BSA Decisions Ngā Whakatau a te Mana Whanonga Kaipāho

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Summary

"Lost youth lost hope" was the title of the Assignment programme broadcast between

7.30–8.30pm on TV One on Thursday 17 August 1995. It dealt with youth suicide

and included a discussion with some bereaved parents and youth counsellors.

Dr Petrie complained to Television New Zealand Ltd that the programme was inaccurate

when it stated that more boys than girls attempted suicide. It had also breached the

standards in disclosing an easily imitated technique of crime and by being screened at a

time which indicated that TVNZ did not appreciate the likelihood that young people

might imitate the behaviour depicted.

Acknowledging that the comment about the gender rate of attempted suicides was

incorrect, TVNZ upheld the complaint alleging inaccuracy. As suicide was no longer a

crime, it said that the next standard was inapplicable. Because there was no irrefutable

evidence that television documentaries about suicide influenced the suicide rate, TVNZ

declined to uphold the complaint that the hour of screening was inappropriate.

Dissatisfied with TVNZ's decision on the final point, Dr Petrie referred that aspect to

the Broadcasting Standards Authority under s.8(1)(a) of the Broadcasting Act 1989.

For the reasons below, the Authority declined to uphold the complaint.

Decision

The members of the Authority have viewed the item complained about and have read the

correspondence (summarised in the Appendix). As is its practice, the Authority has

determined the complaint without a formal hearing.

Youth suicide was the topic on the current affairs Assignment programme broadcast by

TV One between 7.30–8.30pm on 17 August 1995. It included interviews with some

young people who had attempted to commit suicide and members of families in which a

suicide had occurred.

Dr Keith Petrie, senior lecturer in the Faculty of Medicine and Health Science at the

University of Auckland, complained to TVNZ that the programme "did considerable

and serious public harm". It had done so, he continued, as research disclosed that

television programmes which featured suicide caused an increase in the rates of both

suicide deaths and suicide attempts. In addition, teenagers were at particular risk of

imitating suicidal behaviour.

Dr Petrie considered that the broadcast had breached standards G1, G9 and G12 of the

Television Code of Broadcasting Practice. They require broadcasters:

G1  To be truthful and accurate on points of fact.

G9  To take care in depicting items which explain the technique of a crime in a

manner which invites imitation.

G12 To be mindful of the effect any programme may have on children during

their normally accepted viewing times.

Standard G1 had been breached, he said, as the broadcast incorrectly stated that more

young men than young women attempted suicide. Showing imitable techniques of

suicide was the reason for the breach of standard G9.

Dr Petrie focussed principally on standard G12. He expressed concern that while what

he called the "contagion" effect of broadcasts dealing with suicide was noted in the

programme, the broadcast had nevertheless taken place. Pointing to the anguish

expressed by parents as a reason which was likely to increase the motivation of young

people contemplating suicide, he concluded his complaint:

In summary, the Assignment programme was clearly dangerous and very likely to

harm the health of New Zealand young people. It is in breach of the Code of

Broadcasting Practice in several areas but perhaps most disturbing was the

apparent lack of ability on the part of the journalists, knowing the dangers

involved with such a programme, to make any efforts to minimise potential harm.

In its assessment of the complaint, TVNZ began by recognising the complainant's

expertise in the area of youth suicide. It agreed that reports of suicides by celebrities

were followed by copycat suicides but disagreed that such behaviour followed

responsible media programmes about suicide.

TVNZ acknowledged that the programme had been incorrect in stating that more young

men than young women attempted suicide and upheld the complaint under standard G1.

As standard G9 referred to criminal behaviour and as suicide was no longer a crime, it

was not applicable. Nevertheless, TVNZ added, it had been aware of standard V7 in

making the programme and had ensured that it was complied with. It provides:

V7  Close-up detail indicating how suicides and hangings may be accomplished

must not be shown. Furthermore, in dealing with factual material about

suicides in New Zealand, programmers should be mindful of the provisions

of the Coroners Act which forbids the disclosure of a method of suicide,

except with the express permission of the Coroner concerned.

TVNZ wrote:

The opening montage consequently contained no detail on how to kill oneself [of

which] young people are not unaware. They know that you can kill yourself with

a gun, or die in a car crash, or perish through the misuse of pills. But in each

case referred to on "Assignment", the detail was never revealed: what pills?, what

kind of weapon?, how was the knot tied? These matters were carefully

considered before the introductory sequence was put to air. The visuals

accompanied a carefully worded script.

