Royal Commission on the Press

There have been three Royal Commissions on the Press (RCP) in the United Kingdom: 1947 to 1949, 1961 to 1962, and 1974 to 1977. The Commissions were established because of concerns about press standards and concentration of ownership. Their recommendations concentrated on self-regulated reform and antimonopoly measures and are regarded as merely having reinforced the status quo. This conservatism resulted largely from the strong influence of the liberal tradition, with its emphasis on the protection of the press from state interference. Moreover, governments, fearing antagonizing the press, failed to enact the more reformist recommendations.

Little has changed since then; despite later inquiries examining the press and private bills calling for legislation, the press is still, unlike broadcasting, largely self-regulated. Furthermore, the RCPs have had little impact on fostering professionalization and a public-service culture.

Regarding economic structure, the first RCP stated that “free enterprise…is a prerequisite of a free press.” Moreover, it concluded that, despite some problems with local monopolies and chain-ownership, “concentration is not so great as to prejudice the free expression of opinion or the accurate presentation of news.” However, it recommended that acquisitions and mergers should be monitored.

By 1962 it became clear that this optimism was unwarranted. The second Commission concluded that, given the economics of production and sales, further contraction of titles and concentration were all but inevitable. However, it rejected government financial assistance and instead recommended government approval for press acquisitions by large groups. It also stated that press shareholdings in broadcasting companies were “contrary to the public interest.”

The third Commission reported further decline in diversity, especially due to high entry costs and economies of consolidation. Departing from previous Commissions, it also referred to the need to protect editors and journalists from owners, and emphasized the importance of preserving the public's freedom of choice. Nevertheless, it ruled out any form of government assistance. Instead, it recommended the referral of more cases to the Monopolies and Mergers Commission, the toughening of tests of approval (which was ignored), and the limitation of press shareholdings in broadcasting. This recommendation was enacted in the 1981 Broadcasting Act but relaxed in the 1990s.

Regarding press performance, the Commissions consistently upheld the principle of self-regulation. The first Commission recommended the establishment of a Press Council, to deal with questions of standards and training, and to promote press research. The Council was formed only in 1953, with a narrower remit, and due to threats of statutory regulation. The second Commission heavily criticized the Council and this judgment was repeated by the third, which recommended “far-reaching changes” in its composition, funding, and operation. Nevertheless, the Council failed to reform and never achieved its aims. Amid renewed threats of statutory regulation, especially because of the tabloids' invasion of privacy, the Council was replaced in 1991 by the Press Complaints Commission (PCC). The PCC, within its more [Page 726]restricted remit, is generally considered a somewhat more effective self-regulator than its predecessor.