The governance of digital switchover of terrestrial television in the European Union: The role of policy framing

Abstract

Digital switchover of (DSO) of terrestrial broadcasting constitutes one of the most critical moments of policy change in Europe because it offered a unique opportunity of reconceptualising public media space for the next era of communication. The promise of a plural and public service oriented broadcast policy legitimized efforts of citizens investing in digitization, provided public acceptance and approval to the changes set to terminate analogue television. This article explores the policy framing of the switchover process in the European Union. It finds that DSO was constructed around overly technical and economic frames in the policy, a strategy, which allowed building an argument of neutrality of technology and hence of the steps policy-makers were making. This construction did not address the exclusion and side-lining of the social and political consequences of free-to-air reduction. The article argues that this practice provided a low-conflict policy process led by the European Commission between 2005 and 2015 and showcased a paradox on European spectrum policy. The article further argues that the governance of digitalization of Europe’s screens presents a case of highly complex low-salience regulatory policy, which means muted participation of citizens and limited public debate. Ultimately, this strategy undermines democratic practice and meaningful transparency in European policy-making as it eliminates deliberations on what constitutes public interest in the 21st media context. The analyses of communication DSO policy as a matter of polity situate well with European media governance scholarship.