required.

We recommend that the Co-ordinator of RadioInformation, in conjunction with publicstations, undertake limited surveys of the use ofparticular information campaigns in order toevaluate use of the service provided to publicstations.

We recommend that SBS concentrate onproviding a diversity of programs accessible tothe whole community and performing agenerally educative rather than educationalfunction in terms of multiculturalism.

We endorse as a desirable educative objective for


the SBS's total program output that thereshould be programs which give recognition tothe cultural diversity of Australia and promotecross cultural communication.

We endorse the establishment of an active linkbetween the SBS and the National Advisory andCo-ordinating Committee on MulticulturalEducation for the purpose of the developmentof suitable programs of multicultural education.

We endorse the suggestion of the NSW EthnicAffairs Commission that English lessons shouldbe made as entertaining as possible whileretaining their educational value.

We recommend that the SBS's educationcourses include audio and video cassettes, printmaterial, etc in support of broadcast educationprograms.

We recommend that the sharing ofresponsibility for the development, productionand distribution of English as a SecondLanguage (ESL) programs be a priority area fordiscussion and joint action by the ABC and theSBS.

We recommend that the SBS actively pursue allpossible outlets for its English languageprograms.

We endorse the recommendation by theDepartment of Immigration and Ethnic Affairsthat 'in addition to evening transmissions,priority be given to daytime transmissions of(education) programs targeted towards womenand others who are isolated from otheropportunities. to learn English'

We recommend that authorities involved in theSBS's English language learning series andaccompanying support materials should developa co-ordinated publicity and disseminationprogram.

We recommend that the SBS explore withRadio Australia the possibilities for co-operativemarketing of English language learningprograms and materials in the region.

We recommend continuing evaluation of thepopularity, relevance and effectiveness of theSBS's proposed English as a Second Languageseries. Responsibility for evaluation shouldprimarily rest with the SBS, but we recommendthe SBS's research and evaluation activities beclosely co-ordinated with the studies of Englishlanguage needs conducted by the Departmentsof Immigration and Ethnic Affairs andEducation and Youth Affairs.

We affirm the importance of ethnic radio andmulticultural television programs in communitylanguages, in providing language maintenance,renewal and learning for speakers and studentsof the languages.

We recommend that the ABC develop orpurchase language learning programs whichreflect the most widely used communitylanguages and those relevant to the region, inaddition to its existing schools-based programs.

We recommend that maximum possible co-ordination between the ABC and the SBS in theplanning, development and production ofeducation material continue whatever the futurestructural relationship between the ABC and theSBS.

We recommend the establishment of aneducation unit with these primaryresponsibilities:

• the identification of priorities and targetaudience

• consultation with educationalists and thecommunity

• liaison with the ABC and educationinstitutions

• monitoring the educational aspects of theSBS's general programs

• arrangements for the production of supportmaterial, and

• the overall development of educational


programs.

We recommend that the education units besmall, comprising perhaps an executive orsupervisory producer with educationalbroadcasting skills, a co-ordinator with abackground in education and minimal supportstaff.

We recommend that the education unit, whilemaintaining overall responsibility for programstyle and content, commission its product fromoutside organisations.

We recommend that the education unit shouldhave sufficient funds to employ expertconsultants for specific projects.

We recommend that the Board of the neworganisation give serious consideration toestablishing a co-ordinating and consultativecommittee for educational broadcasts, withrepresentation from appropriate organisationsincluding the ABC, AMEP, TAFE etc.

We endorse the following recommendationfrom the Department of Immigration andEthnic Affairs in the belief that the Governmentshould allocate additional funds to the SBS tosupport major program initiatives designed tomeet special and pressing community needs.'The Government support continuation of thepresent SBS trial television programdevelopments in conjunction with thisDepartment and agree to the priority need toprovide funds to enable the SBS to develop andproduce English language teaching programs forthe next five years with further developmentsbeing reviewable at that time.

We recommend that relevant Governmentdepartments and educational institutionscontribute to the development and productioncosts of programs in their specific spheres ofconcern, as necessary.

