Niu FM, a pilot national Pacific radio network, has been set five objectives by the Government and eleven objectives by its governing body, the National Pacific Radio Trust (NPRT). The purpose of this independent evaluation is to establish whether or not NPRT is achieving these objectives. The review has been carried out by evaluating Niu FM's performance against those objectives.
The report begins by describing the background and context under which Niu FM operates including the role of a national Pacific radio network. The 'Analysis of Findings' section is divided into headings that reflect the objectives. Included under each heading with the commentary are responses to survey and interview questions along with programme and activity data obtained from Niu FM. Also included is feedback from evaluation participants about possible future directions for Niu FM.
This section is based on broadcasting sector feedback and provides some observations from broadcasting commentators on the context within which Niu FM operates. It also provides a brief profile of the population that is likely to use Niu FM services.
New Zealand , with a population of just on 4 million, has 1,300 hours of ethnic radio programming each week in over 60 languages on 17 stations. In comparison, Australia , with a population of 20.2 million, produces 18,700 hours of local ethnic programming in 100 languages on 100 stations each week. Australian radio is almost fully funded through SBS although it receives some commercial revenue. In Canada , indigenous peoples' language programmes are all non-commercial; and in Wales , Welsh language programmes are also all non-commercial.
Internationally, public radio is an important element in the survival of at-risk languages. This may become increasingly more so in New Zealand with Pacific languages. In particular, the Niuean language is believed to be at risk and Cook Islands Maori is an emerging concern. According to Statistics NZ's 2001 Census, only 28% of Niueans and 18% of Cook Island Maori in New Zealand , speak their own language. Both of these ethnic groups have large numbers of their total populations residing in New Zealand .
National broadcasting provides both costs and benefits. It involves considerable investment in broadcast spectrum (radio frequencies). This makes it possible to build ethnic community links across distance. Auckland has become the major centre of settlement for immigrants from many cultures, especially from the Pacific. The establishment of sizable communities of Pacific people in Auckland makes it difficult for people from smaller Pacific groups to move to other centres and leave behind their extended families and cultural ties. National radio coverage in their languages can make internal New Zealand migration easier.
Anecdotal evidence suggests that young Pacific people are less connected through their church communities than they once were. However, many retain a strong interest in ethnic links. Research International radio surveys indicate that radio is a very appealing medium for young people. Therefore, it can be a powerful medium for providing information and building cultural identity among Pacific people.
The National Pacific Radio Trust (NPRT) was set up to establish and maintain the National Pacific Radio Network. It is responsible for the stewardship of the Trust's assets until 30 June 2005 (Ministry for Culture and Heritage and National Pacific Radio Trust, 2003:5). For such time as the Trust is publicly funded, government appoints the Trustees.
The NRPT's mission statement is as follows
"The National Pacific Radio Trust will deliver a National Pacific Radio Network created by Pacific people for Pacific people in Aotearoa.
The National Pacific Radio Trust will deliver the objectives of the Deed of the Trust in a manner that is an example of excellence and professionalism in broadcasting, management and business practices."
The principal means for achieving the NPRT's mission is 'Niu FM'. Niu FM is a national Pacific radio network which was established in December 2001 by Cabinet as a pilot project "to contribute directly to the Government's goals for reducing inequalities and building the capacity of Pacific communities" (Ministry for Culture and Heritage 2004:3) . The pilot is scheduled to run until 30 June 2005 .
The word 'niu,' which refers to a baby coconut, is used in many Pacific cultures. Niu FM embraces the concept of 'niu' linking it to their organization, which is young and aims to be a vibrant focal point in Pacific peoples lives. As NPRT board chairman, Leatigagaeono Simativa Perese notes, "the Niu is the life giving force on every Pacific Island and therefore is central to life in the Pacific. It is a food and liquid that nourishes and sustains" (cited by Commonwealth Broadcaster 2004:25). The niu is highly valued for its contribution to Pacific people's lives since every part of the coconut palm is used - from the husk of the coconut to the trunk and roots.
The Niu FM network operates 24 hours a day, seven days a week and delivers programmes in English and at least seven Pacific languages. $8.4 million capital and operational funding for Niu FM is being provided by the Government (National Pacific Radio Trust, 2003). The responsible Government Minister for this pilot is the Minister of Broadcasting in collaboration with the Minister of Pacific Island Affairs . The Ministry for Culture and Heritage monitors and evaluates the performance of the network. Niu FM has been broadcasting under the existing management structure since June 2003.
Pacific peoples in New Zealand consist of seven key ethnic groups that originate from countries in the Pacific. While there are similarities among these ethnic groups, each nation group has its own culture and language. The characteristics of the individual ethnic groups are relevant to Pacific broadcast planning.
The following statistics were obtained from Statistics New Zealand - 2001 and 2002 (Ministry of Health – cited by Annandale & Instone 2004).
Country |
Pacific Population 2001 |
% of Pacific Population |
Born in NZ |
% Born in NZ |
% Speak own Pacific Language |
Samoa |
115,000 |
47.2 |
66,700 |
58 |
67 |
Cook Islands |
52,500 |
21.6 |
36,750 |
70 |
18 |
Tonga |
40,700 |
16.7 |
20,757 |
51 |
60 |
Niue |
20,100 |
8.3 |
12,395 |
62 |
28 |
Fiji |
7,000 |
2.9 |
3,150 |
45 |
28 |
Tokelau |
6,200 |
2.5 |
2,714 |
44 |
44 |
Tuvalu |
1,965 |
0.8 |
1,179 |
60 |
72 |
Totals |
243,465 |
100.00 |
143,645 |
59 |
50 |
(Source: Statistics New Zealand - 2001 and 2002.)