Arguing that that emotive material had been put together compassionately and

sensitively – not sensationally, TVNZ denied that the broadcast contravened standard

G12. It was broadcast in a PGR timeband and TVNZ also said that, rather than

providing motivation, it showed positive outcomes for young people who received

appropriate health care and counselling. TVNZ's Complaints Committee concluded:

Overall the committee believed the evidence was there that "Assignment" had been

scrupulous in dealing with potential dangers arising from the programme - and its

handling of the subject had met with the approvals of professionals working daily

in the field of youth suicide.

When he referred his complaint to the Authority – that the broadcast breached standard

G12 – Dr Petrie began:

The imitative aspect of suicide is a robust finding which has been documented

following both fictional and documentary stories on television.

Referring to the likelihood of teenagers imitating suicidal behaviour, he stressed:

The reasons for this effect are likely to be complex but probably have to do with

the way suicidal behaviour is often characterised on television. Suicide is often

portrayed on television as a normal way of coping with life stresses and this

weakens the social taboo surrounding suicide that characterises it as odd or

abnormal behaviour. Moreover, typically there is an over emphasis on the dead

person's positive aspects and the pain for those who the person left behind.

Furthermore, he said that the likelihood of imitation was increased because of the

sensational way the suicides of the two people referred to in the programme had been

advanced. He concluded the referral:

I believe the TVNZ Assignment programme was clearly irresponsible and

dangerous because of the likelihood that the programme would cause suicidal

behaviour among the viewing audience. In particular, it was very likely to harm

the health of New Zealand young people. What is perhaps most disturbing is the

fact that during the course of the programme the contagion effect of television

programmes is acknowledged but despite knowing these dangers the journalists

involved showed no effort to minimise the potential harm.

In its report to the Authority, TVNZ maintained that it had assessed the research cited by

Dr Petrie before the programme had been broadcast. It acknowledged again that

imitative suicides could follow the suicides of famous people but expressed the opinion

that none of the research related to current affairs programmes such as Assignment.

Referring to some similar programmes made in Australia, TVNZ contended:

We strongly deny that the Assignment programme was irresponsible or

dangerous. Every care was taken with our research and the way the material was

presented. The fact that the complainant is unhappy with the approach which was

adopted does not in our view, preclude us from entering this vital debate of such

concern to so many parents in this country. Dr Petrie's approach of not publicly

discussing the problem can certainly not be proved to have resulted in any

reduction in the number of suicides by young people in New Zealand.

In reply, Dr Petrie supplied the Authority with an article from The New English Journal

of Medicine by Phillips and Carstensen (1986: 655) in which they opined:

Thus, the present study provides no justification for concluding that general-

information news stories have a different, more limited effect than do specific

stories. In fact, the data suggest that, if anything, general-information stories may

have a greater effect that specific stories (after correction for the amount of

publicity).

The Authority was required to decide whether TVNZ gave sufficient consideration of

the item's potential impact on teenagers who might be contemplating suicide. TVNZ

accepted that it would be irresponsible to present the programme in what could be

described as a "sensational" manner. Although Dr Petrie was of the view that the

programme was so presented, the Authority considered that the presentation and style

were relatively low-key.

It was not the Authority's task to decide the appropriate conclusions which could be

drawn from the research. Rather, it was required to assess whether the programme had

given sufficient weight to the research to justify its broadcast at a time which complied

with the PGR classification. It provides:

Parental Guidance Recommended – PGR

Programmes containing material more suited to adult audiences but not necessarily

unsuitable for child viewers when subject to the guidance of a parent or adult.

"PGR" programmes may be screened between 9am and 4pm and after 7pm until

6am.

TVNZ was aware of the research about the contagion effect and it was touched on in the

broadcast during interviews with some experts in the area. What was apparent from the

broadcast, and from the report cited above, is that the evidence about suicide contagion

following documentaries on the subject is equivocal.

Nevertheless, as the contagion aspect cannot be dismissed out-of-hand, the onus was

on the broadcaster to decide whether to screen a programme on the subject and, if so,

how it should be done.

As noted above in regard to the second question. the Authority decided that the issue

was dealt with in a reasonably responsible manner.