Community consultation and participation(Chapter 13)

Recommendation

We endorse the SBS view that it should interactwith its audience, actively seek and listen toadvice, and explain why programming decisionsare made.

We endorse the concept that consultative bodiesshould monitor and advise on programming,but should not in any way encouragecensorship.

We recommend that all communityconsultation undertaken by the SBS be relatedto its programs rather than to managerial,administrative or technical matters.

We endorse the following principles for effectivecommunity consultation by the SBS:

• Selection of appropriate mechanisms;

• Clear definition of the role and status of theconsultative processes employed;

• Suitable membership

• Legitimacy and independence of consultativebodies

• Adequate resources to ensure effectiveoperation of the consultative processes

• Outreach to and involvement of all interestedparties;

• Public accountability of the organisation;

• Some influence on policy and outcomes and

• Regular reviews of the operation andeffectiveness of the consultative processesemployed.

We endorse the concept that the SBS shouldmaintain close contact with communityorganisations and should publicise its


consultative mechanisms widely in order toincrease public accessibility to them.

We recommend that the different objectivesof ethnic radio and multicultural television bereflected in the organisation's consultativemechanisms, but that allowance be made for theneed for a national consultative body toconsider the total programming output.

We recommend the establishment of a NationalConsultative Council to the SBS or itssuccessor, replacing the SBS Advisory Council,and comprising a broad cross section ofinterests, skills, experience and understanding ofethnic communities round Australia.

We recommend that the National ConsultativeCouncil:

• consist of no fewer than nine nor more than11 members. Members should be appointedon a rotating basis and hold office for aperiod of two to four years

• provide advice to the Board, either on its owninitiative or at the request of the Board, onmatters relating to the new organisation'sradio and television programming

• meet a minimum of four times a year, andreceive remuneration as determined by theRemuneration Tribunal

• furnish an annual report to the Boardsummarising its activities and that this beincluded in the organisation's annual reportto Parliament.

We endorse the SBS's view that staff orcontractors of the Corporation not be eligiblefor appointment to advisory bodies.

We endorse the SBS Advisory Council's viewthat members should not be appointed asrepresenting the interests of particularorganisations but rather to draw upon theirpersonal experience and involvement in theAustralian community.

We recommend that the Minister forCommunications adopt a similar procedure inappointing the National Consultative Councilto that followed by the Australia Council, i.e.that in making appointments to the Council theMinister give consideration to names submittedby the Board from a list comprisingnominations made as a result of publicadvertisement and of suggestions received fromcommunity organisations.

We recommend that the functions of theNational Consultative Council be determinedalong the lines proposed by the SBS for theProgram Services Advisory Panel, and that theCouncil's functions and its relationship with theBoard be clearly defined in the proposedlegislation.

We endorse the SBS Advisory Council's viewthat the proposed legislation should contain asimilar clause to that included in the ABC Act,to the effect that where the Board receives anyadvice from the Council, the Board shall haveregard to the advice.

We recommend that the National ConsultativeCouncil be given adequate publicity andresources to carry out its responsibilities.Towards the end of its first year in office itshould advise the Board whether and if so wherethere should be State Advisory Councils.

We recommend the establishment of a smallaudience research unit within the CorporateAffairs Division and separate from themarketing operation.

We endorse the SBS proposal that $500,000 perannum be allocated to this unit forcommissioning research into radio andtelevision.

We recommend that the SBS convene a meetingof the Australian Broadcasting Tribunal, theAustralian Film Commission, the AustralianFilm & Television School, the AustralianInstitute of Multicultural Affairs and any otherinterested organisation to explore the possibilityof co-operative activities in the field of audience


research.

We recommend that the SBS or the neworganisation establish a Community LiaisonUnit, staffed by Community Liaison Officersand located within the Corporate AffairsDivision.

We recommend that the Community LiaisonOfficers be appointed according to standardemployment practices, and that at least oneCommunity Liaison Officer be outposted toboth 2EA and 3EA and be administrativelyresponsible to the Manager of the station.