The 2001 Census (Statistics New Zealand) shows that 243,465 (or 6.5% of the total population) New Zealand residents are Pacific people. Over half (58%) were born in New Zealand . Samoans are the largest ethnic group (115,000) followed by Cook Islanders (52,500), Tongans (40,700), Niueans (20,100), Fijians (7,000), Tokelauans (6,200) and Tuvaluans (1,965).
The age structure for Pacific peoples is much younger than the total population, with a median age of 21 years compared with 35 years for the wider population. Furthermore, the median age for New Zealand-born Pacific people is 12 years compared with 37 years for overseas-born.
Pacific people in New Zealand are largely urbanised, with 95% living in urban areas in 2001. Just on 214,000 (or 88%) lived in the main urban areas alone. The majority (67%) are concentrated in Auckland , followed by Wellington . There are also increasing numbers of Pacific peoples in other parts of New Zealand including Waikato, Hawkes Bay , Christchurch and Dunedin . Table 2 presents the distribution of Pacific population by region and ethnic group as recorded in the 2001 census. As seen from the table below, Cook Islands Maori and Niueans are heavily concentrated in Auckland , while Tokelauans are more concentrated in Wellington .
Region |
% Samoan |
% Tongan |
% Cook Is Maori |
% Niuean |
% Fijian |
% Tokelauan |
% Other |
% of total |
Auckland |
67 |
60 |
80 |
80 |
60 |
24 |
56 |
67 |
Wellington |
17 |
13 |
5 |
6 |
12 |
55 |
13 |
14 |
Waikato |
3 |
8 |
4 |
4 |
7 |
6 |
9 |
5 |
Canterbury |
5 |
3 |
2 |
2 |
5 |
1 |
6 |
4 |
Bay of Plenty |
1 |
4 |
2 |
2 |
4 |
7 |
5 |
2 |
Manawatu Wanganui |
2 |
2 |
2 |
1 |
5 |
3 |
4 |
2 |
Hawkes Bay |
2 |
4 |
1 |
1 |
1 |
1 |
2 |
2 |
Northland |
1 |
2 |
1 |
2 |
4 |
1 |
3 |
1 |
Otago |
1 |
2 |
1 |
1 |
1 |
2 |
2 |
1 |
Southland |
0 |
1 |
0 |
0 |
0 |
1 |
1 |
1 |
Gisborne |
0 |
1 |
1 |
0 |
1 |
0 |
1 |
0 |
Taranaki |
0 |
1 |
0 |
1 |
1 |
0 |
1 |
0 |
|
|
|
|
|
|
|
|
|
North Island |
94 |
95 |
96 |
97 |
93 |
96 |
91 |
95 |
South Island |
6 |
5 |
4 |
3 |
7 |
4 |
9 |
5 |
The characteristics of Pacific populations are likely to impact on the design and delivery of Niu FM services. Significant numbers of Pacific peoples are born outside New Zealand , speak a Pacific language as their first language, and are in the increasingly older age groups. The sizes of Island-born populations vary among the different ethnic groups. With English as their second language, communication in Pacific languages is important for these population segments, particularly when Government may wish to convey significant messages about matters such as health, education and safety.
As noted, Pacific populations are highly urbanised and have an increasingly youthful age structure. For example, nearly 39% (90,000) of Pacific people were aged 20 years and under in 2001 (Annandale & Instone 2004). Most of these populations are New Zealand born and are English speaking.
The Trust Deed objectives under which NPRT was established require diverse potential audiences in order for the objectives to be achieved. As a result it is difficult to identify the average listener. The potential audiences include:
(Minister of Broadcasting and National Pacific Radio Trust, 2003, Appendix 3.)
Based on 2001 census figures, and assuming Niu FM would operate in the main urban areas, the potential audience of Pacific people alone would be approximately 214,000, including children.
In order to establish if NPRT is achieving its objectives, the Cabinet Social Equity Committee requested that an independent evaluation be carried out and reported on to Cabinet by 30 November 2004. The purpose of the evaluation is to "evaluate the broadcasting impact of the National Pacific Radio Network, Niu FM on Pacific people within the network's broadcasting range"(Ministry for Culture and Heritage, 2004:2). The evaluation assesses Niu FM's performance against Government objectives under which it was established and NPRT's Trust Deed objectives. This evaluation covers ten months of operation, rather than the two years of operation anticipated when the evaluation reporting date was set.
NPRT is required to deliver quality programming. Critical success factors include listener satisfaction, sourcing and developing talent and being responsive to opportunities that may arise (Niu FM, 2003b).
The Government objectives for the pilot are:
The NPRT Trust Deed objectives are defined as:
The following 'Analysis of findings' section is divided into headings, which reflect the Government and NPRT Board objectives. Responses to survey, interview, and focus group questions have been incorporated into the commentary under each heading, along with programme and activity data obtained from Niu FM. Feedback from the evaluation participants about future directions for Niu FM is also included.
A detailed breakdown of the evaluation design and methods can be found at Appendix 1.
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