In deciding the first question, ie whether the broadcast of a documentary or suicide at

7.30pm breached standard G12, the Authority was required to balance the research

indications with some other considerations. It also took into account the following

matters:

* that there was nothing original or vivid in the suicide methods portrayed

* that the studies about contagion were referred to and acknowledged

* that the studies about contagion were not conclusive about a number of

  relevant matters

* that the motivations for suicide given during the broadcast tended to be

  simplistic

* that the programme gave worried parents some useful information on

  possible indications of suicidal intentions

* that the programme provided an opportunity for families to address the

  subject

* that some of the options for concerned families and individuals were

  explained.

Overall, the Authority sympathised with Dr Petrie's concerns. However, taking into

account the above matters, it decided that there was a public interest aspect to the

broadcast. Although there was a tendency in the item to simplify the complex issues

involved, the Authority concluded that the public interest elements had been addressed

with sufficient responsibility so, on balance, standard G12 had not been contravened.

For the reasons above, the Authority declines to uphold the complaint.

Signed for and on behalf of the Authority

Judith Potter
Chairperson
18 January 1996

Appendix

Dr Petrie's Complaint to Television New Zealand Ltd - 22 August 1995

Dr Keith Petrie of the Auckland University Medical School complained to Television

New Zealand Ltd about the Assignment programme broadcast from 7.30 - 8.30pm on

Thursday 17 August 1995.

The programme dealt with youth suicide and, Dr Petrie began:

Given our current knowledge about suicidal behaviour it is likely that this

programme did considerable and serious public harm by increasing the likelihood

of suicidal behaviour in New Zealand young people.

As background information, he argued that there was a "strong imitative aspect in

suicidal behaviour" and cited studies which contained evidence for that conclusion.

Moreover:

... television programmes featuring suicide have also been found to cause an

increase in rates of both suicidal death and suicide attempts and this effect is

proportional to the amount of publicity given to the story. Perhaps even more

convincing is the finding that when media reporting of suicidal deaths is reduced

or given limited prominence then imitative behaviour is reduced.

Teenagers, he added, were at particular risk of imitating suicidal behaviour.

Dr Petrie then turned to the specific programme which he said was irresponsible and

dangerous because it increased the likelihood of suicidal behaviour in the viewing

audience and in breach of standards G1, G9 and G12 of the Television Code of

Broadcasting Practice.

Standard G1 requires factual truth and accuracy and Dr Petrie contested the comment

that more young men rather than young women attempted suicide. Women

outnumbered men, he said, by 2 to 1 in suicide attempts in all age groups.

Standard G9 requires the broadcaster to take care in explaining imitable techniques of

crime which, he stated, was contravened by showing the most common way that young

people can kill themselves. Some of the material seemed included on the grounds that it

was sensational.

Turning to the standard G12 which requires broadcasters to be mindful of the effect of a

programme on children, Dr Petrie first maintained that teenagers at 7.30pm could

identify with the case histories explained. Furthermore:

Perhaps what is most alarming is the acknowledgment during the course of the

programme that this effect could occur with no effort made to minimise the

identification process between viewers and victims.

Secondly, his research disclosed that one of the motivations for suicide was to punish

others - in particular parents - and:

The description by parents of the pain they continue to feel following the suicide

of one of their children would unfortunately be likely to increase the motive for

many contemplating suicidal behaviour now or in the future.

Appending a paper on "Suicide Contagion", Dr Petrie concluded:

In summary, the Assignment programme was clearly dangerous and very likely to

harm the health of New Zealand young people. It is in breach of the Code of

Broadcasting Practice in several areas but perhaps most disturbing was the

apparent lack of ability on the part of the journalists, knowing the dangers

involved with such a programme, to make any efforts to minimise potential harm.

TVNZ's Response to the Formal Complaint - 9 October 1995

Assessing the complaint under the nominated standards, TVNZ began by recognising

the complainant's expertise in the area of youth suicide and his opinions on the imitative

aspects of suicidal behaviour. Nevertheless, his opinions were not shared by all

professionals - some of whom had appeared on the programme.

TVNZ explained that New Zealand seemed to be the only major "Western" country

which seemed to ignore the suicide problem and documentaries shown in other

countries had not been controversial. Since the broadcast, it continued, TVNZ received

praise from professionals and two bereaved parents had commended the sensitivity of

the report.

Dealing with the substance of the complaint, TVNZ stated:

In investigating your complaint, TVNZ has done considerable research into your

complaint and we agree that after the reporting of certain celebrity suicides, such

as Marilyn Munroe (as quoted by you) there does tend to be copycat suicides.

