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O Modelo Europeu de Serviço Público de Televisão - o Caso Português
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O objectivo deste estudo consiste em encontrar os traços caracterizadores da especificidade portuguesa no quadro do modelo europeu de serviço público de televisão. Em primeiro lugar, analisando as épocas marcantes no seu desenvolvimento: a sua origem, no quadro geral da evolução das comunicações, herdando apenas algumas características do operador público de radiodifusão e formando uma empresa autónoma e, ao contrário daquela, com uma maioria inicial de capitais privados; o fim do monopólio televisivo, dando origem a um regime dual, caracterizado pela coexistência entre um serviço público e operadores comerciais, que lhe colocaria novos desafios, provocados por graves problemas financeiros e por uma notória crise de legitimidade; a transição para a era digital, marcado pelo fim do oligopólio dos três operadores generalistas, pela progressiva fragmentação das audiências e pela emergência de novas plataformas de difusão do sinal televisivo, criando ao operador de serviço público novos desafios e oportunidades. A definição da especificidade portuguesa no modelo europeu de serviço público de televisão impõe ainda um outro ângulo de análise, decorrente do aprofundamento do estudo das políticas públicas para o sector da comunicação social, em especial dos três elementos cruciais que reflectem as opções do poder político na definição do quadro de actividade do operador de serviço público: os modelos de governação, de financiamento e de regulação. O modelo de governação tem constituído um dos aspectos mais polémicos. A RTP tem, desde a sua fundação, um modelo governamentalizado, que não seria modificado com o início do regime democrático, mas apenas através de algumas medidas de salvaguarda da sua independência instituídas nos últimos quinze anos. A sucessão de conselhos de administração e a relação entre a mudança de maioria política e a consequente escolha de novos gestores e directores de conteúdos, que apenas recentemente não se concretizou, permitem que se refira ter existido uma cadeia hierárquica de controlo político iniciada no Governo, apesar da clara separação, consagrada na legislação, entre a gestão da empresa e a direcção dos conteúdos. O modelo de financiamento do operador público apresenta especificidades. É essencialmente assegurado através de verbas previstas no Orçamento do Estado, uma vez que os montantes provenientes da exploração da publicidade, de outras receitas comerciais e da contribuição para o audiovisual atingem em conjunto valores inferiores. Antes, passaria por três fases: uma primeira, até 1991, baseado nas receitas da taxa e da publicidade; uma segunda, posterior à extinção da cobrança da taxa e ao início de actividade dos operadores privados, em que prevaleceria uma grave crise de financiamento; uma terceira, desde 2003, de consistente recuperação. Ao contrário dos anteriores modelos, o modelo de regulação da comunicação social tem tido um percurso associado à realização, em quatro ocasiões, de acordos entre, pelo menos, os dois principais partidos. Originado pela preocupação de assegurar a independência do então vasto sector público face ao poder político, a regulação, no que tange à RTP, tem deixado de ser prioritariamente solicitada para garantir o rigor e o pluralismo informativos, progressivamente substituídos pela harmonização do direito à informação com outros direitos fundamentais.
This study tries to establish the dominant traits of the Portuguese case within the European model for television public service. Firstly, it analysis the main stages in its development: its origin within the general evolution of communications, only inheriting some traits of public broadcasting and establishing an autonomous company with an initial majority of private capital; the end of television monopoly, spinning off into a dual system whereby a public service coexists with commercial stations, thus raising new challenges created by serious financial problems and by a visible legitimacy crisis; transition to digital, bringing the end of the three television stations’ oligopoly, by the increasing market fragmentation and by the arrival of new broadcasting platforms, which brought new challenges and opportunities to the public service broadcaster. Defining the Portuguese case within the European model for television public service requires another angle that arises from deepening the study of public policies for the media, especially three key elements that reflect political options within public broadcasting: models for governing, financing and regulation. The model for governing has been at the center of much debate. Since its inception, RTP has been under governmental influence, something that was not changed when democracy arrived. Changes only occurred after some steps were taken in the last fifteen years to guarantee RTP’s independence. The permanent changes in governing boards and the direct relationship between a change of government and a change of managers and editorial heads, a trend that only recently was interrupted, allows us to claim there has been a hierarchical chain of political control from the government of the day, despite a clear separation, required by law, between the management of the company and its editorial leadership. The model for financing presents some specific aspects too. It’s basically ensured by the annual state budget, due to the small amount of funds raised by the advertising income, the other commercial revenues and the public broadcasting tax. This model has known three stages: the first one, until 1991, was based in the public broadcasting tax and advertising; the second one, between the end of the public broadcasting tax and the beginning of commercial television, brought a serious financing crisis; the third one, since 2003, has been dominated by a consistent financial recovery. Unlike the previous models, the model for media regulation has been influenced by four agreements between at least the two main political parties. Driven by the need to ensure the independence of the vast public sector regarding the political establishment, the regulator has been approached with less requests to ensure RTP’s unbiased coverage, an issue progressively replaced by the need to harmonize the right for information with other fundamental rights.
This study tries to establish the dominant traits of the Portuguese case within the European model for television public service. Firstly, it analysis the main stages in its development: its origin within the general evolution of communications, only inheriting some traits of public broadcasting and establishing an autonomous company with an initial majority of private capital; the end of television monopoly, spinning off into a dual system whereby a public service coexists with commercial stations, thus raising new challenges created by serious financial problems and by a visible legitimacy crisis; transition to digital, bringing the end of the three television stations’ oligopoly, by the increasing market fragmentation and by the arrival of new broadcasting platforms, which brought new challenges and opportunities to the public service broadcaster. Defining the Portuguese case within the European model for television public service requires another angle that arises from deepening the study of public policies for the media, especially three key elements that reflect political options within public broadcasting: models for governing, financing and regulation. The model for governing has been at the center of much debate. Since its inception, RTP has been under governmental influence, something that was not changed when democracy arrived. Changes only occurred after some steps were taken in the last fifteen years to guarantee RTP’s independence. The permanent changes in governing boards and the direct relationship between a change of government and a change of managers and editorial heads, a trend that only recently was interrupted, allows us to claim there has been a hierarchical chain of political control from the government of the day, despite a clear separation, required by law, between the management of the company and its editorial leadership. The model for financing presents some specific aspects too. It’s basically ensured by the annual state budget, due to the small amount of funds raised by the advertising income, the other commercial revenues and the public broadcasting tax. This model has known three stages: the first one, until 1991, was based in the public broadcasting tax and advertising; the second one, between the end of the public broadcasting tax and the beginning of commercial television, brought a serious financing crisis; the third one, since 2003, has been dominated by a consistent financial recovery. Unlike the previous models, the model for media regulation has been influenced by four agreements between at least the two main political parties. Driven by the need to ensure the independence of the vast public sector regarding the political establishment, the regulator has been approached with less requests to ensure RTP’s unbiased coverage, an issue progressively replaced by the need to harmonize the right for information with other fundamental rights.
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Palavras-chave
Serviço público de televisão RTP Modelo de governação Financiamento Regulação Television public service Government model Financing Regulation