Neither private property nor public service: Critical reflections on the conceptual framework of public service media

Public service media (PSM) have long been seen as the necessary counterweight to the failures of a market model. Given the rise of private corporate power over communications systems, PSM have long been claimed to the be the ‘heart of a heartless world’ – spaces dominated not by the relentless logic of capital but by broader ambitions that involve citizen participation, social improvement and knowledge acquisition. This article offers a different interpretation. It argues that at their very best, PSM have improved an otherwise anaemic commercial landscape; at their worst, they are simply an accessory to state actors and contaminated media markets that reproduce elite power. Media practices and institutions based on the public service idea all too often lack the accountability and indeed the fundamental democratic oversight of the publics in whose name they operate. This article seeks first to contrast the values and structures of public service media with those of wholly commercial models and illustrates some of the ‘defensive’ arguments and initiatives that have been developed in response to threats to PSM. The article then explores a series of arguments that problematise what is often a reflexive defence of PSM. It considers whether being non-commercial necessarily positions an institution as pro-public and focuses on the role of the state in the creation of PSM institutions. It argues that the gap between normative accounts of public service and their institutional structures is not an accident or an aberration but reflects the structural imbalances of power built into PSM. Finally, the article analyses the different ways in which ‘the public’ has been conceptualised and deployed in the operational models of PSM, often as the ‘masses’ or as individuals in need of enlightenment or as sovereign consumers, but rarely as active agents of social change.