Pedro Norton de Matos, Boston University
February 1999
Abstract
The debate on television’s "public service" obligations can only
make full sense if integrated in the broader context of the debate on the
best political model for society.
In fact, the classic "public service" rationale is based in a
normative conception of good and in a suspicious view of the average citizen
that is largely tributary of a Platonic or Elitist approach to the political
organization of society. The question is therefore to know if such a view
is legitimate in a Liberal Democratic society.
Our understanding is that it is fundamentally incompatible the
classic definition of a Liberal Democracy. In a Liberal Democracy, the
individual is highly praised and no specific conception of good is imposed
to society, whereas in the Platonic Republic the philosopher king is in
charge of defining such a normative view and of imposing it to the ignorant
masses. The "Public service" doesn’t have a place in the Jeffersonian Republic.
Public service in the context of a broader debate.
To reflect upon the concept of "public service" is, in many ways, to
reflect upon a political model for society. This is not to say that the
extent of state or "public" intervention in the broadcasting industries
wasn’t deeply influenced by several non-political factors. The geography,
the economic status and the linguistic, regional and cultural traditions
of particular countries were some of those important factors. So were the
specific social conditions in the early years of broadcasting: while most
European countries were in the mid 20’s, highly stratified societies, the
United States were struggling to integrate, within a common cultural ground,
the culturally heterogeneous immigrants arriving in massive waves. These
differences were not to be without importance for the future of broadcasting
in those countries. Finally, spectrum scarcity and the consequent need
for regulation and for the grant of specific allocations was another factor
that made state intervention in the broadcasting industry almost obligatory.
But, to some extent, those factors only served to support or deter two
conflicting ideological approaches to the concept of public service.
The first is a Liberal approach, which, in its pure version is incompatible
with the notion of public service. The second, and as we believe, the only
behind the traditional notion of public service, is a Utopian, Elitist
or Platonic orientation (in many cases not distant from Marxist schools
of thought (1) ). The two visions are essentially
epitomized in the so-called American and European (continental) models,
and in many ways they are a reflection of two different interpretations
of Democracy itself. The first approach cherishes the concepts of individual
liberty and pluralism, and therefore refuses a normative project for society.
The second, in many ways tributary of French rationalism and constructivism
(and, paradoxically, also of Plato and Marx’s utopianism), proposes a holist
view of society, the existence of absolute common values, and places the
notion of public service in the context of a broader project for society.
But although as we said, the two conflicting visions generally correspond
to two alternative experiences, it seems more prudent to place the discussion
of the status of "public service" in the realm of ideas rather than to
try to exactly match these with specific models. If, as we believe, the
core of any argumentation in favor of "public service" can be related to
a Platonic or Elitist framework, it seems impossible to deny that other
contradicting influences contribute to shape each specific model. One obvious
example is the problem of cataloguing the uniqueness of the British approach.
In fact, if as we will see, Reith’s original vision of "public service"
can easily be called Elitist and Platonic, his thought is probably much
more tributary of Puritanism than of Marxism. On the other side, the subsequent
evolution of the BBC model until the consulate of Mrs. Thatcher seems to
set it apart from its continental (and especially Latin) counterparts in
terms of its less elitist approach to culture and of its independence from
political intervention and design.
The classic "public service" rationale: Orwell, Bread and Circus
According to Dominique Wolton (2) , two
fundamental questions are on the origin of public television in post-war
Europe:
"First the fear provoked by this new medium, even more frightening
than radio in the sense that it added the image. A radio whose utilization
made by the German and Italian fascists, not forgetting the distant echoes
from Latin America, of its utilization in Brazil by Vargas and specially
in Argentina by Peron, was still at that time in the mind of everyone.
The mass media are therefore perceived as being dangerous and needing to
be controlled by the public power. (…) At last, came the idea, defended
by the first television professionals, the politics and the cultivated
elite in general, that television, if correctly used, could be a fantastic
instrument of cultural democratization."
In fact, the use of radio before and during the war on one side, and
the Orwellian imagery of an omnipresent Big Brother on the other side,
seem to have largely contributed to overstate the power and the danger
of the new medium. In the hands of a totalitarian government it has the
power to achieve any Big Brother’s vision of a conforming society. But
even in the context of democratic societies, it is often said, television
recreates reality, sets the political agenda, and, in a word, manipulates
the viewers. It is a non-controlled power with a hidden agenda. And even
if in more recent critiques the Orwellian imagery has given way to a more
conspiratorial view of the power of big corporations (3),
the rationale remains the same: television power cannot go loose.
Another traditional accusation common to "public service" enthusiasts
is one that states that television poorly serves the cause of culture.