The functions of the Community LiaisonOfficers should include the provision ofadministrative assistance to the organisation'sconsultative bodies, receiving and handlingcomplaints from the public, and liaising withethnic organisations, the ethnic broadcasters,those responsible for developing andimplementing policies on Channel 0/28 and thesub-titlers. Consideration should be given tothese officers also undertaking promotion,publicity and public relations functions. Werecommend that a summary of the CommunityLiaison Units activities be included in the neworganisation's annual report.

We recommend that the new organisation,perhaps with advice from the proposed NationalConsultative Council, adopt a flexible, multi-tiered approach in the establishment ofconsultative mechanisms for radio. Theprinciples underlying this approach shouldinclude

• the demand for particular consultativemechanisms in each community;

• the relevant characteristics of particularcommunities (e.g. size of community, specificneeds, community perception of theirprograms, etc.).

• costs and administrative requirements for theeffective operation of such mechanisms;

• other options of consultation which may be

more appropriate for some communities;

• an effective implementation schedule whichtakes into account the above.

We therefore recommend that in developingselection criteria, duty statements, etc for theemployment of broadcasters and co-ordinators,particular emphasis be given in the future todemonstrated sensitivity and understanding oftheir respective communities.

We recommend that instead of appointingspecialist advisory committees on issues ofconcern, the SBS conduct ad hoc consultationsand liaison with appropriate bodies withexpertise in a particular area.

Staffing, employment and industrial relations(Chapter 14)

Recommendation

We recommend that the enabling legislation forthe new corporation contain provisions forstaffing parallel to those of the AustralianBroadcasting Corporation.

We recommend the establishment of a specialtask force comprising senior representatives ofthe SBS, the Public Service Board and theDepartment of Communications to develop aplan for transition and oversee itsimplementation.

We recommend that the enabling legislationmake provision for flexible staffingarrangements along the lines of those adoptedfor the Senior Executive Service and itsequivalent in the ABC with all senior positionswidely open to general competition.

We recommend that the enabling legislationshould not preclude the SBS from entering intoarrangements for permanent part-timeemployment.

We recommend that the SBS and the PublicService Board expedite their negotiations aboutthe employment of broadcasters and co-


ordinators for ethnic radio.

We recommend that the SBS bring itsconditions of engagement for on-airpersonalities, including actors, into as closealignment as possible with those of people doingsimilar work at the ABC.

We recommend that the SBS commence acomprehensive corporate planning process assoon as possible.

We endorse our consultants' recommendationthat line managers share responsibility in therespective areas with the specialist staff of thePersonnel and Industrial Relations Sections.

Pending review of the legislation, werecommend that the SBS should seek theapproval of the Public Service Board to fillvacancies by advertising widely all positionswithin the SBS until the transfer is completed.There should be no bar on 'temporary' SBSstaff applying.

We commend to the SBS the use, whereappropriate, of outside consultants withknowledge of, and involvement in, thecommunities to help select candidates forspecialised positions.

We endorse the SBS's intention of conformingwith Equal Employment Opportunity (EEO)policies and legislative requirements whichwould involve the SBS in seeking to have theprovisions of section 22B of the Public ServiceAct applied to it by regulation.

We commend the approach of the SBS to givepreference to employees of ethnic backgroundwho can offer special capabilities to the SBS insituations where all other things might be equalbetween two candidates and to give preferenceto people of ethnic background in its trainingprograms, particularly in radio but also in areassuch as television production and programming.

We recommend that sensitivity to and awarenessof ethnic community interests be a standardinclusion in the selection criteria for all

positions at the SBS.

We recommend that an officer at a senior levelbe appointed to take responsibility for EEOactivities as soon as possible.

We support our consultants' recommendationthat the SBS establish an Industrial RelationsSection in support of line management, whichshould accept the principal responsibility forindustrial relations matters.

We recommend that the legislation establishingthe new corporation include provisions whichwould facilitate staff mobility between the newauthority, the ABC, the AFTS, the AFC, andpossibly the ABT, which is staffed under thePublic Service Act.

We recommend that in order to promoteindustrial democracy the enabling legislationshould provide for the establishment of anational management/staff consultative council

In developing an industrial democracy plan, werecommend that the SBS consult with stafforganisations in relation to the membership ofregular management/staff consultative meetingsat 2EA, 3EA and 0/28.

