The broadcasting sector in the European Union (the Union) is in a state of flux. Rapid technological development and increasing commercialisation have provided new challenges for regulators and policymakers, who seek to harness the potential of new technology to provide a regulatory environment that is for the good of everyone. Despite extensive consultation and reviews of the regulatory framework in the Union over the last decade or so, a failure to consider directly the broadcasting environment from the perspective of all viewers has created a regulatory framework in which a full range of broadcasting services is not universally provided. The underlying assumption of policymakers is that, in a properly functioning broadcasting environment, industry will thrive economically, develop new technology and new services and consequently cater for all viewers. The expectation is that the resulting environment will also create greater viewer choice and broadcasting will continue (somehow) to fulfil its public service remit, particularly its socio-cultural and democratic function. Yet, in so far as viewers are considered, it is as consumers of broadcast services and not as citizens. This approach, we argue, fails to represent the citizen viewer and neglects the valuable attributes of broadcasting that go beyond purely economic concerns.

The history of broadcasting in the Union began at national level with governments' various attempts either to monopolise or control it. From the start, broadcasting has attracted a high degree of governmental involvement because of its perceived power to influence those who listened to radio or watched television.