"Assignment" clearly did not have the suicides of famous people as its focus.

The US Government Task Force on suicide and the media, it continued, favoured

responsible reporting of the issue and:

The investigation of your complaint has also revealed that the programme was

made only after a great deal of relevant research was critically examined including

all of the papers you have cited in the footnote on page 3 of your letter.

As for the complaint under standard G1, TVNZ acknowledged that the broadcast was

inaccurate as the figures disclosed that more young women than men attempted to kill

themselves. That aspect was upheld.

With regard to standard G9, TVNZ pointed out that suicide had not been a crime since

1962 and, therefore, the standard was not strictly applicable. Nevertheless, TVNZ

stated, the opening sequence to which Dr Petrie objected had been presented with

standard V7 in mind. It reads:

V7 Close-up detail indicating how suicides and hangings may be accomplished

must not be shown.

TVNZ contended:

The opening montage consequently contained no detail on how to kill oneself [of

which] young people are not unaware. They know that you can kill yourself with

a gun, or die in a car crash, or perish through the misuse of pills. But in each

case referred to on "Assignment", the detail was never revealed: what pills?, what

kind of weapon?, how fast was the car?, how was the knot tied? These matters

were carefully considered before the introductory sequence was put to air. The

visuals accompanied a carefully worded script.

Moreover, the compelling material was compassionately put together and could not be

considered "sensationalist" and, TVNZ decided:

The [complaints] committee concluded that the programme was not in breach of

G9. Even allowing for the fact that G9 applies specifically to techniques of crime

(and suicide is not a crime), the committee held the view that the material

contained in the programme was, in any case, not such as to invite imitation.

TVNZ then considered the standard G12 aspect of the complaint and pointing out that

7.30pm was classified PGR, it maintained:

It is TVNZ's view that this was not a programme that young adults should have

been protected from, as seems to be implied in your letter. It was one that clearly

called for parental responsibility (as indicated in the PGR definition).

It was also appropriate to disclose the variety of backgrounds of the young people who

committed suicide and, declining to uphold the complaint under standard G12, said:

We note that "Assignment" also showed the very positive outcome for young

people who were shown in the programme to have received appropriate help

and/or counselling. This positivism seemed an important counterweight to the

aftermath of a suicide and the attendant parental pain.

TVNZ commented:

Taken overall, the committee recognised that to one of your expertise and

knowledge, a programme of this nature might appear to fall short of what you

might have expected. However, and with respect, the programme was not

directed at viewers already skilled in this field. The audience was lay people with

an interest in pressing social problems afflicting the New Zealand community.

While providing a general understanding of the issue, the programme also helped

parents and young people to identify where risk occurs and advised on the need to

seek help.

Overall, the committee believed the evidence was there that "Assignment" had

been scrupulous in dealing with potential dangers arising from the programme -

and that its handling of the subject had met with the approvals of professionals

working daily in the field of youth suicide.

As for the aspect upheld, TVNZ regretted the error but considered that there was little

purpose in publicly revisiting the matter.

Dr Petrie's Complaint to the Broadcasting Standards Authority - 31

October 1995

Dissatisfied with TVNZ's response to the aspect of the complaint which raised standard

G12, Dr Petrie referred that aspect to the Broadcasting Standards Authority under

s.8(1)(a) of the Broadcasting Act 1989.

Dr Petrie began:

It is clear now from a large number of studies there is as strong imitative aspect to

suicidal behaviour and some have attributed the rise in suicide in young people, at

least in part, to media stories about suicide. ...

The imitative aspect of suicide is a robust finding which has been documented

following both fictional and documentary stories on television.

Teenagers, he continued, were at particular risk of imitating suicidal behaviour

following television stories.

The reason for this effect are likely to be complex but probably has to do with the

way suicidal behaviour is often characterised on television. Suicide is often

portrayed on television as a normal way of coping with life stresses and this

weakens the social taboo surrounding suicide that characterises it as odd or

abnormal behaviour. Moreover, typically there is an over emphasis on the dead

person's positive aspects and the pain for those who the person left behind.

He referred to steps taken in the US to reduce the possibility of media related suicide

contagion.

Dr Petrie maintained that standard G12 was contravened as, at 7.30pm, young viewers

could easily identify with the teenagers portrayed and their emotional problems. Citing

references, he wrote:

Television programmes using this approach have been linked with increased

suicidal behaviour in overseas studies. Perhaps what is most alarming is the

acknowledgment during the course of the programme that this effect could occur

with no effort made to minimise the identification process between viewers and

victims.