We recommend that the SBS and interestedstaff organisations consider whether it would beappropriate for the SBS to become a prescribedauthority under regulations pursuant to section22C of the Public Service Act.

We recommend that the jurisdiction of theMerit Protection Act be extended to the SBS,whether or not the SBS remains staffed underthe Public Service Act.

We recommend that the SBS, in co-operationwith officers of the Merit Protection Agency,undertake to advise all staff of their rights underthe new legislation and of differences inprocedures (if any) between the newarrangements and those that applied formerly.


Staff development and training (Chapter 15)

Recommendation

We endorse in principle the general approach totraining envisaged by the SBS in its submission.

We recommend the continued use of thebooklet Your Career Service in the inductionprocess for as long as SBS staff continue to beemployed under the Public Service Act.

We recommend the early attention of the SBSto developing suitable induction material andcourses.

We recommend that the SBS review thedevelopmental needs of its senior executives andnegotiate placements on the Senior ExecutiveManagement Program, and on other staffdevelopment courses such as the Public ServiceBoard's Executive Development Scheme andInterchange Program for senior managers.

We recommend that the SBS consider makinguse of advanced management and intermediatetraining and development courses such as thoseconducted by the Australian Graduate School ofManagement at the University of NSW and theAustralian Administrative Staff College and thatit consider conducting internal managementconferences.

We recommend that management include in itsprogram of training and staff development forsenior managers

• industrial relations

• financial management improvement

• computer awareness

• sensitivity training

• new technological developments

We urge the SBS and the Australian Film andTelevision School to review the trainingarrangements currently under development for

broadcasters and co-ordinators, to ensure theircompatibility with the practices at the ABC.

We recommend that the SBS and the ABCexamine the possibilities for joint professionalradio production and presentation training.

We endorse the concept that broadcasters andco-ordinators should be paid to attend trainingcourses.

We recommend that Training Officers beappointed, one each at 2EA and 3EA.

We support the SBS's proposal forestablishment of trainee radio news journalistpositions subject to the capacity of existingprofessional staff to manage the necessarytraining program.

We recommend that the SBS explore with theABC the possibilities for co-operative trainingarrangements for ethnic news journalists.

We support the proposal by the SBS to seekprovision of cadet journalist positions in thetelevision news department.

We endorse our consultants' suggestion that 'ifthe status of temporary employment is to bereviewed then the question of study assistanceshould be reviewed as part of any employmentpackage offered'.

We endorse the SBS’s proposal to develop in-house training facilities.

We recommend that the SBS establisharrangements by which senior management maybe kept informed of whether or not training anddevelopment objectives are being met, and mayrespond promptly if they are not.

We recommend that the resources availablefor in-house training be substantially upgraded.

We agree with our consultants that linemanagers should have the necessary authorityand control within policy guidelines to managethe training function effectively and to be


accountable for their performance.

We recommend that a document setting outtraining and staff development policy andobjectives should be prepared each year forconsideration and endorsement by the Board,and that the Board should include a report onthe achievement of its training staffdevelopment policy objectives in its AnnualReport to the Parliament.

We recommend that management consult theBoard members with a view to taking theirpersonal development needs and wishes intoaccount when preparing the training staffdevelopment strategy.

We recommend that the SBS ensure that theneeds of its administrative staff are notneglected when setting training priorities.

We recommend the introduction of trainingcourses for improving understanding andcommunication between the employees of theSBS with diverse ethnic backgrounds.

Other management issues (Chapter 16)

Recommendation

We recommend that any subsequentorganisation review of the SBS should address:

• radio management structure

• secretariat

• location of the Engineering Branch

• internal audit

• classification and responsibilities of the ChiefFinance Officer

• management of the ADP function

• personnel function

• introduction of industrial relations manager

• publicity and public relations function

• delegations

We endorse the proposal by the SBS that ethnicradio be reorganised into four functional areas,each headed by an Assistant Head of Radio,covering 2EA, 3EA, news and development andplanning.

We recommend the appointment of anOperations Manager and a Manager,Administrative Services, for ethnic radio.