Cultural uniformity, lowering of taste standards, fragmentation of knowledge,
are some of the its alleged effects. Mass culture, it is said, marginalizes,
and ultimately condemns, every cultural production that doesn’t appeal
to the widest audiences. The taste of the greatest number is the new cultural
paradigm. Beauty and the truth are defined in terms of mass appeal.
In Europe an additional and related problem is usually associated with
television: the loss of cultural identities in detriment of foreign (e.g.
American) cultural references that suit better the needs of a global culture
industry subject to the economic imperatives of commercialism. As Alain
Minc (4) puts it, "with television rightist
and leftist extremists finally find a scapegoat for their anti-Americanism."
But paradoxically, television’s potentially positive effects, either
in politics and in culture, are frequently emphasized among those who defend
a public intervention in television. Television is conceived as having
the power to manipulate and alienate the viewer, but also as having, if
properly used, the astonishing capacity to elevate and educate the masses.
The evil, so it seems, can be turned into the good. The "public service"
rationale is largely a consequence of this view. For those who – in a sadomasochist
manner, to use Alain Minc’s expression (5) –
both fear and are attracted by the power of television, the belief that
it has the messianic responsibility to use its power correctly is a logical
consequence. Not to do so seems almost criminal. De Gaulle, who had learned
the importance of radio during the occupation, always viewed television
as the supreme means for diffusing the knowledge of French culture. Even
Sarnoff, in the early years, compared the mission of television to that
of a public library (6) , and Reith, the historic
General Manager of BBC, viewed broadcasting as a "servant of culture".
His words are elucidative of this line of thought:
"As we conceive it, our responsibility is to carry into the greatest
possible number of homes everything that is best in every department of
human knowledge, endeavor and achievement." (7)
As we implied, there is obviously an enormous distance between Channel
Four’s original approach to a cultural policy and that of the esoteric
French-German Arte. There is little in common between the independent
statute of BBC and the highly manipulated Latin public channels. There
is an abyssal difference between a public service financed by a tax on
receivers, and a public channel supported directly both by governmental
subsidies and commercial revenues. This is to say that there are unequivocally
good and bad examples of "public service". But all seem to share an instrumental
view of television’s role in the bettering of society. The question is
to know if that view is legitimate.
Plato’s Republic
The problem behind the traditional concept of "public service", besides
the fact it rests in an oversimplified understanding of television’s effects
("it’s not because everybody sees the same thing, that the same thing is
seen by everybody") (8) , is its underlying
assumptions. To state the legitimacy of public service in these terms supposes
the existence of a "good" or "high" culture, or in a broader sense, a superior
goal that every citizen should pursue, a normative conception of good.
To state it in the messianic way we described, also supposes a particular
view of the average citizen of our mass societies. One that denies him
the capacity to define what is best for himself.
Neither of these ideas is compatible with a genuine belief in liberal
democracy. Both are tributaries of a Platonic vision of the ideal Republic.
One deeply suspicious of democracy. One governed by the king philosopher
that knows better what is best for the masses. One that clearly states
a normative conception of good:
"In the world of knowledge, the essential Form of Good is the limit
of our inquiries, and can barely be perceived; but, when perceived, we
cannot help concluding that it is in every case the source of all that
is bright and beautiful— in the visible world giving birth to light and
its master, and in the intellectual world dispensing, immediately and with
full authority, truth and reason— and that whosoever would act wisely,
either in private or in public, must set this Form of Good before his eyes."
(9)
Strangely enough, one Republic whose enlightened leadership was as
suspicious of the average citizen capacities as, many years later, John
Reith would confess to be:
"It seemed that I said dreadful things about the average man, his lack
of intelligence and capacity; about parents not preparing their children
for a definite career, sacrificing them to dead-end occupations for the
sake of immediate wages; about lack of ambition; about lack of leadership;
about rampant mediocrity. For public consumption I should certainly have
put some things differently, but there was not much wrong with the content."
(10)
Jefferson’s Republic
Liberal Democratic thought intrinsically opposes this view of the individual
and of society. Liberal Democracies do not state imperative social goals
of any kind. They are anchored in the principle of individual rights, not
in the idea of absolute values. They are intrinsically non-foundational
as clearly demonstrate the words of political philosopher Benjamin Barber:
"By my lights (…) it is the character of politics in general, and of
democratic politics in particular, that it is precisely not a cognitive
system concerned with what we know and how we know but a
system of conduct concerned with what we will do together and how we agree
on what we will to do. It is practical not speculative, about action rather
than about truth. It yields but is not premised on an epistemology and
in this sense is necessarily pragmatic. Where there is truth or certain
knowledge there need be no politics (…). Democratic politics begin where
certainty ends.