He discussed the details of the aspects of some of the suicides portrayed and

commented on how readily the young viewers could identify with them. In response to

TVNZ's argument that an alternative time for screening was "a late night ghetto", Dr

Petrie said that in view of the demonstrable harm, it should have been broadcast late in

the evening. Despite the comment from the suicide counsellor in the item that there was

a need for youth suicide to be discussed in view of the increasing numbers, Dr Petrie

said his contrary views were supported by two (named) eminent psychiatrists.

Dr Petrie also maintained his argument that the likelihood of imitation was increased by

sensationalising the suicides of two people referred to in the programme.

Further, he repeated his argument that as the desire to punish was one of the

motivations for suicide, the focus on the pain expressed by the parents interviewed

could assist the likelihood of suicidal behaviour among vulnerable individuals.

Citing 16 references, Dr Petrie concluded:

I believe the TVNZ Assignment programme was clearly irresponsible and

dangerous because of the likelihood that the programme would cause in suicidal

behaviour among the viewing audience. In particular, it was very likely to harm

the health of New Zealand young people. What is perhaps most disturbing is the

fact that during the course of the programme the contagion effect of television

programmes is acknowledged but despite knowing these dangers the journalists

involved showed no effort to minimise potential harm.

TVNZ's Response to the Authority - 23 November 1995

When asked for comment on the referral, TVNZ stated that, in regard to the aspect

which alleged a breach of standard G12, the research cited by Dr Petrie had been read

before the broadcast. And, "we dispute that the evidence is as conclusive as he claims".

TVNZ acknowledged that there was a broad agreement that imitative suicides could

follow the reports of a suicide of a famous person - such as Marilyn Munroe. It

continued:

None of the research relates to current affairs documentaries such as that

broadcast by Assignment. In our view, there is no evidence whatsoever of

problems arising from this type of programme. Indeed, it is not unusual for such

programmes to be made in other countries, for example we are aware of three

being made in Australia and the last two years without any apparent problems.

TVNZ also said that cross sections of people had been spoken to in the preparation of

the programme. Some of the participants, it continued, had been reluctant to appear but

had been persuaded to do so on being advised by TVNZ's commitment to a programme

displaying maturity and a caring approach. No complaints from them had been

received.

In concluding, TVNZ wrote:

We strongly deny that the Assignment programme was irresponsible or

dangerous. Every care was taken with our research and the way the material was

presented. The fact that the complainant is unhappy with the approach which was

adopted does not in our view, preclude us from entering this vital debate of such

concern to so many parents in this country. Dr Petrie's approach of not publicly

discussing the problem can certainly not be proved to have resulted in any

reduction in the number of suicides by young people in New Zealand.

Dr Petrie's Final Comment - 10 December 1995

Dr Petrie made three points in his response to TVNZ's report to the Authority.

First, while TVNZ disputed the research evidence which showed a link between certain

types of media presentations of suicide and the subsequent suicidal behaviour in young

people, it had not, Dr Petrie commented, produced any evidence to justify that "extreme

position". Further to this point, Dr Petrie observed that broadcasts such as the

Assignment programme were outside the recommendation of the Centre for Disease

Control. He wrote:

The point missed by TVNZ is that it is not the category of programme (news

story, documentary, movie, cartoon etc) that encourages imitation of suicidal

behaviour it is the way suicidal behaviour is portrayed in the particular

programme. When suicidal behaviour is represented as a means of solving

problems and when the victims portrayed have problems that are readily identified

with by teenagers then imitation is likely to occur.

As the second point, Dr Petrie argued that TVNZ had not added to its defence of the

sensational descriptions of the suicides discussed.

Thirdly, Dr Petrie accepted TVNZ's good intentions but, he continued, that was not

relevant to his complaint that the item would increase "the instrumental motivations for

young people to engage in suicidal behaviour".

Dr Petrie concluded:

Let me add, finally, that the portrayal of suicidal behaviour on television is an

issue with very real public health implications. The Assignment programme has

very likely caused a great deal of harm to young New Zealanders. What is

perhaps more disturbing, however, is the dogged determination of TVNZ - the

television broadcaster with the largest impact on our children - not to face up to

the evidence and move to a more responsible position on the issue.