We recommend the appointment of an AssistantHead of Radio, Interstation Services who wouldreplace the existing Manager, InterstationServices.

We endorse the view of our consultants that aplanning function should be included in thenew Secretariat Branch.

We recommend that the Engineering Branch betaken out of the Corporate Affairs Division andreport direct to the Executive Director.

We recommend that, if the SBS decides toadopt joint servicing arrangements for internalaudit with another organisation, it follow theguidelines published by the InterdepartmentalAdvisory Committee on Internal Audit.

We commend the report and other relevantpublications of the Interdepartmental AdvisoryCommittee on Internal Audit to the attentionof the SBS in deciding how best to achieve anappropriate internal audit service.

We recommend that the SBS upgrade its AuditCommittee to be chaired by the ExecutiveDirector and to include the Heads of Radio andTelevision, the Chief Internal Auditor (whetheror not hired from outside the SBS) and theChief Finance Officer and regular meetings bescheduled and a revised charter drawn up.

We endorse our consultants' recommendationfor upgrading of the position and qualificationsof Chief Finance Officer.


We endorse the recommendation of ourconsultants that there be an organisationalreview of the personnel function.

We recommend that a specialist industrialrelations unit be established headed by a sectionleader at about the Clerical Administrative Class10 or 11 level.

We recommend that sub-section 79X(1) of theBroadcasting & Television Act be redrafted tomake clear that the SBS may as appropriatedelegate its powers to either 'permanent, or'temporary’, staff members.

We recommend that sub-sections 79Y(2) and79Y(3) of the Act be repealed.

Pending review of the legislation we recommendthat the SBS review its current delegations, inconsultation, if necessary, with the Departmentof Finance, with a view to simplifying internalProcedures, eliminating unnecessary paper workand placing delegations as much as possible inthe hands of line managers.

We recommend that the SBS ADP SteeringCommittee be chaired in future by at least theHead of Corporate Affairs, if not the Executivedirector.

We recommend that the SBS set up a task forcechaired by the Executive Director, to review itsfinancial management processes in the light ofthe principles of the Commonwealth FinancialManagement Improvement Program.

We recommend that similar provisions tosection 70 of the Australian BroadcastingCorporation Act 1983 should be incorporatedin the new SBS legislation.

We suggest that the SBS consult with the PSBwith a view to arranging computer awarenesscourses for all senior executives and obtainingassistance for the ADP co-ordinator in thedevelopment and conduct of training for thestaff and managers directly concerned withoperating and working with the product ofcomputers.

We support the recommendations by the SBSand the Department of Administrative Servicesto consolidate the SBS operations in Sydney at asingle Commonwealth owned site.

Sources of funds (Chapter 17)

Recommendation

We recommend that for the time being therebe no expansion in the marketing area of theSBS and that the organisation review the level ofstaff resources allocated to marketing in thelight of past performance and limitedexpectations of revenue from this area.

We endorse our consultants' suggestion that theSBS should make use of the ABC's existingshopfronts as outlets for its marketable material,and should work more closely with the ABC onlocal and overseas program sales.

We recommend that there be no form ofadvertising or sponsorship on the SBS's radio ortelevision stations.

We recommend that the SBS actively pursueevery avenue for the use of the concessions toinvestors allowed under Section 10BA of theIncome Tax Assessment Act, as a means ofreducing the level of its own commitment offunds to local production.

We recommend that the SBS actively pursue allavenues for co-productions and joint venturesboth within Australia and with broadcasters andproducers overseas.

We recommend that the SBS actively pursue thepotential for sales of SBS program rights toother broadcasters, and the possibilities of rightssharing, both as a potential source of revenueand as a means of sensitising other broadcastersto the existence of special audience needs.

We recommend that the SBS actively pursuethe possibility of offering Australian programs,either in lieu of cash payments or as partpayment for the overseas programs, in exchangefor programs from countries which have limited

2 3Making Mult icultural Australia Report by the Committee of Review of the SBS

capacity to purchase foreign material.