(…) Politically, we may define democracy as a regime/culture/civil
society/government in which we make common decisions, choose common conduct
or express common values in the practical domains of our lives in an ever-changing
context of conflict of interests and competition for power – a setting,
moreover, where there is no agreement on prior goods or certain knowledge
about justice or right and where we must proceed on the premise of the
base equality both of interests and of the interested." (11)
In the same direction, British philosopher Bertrand Russel states:
"The essence of the Liberal outlook lies not in what opinions
are held; instead of being held dogmatically they are held tentatively,
and with a consciousness that new evidence may at any moment lead to their
abandonment." (12)
The non-foundationalism of Liberal Democracies is not, it is important
to note, a synonym of nihilism. It doesn’t deny the ultimate existence
of truth. It simply restrains the state to dogmatically impose upon society
one specific conception of good. This applies to the political as well
as to the economical and cultural realms.
In a Liberal Democracy, moreover, the individual is highly praised.
Liberal Democracy rests in the assumption that the individual has unalienable
rights that are prior to the creation of the state. State itself is only
created to secure those individual rights. Its only legitimacy comes from
the consent of the governed. Individual freedom and individual natural
rights are only to be limited when they interfere with someone else’s.
State intervention cannot be legitimated by any other reason. The individual
is, in a sense, the hero of a Liberal Democracy.
A fundamental incompatibility
If we are correct in asserting that "public service" theory is based
upon a normative conception of good and on a suspicious view of the common
citizen (and therefore, let’s not hide it, on a suspicious view of Democracy),
it is therefore legitimate to conclude that it is incompatible with a liberal
democratic ideal as we understand it.
Milton’s marketplace of ideas from which truth will ultimately arise
has little in common with the king philosopher’s dogmatic truth. The individual
citizen, the center of the democratic regime, called to periodically elect
his government and to state his will, has little in common with the fragile
viewer who can’t choose what is best for himself. In the words of Dominique
Wolton:
"(…) it is difficult to simultaneously defend the importance of the
sovereign people, the history’s and democracy’s actor, the hero of the
universal suffrage, and to state that that same people is alienated and
passive when it is turned into the mass public of television." (13)
But to state that the "public service" doesn’t have a place in liberal
democratic societies doesn’t imply that liberal democratic societies can’t
have a policy for television. On the contrary, the existence of rules is
central for the establishing of a liberal regime:
"All that makes existence valuable to any one depends on the enforcement
of restraints upon the actions of other people." (14)
It seems therefore not only possible but also desirable, that a liberal
state should establish a framework within which television is restrained
to harm individual liberties. Laws that prevent defamation and damage to
reputation, laws that assure privacy and peace of mind, laws that defend
pluralism and the free expression of ideas (through anti-monopolistic regulations),
are good examples of negative restraints imposed to television, and to
the media in general, that are perfectly compatible with a liberal regime.
But there is nevertheless an unsurpassable distance between a negative
restraint imposed to protect third party liberties, and a positive obligation
to publicize and teach a dogmatic truth.
Bibliography
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Barber, Benjamin. A passion for Democracy – Princeton University Press, 1998.
Barnouw, Erik. A history of broadcasting in the United States – Oxford University Press, 1968.
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Briggs, Asa. The history of broadcasting in the United Kingdom - Oxford University Press.
Espada, J.C. A tradição da Liberdade – Principia, 1998.
Minc, Alain. O choque dos media – Quetzal Editores, 1994.
Popper, Karl and Condry, John. Televisão: um perigo para a Democracia – Gradiva, 1995.
Smith, Anthony. Television, An International History – Oxford University Press, 1995.
Wolton, Dominique. Elogio do grande publico – Edições Asa, 1994.
Wolton, Dominique. Penser la communication – Flammarion, 1997.
1- See Wolton, Dominique in "L’éloge du grand public" on the importance of the works of Marcuse, Adorno and the of the Frankfurt school in the shaping of the European television theory.
2- Wolton, Dominique. "L’éloge du grand public".
3- See Bagdikian, B.H. "The Media Monopoly"
4- Minc, Alain. "Le media-choc"
5- Minc, Alain. "Le media-choc"
6- Bilby, Kenneth. "The General: David Sarnoff and the rise of the communications industry."
7- Cited by Smith, Antony. "Television: an international history"
8- Wolton, Dominique. "L’éloge du grand public".
10- John Reith cited in "Into the Wind"
11- Barber, Benjamin. "Foundationalism and Democracy" in "A Passion for Democracy"
12- Russel, Bertrand. "Philosophy and Politics"