We endorse the SBS proposal to maintaincontact with government film funding anddevelopment agencies in order to canvass waysin which the SBS could become involved in theearly stages of worthwhile projects.

Technical issues (Chapter 18)

Recommendation

We recommend that, in restructuring the SBS asrecommended in Chapter 7, the SBS be placedon the same footing as the ABC in relation tothe ownership, operation and maintenance oftransmitters, transmitting stations and technicalequipment.

We recommend that the terms of reference ofthe Special Broadcasting Service PlanningCommittee be re-drafted to emphasise the roleof the SBS as an initiator of proposals for thedevelopment of its future services.

We recommend as an indispensable minimum amajor publicity campaign by the Department ofCommunications and the SBS to ensure thatSydney and Melbourne audiences arethoroughly educated about UHF receptionbefore 5 January 1986.

We endorse the recommendation of the SBSthat, if new and existing mainstream televisionservices are to be on UHF where possible, theGovernment should review the decision toexpand SBS Television on UHF only.

We endorse the recommendation of the SBSthat, when its television service is extended, theprinciple that its level of coverage be at leastequal to that being provided by other televisionservices within the same area be observed.

We recommend that existing contracts betweenthe SBS and the Bill Armstrong Organisationfor 2EA and 3EA due to end in June 1986 bereopened to provide for a term likely to coincidewith the availability of permanent facilities inSydney and Melbourne.

We recommend that the SBS secure governmentapproval for the construction and outfitting ofpermanent premises for 2EA and 3EA, and thatprovision be made for the organisation toassume responsibility for the stations' technicaloperations to coincide with their completion.

We recommend that, in the meantime, the SBSestablish an Ethnic Radio Technical Committeeconsisting of representatives of SBSmanagement and engineering and of the BillArmstrong Organisation to meet at leastquarterly to consult on existing technicalproblems and future plans for 2EA and 3EA.

Future services (Chapter 19)

Recommendation

We recommend that the Government shouldcomplete the introduction of multiculturaltelevision to all significant population centres,and to outback Australia through directbroadcasting.

We recommend that the SBS take into accountthe needs of the Aboriginal and Islander peoplein Darwin when preparing community serviceannouncements for ethnic communities inAdelaide and Darwin.

We recommend that the SBS investigate the useof Community Service Announcementmachines for the insertion of locally relevantprogramming rather than using them exclusivelyfor community service announcements.

Summary of recommendations affecting theenabling legislation

Recommendation

We recommend that each of the ABC and theMBC should have a statutory obligation tomake a specific report at six-monthly intervalsto the Minister of Communications on the stepstaken towards co-operation and co-ordination ofresources and facilities and that these reportsshould be tabled in Parliament.


We recommend that multicultural and ethnicbroadcasting services be administered by aseparate authority, and the new authority shouldbe given its own Act of Parliament.

We recommend that a new independentstatutory body, to be called the 'MulticulturalBroadcasting Corporation' (MBC), should beestablished to replace the present SBS.

We recommend that it should be the functionof the new organisation to provide an innovativeradio and television service of a high standard aspart of the Australian broadcasting andtelevision system consisting of national,commercial and public sectors. Withoutlimiting the generality of that function, theMBC should provide radio and televisionprograms which:

(i) entertain, inform and educate theAustralian community including itsethnic, Aboriginal and Torres StraitIslander communities.

(ii) contribute to the development of amulticultural society by promoting acommon sense of Australian identity,mutual understanding, appreciationand acceptance of the diverse culturesand traditions within the Australianpopulation.

We recommend that the new organisationshould be under a statutory obligation to haveregard to the services provided by the AustralianBroadcasting Corporation and to co-operateclosely with that body.

We recommend that the AustralianBroadcasting Corporation Act be amended toinclude a corresponding obligation on the partof the Australian Broadcasting Corporation toco-operate with the new organisation.

We recommend that it be part of the charter ofthe MBC that it acknowledge the commoninterests it shares with ethnic publicbroadcasters and that it be under a statutoryobligation to co-operate with them by providing

programs and services for them as appropriateand required.

We recommend that in the provision by thenew organisation of its radio and televisionservices within Australia it should have regard to

(i) The standards from time to timeprovided by the AustralianBroadcasting Tribunal in respect ofradio and television services; and

(ii) Radio and television services providedby the commercial and publicbroadcasting sectors of the Australianbroadcasting and television system.

The Chairman and Ms Dunne agree with theSBS recommendation that a Board of five toseven directors would be appropriate for theMBC. Mr Lippmann considers the Boardshould have seven to nine members.

We recommend that the Board members shouldbe part-time, appointed for a period notexceeding five years and be eligible forreappointment, that there should be a part-timeChairman, and Deputy Chairman appointed bythe Government and that there be a staff-electedmember of the Board.

We recommend that the duties of the MBCBoard should be specified in the legislation.

We recommend that the chief executive officerbe known as the Managing Director and beappointed by the MBC Board.

We recommend that the chief executive beappointed for not more than five years witheligibility for reappointment. The functions ofthe position should be stated in the enablinglegislation. The chief executive should be an exofficio member of the Board.

We recommend the establishment of a NationalConsultative Council to the SBS or itssuccessor, replacing the SBS Advisory Council,and comprising a broad cross section ofinterests, skills, experience and understanding of


ethnic communities round Australia.

We recommend that the National ConsultativeCouncil

• consist of no fewer than nine nor more than11 members. Members should be appointedon a rotating basis and hold office for aperiod of two to four years

• provide advice to the Board, either on its owninitiative or at the request of the Board, onmatters relating to the new organisation'sradio and television programming

• meet a minimum of four times a year, andreceive remuneration as determined by theRemuneration Tribunal

• furnish an annual report to the Boardsummarising its activities and that this beincluded in the organisation's annual reportto Parliament.

We recommend that the functions of theNational Consultative Council be determinedalong the lines proposed by the SBS for theProgram Services Advisory Panel, and that theCouncil's functions and its relationship with theBoard be clearly defined in the proposedlegislation.

We endorse the SBS Advisory Council's viewthat the proposed legislation should contain asimilar clause to that included in the ABC Act,to the effect that where the Board receives anyadvice from the Council, the Board shall haveregard to the advice.

We recommend that the enabling legislation forthe new corporation contain provisions forstaffing parallel to those of the AustralianBroadcasting Corporation.

We recommend that the enabling legislationmake provision for flexible staffingarrangements along the lines of those adoptedfor the Senior Executive Service and itsequivalent in the ABC with all senior positionswidely advertised and open to general

competition.

We recommend that the enabling legislationshould not preclude the SBS from entering intoarrangements for permanent part-timeemployment.

We endorse the SBS's intention of conformingwith Equal Employment Opportunity (EEO)policies and legislative requirements whichwould involve the SBS in seeking to have theprovisions of section 22B of the Public ServiceAct applied to it by regulation.

We recommend that the legislation establishingthe new corporation include provisions whichwould facilitate staff mobility between the newauthority, the ABC, the AFTS, the AFC, andpossibly the ABT, which is staffed under thePublic Service Act.

We recommend that in order to promoteindustrial democracy the enabling legislationshould provide for the establishment of anational management/staff consultative council.

We recommend that the SBS and interestedstaff organisations consider whether it be wouldbe appropriate for the SBS to become aprescribed authority under regulations pursuantto section 22C of the Public Service Act.

We recommend that the jurisdiction of theMerit Protection Act be extended to the SBS,whether or not the SBS remains staffed underthe Public Service Act.

We recommend that sub-section 79X(1) of theBroadcasting & Television Act be redrafted tomake clear that the SBS may as appropriatedelegate its powers to either 'permanent' or'temporary' staff members.

We recommend that sub-sections 79Y(2) and79Y(3) of the Act be repealed.

We recommend that similar provisions tosection 70 of the Australian BroadcastingCorporation Act 1983 should be incorporatedin the new SBS legislation.


We recommend that, in restructuring the SBS asrecommended in Chapter 7, the SBS be placedon the same footing as the ABC in relation tothe ownership, operation and maintenance oftransmitters, transmitting stations and technicalequipment.


report by the committee of review of the special broadcasting service

Documents