Volume 5, Number 7

July/August 1992

AGRICULTURE: Television Coverage of the Farm Crisis

Throughout the 1980s and into the 1990s the Canadian public has been told that there is a farming crisis. During the past decade, Canadian farmers have "received anywhere from $4 to $6 billion per year in the form of direct and indirect subsidies and protection." [.Loyns, RMA, Colin A. Carter and Eric E. Peters (1991) "Regulatory Change in Canadian Agriculture," in Block, Walter and George Lermer, eds., Breaking the Shackles, (Vancouver: Fraser Institute) p. 259.] This support has been offered to save the family farm and ensure Canada's survival in the international agricultural industry.

The use of management marketing boards in the dairy and poultry sectors was intended to remove the boom and bust cycles and ensure fair return on their investment. Despite this regulatory environment, Canadian farmers are still said to be facing a farm crisis. According to a 1991 Angus Reid poll, Canadian farmers "predict more doom and gloom for the near future, with a full majority anticipating that their farming operation will experience further financial decline over the next year." [ (1991) "Canadian Farmers Assess the Agricultural Situation," The Reid Report, Vol 6, Number 3, March.]

Part of the farmers' negative outlook relates to their view that commodity prices are undervalued. This undervalue is related to the international subsidy war and the efforts of the international community to agree to end subsidies. In the past year, however, there have been an unprecedented number of protests by farmers and marches calling for more aid. The question is, which aspect of the farming crisis have the networks reported? Do they favour the arguments of some that subsidies need to be stopped in order to achieve fair prices, or the view of others who claim that immediate financial aid is essential?

To answer these questions, and the way in which the agricultural industry is reported on television news, this issue of On Balance examines CBC and CTV coverage of agriculture from January 1, 1991 to September 30, 1992.

ECONOMIC ISSUES EMPHASIZED

As figure A shows, both networks devoted more attention to the economics of agriculture than to any other facet of the industry. Thirty percent of CBC and 34 percent of CTV overall attention to agriculture examined economic issues such as tariffs and subsidies, sales and prices, and general issues such as productivity, crop yields, and losses.

Click here to view Figure A: Agriculture Coverage

CBC was more likely than CTV to focus on individual farmers and their social condition. Twenty-nine percent of CBC compared to 21 percent of CTV attention looked at the human aspect of farming.

Next in emphasis was discussion of agriculture as an industry. Sixteen percent of CBC and 20 percent of CTV coverage examined issues such as technology, working conditions, and labour disputes. Over one-third of this attention on CBC and one-fifth on CTV was neutral. Of the remainder, three times as many negative as positive descriptions of the farming industry were provided.

For example, on 21 November 1991 Dana Lewis of "CTV News" reported: "Across Western Canada, the business of farming is facing its bleakest winter in decades. Farm groups say by the time spring comes, one in five Canadian farms could have their assets frozen and be put out of business."

Concerns about the Canadian farming industry were raised in a 7 February 1992 "National" story where one farmer stated: "The Americans could flood our markets, destroy the existing size of our farms--the small farmer will not survive."

Political aspects of agriculture were given as much or almost as much attention as the discussion of the industry. For example, 16 percent of CBC and 15 percent of CTV coverage focused on GATT talks, government/farmer relations and government policy.

ECONOMIC CONSIDERATIONS GIVEN MOST ATTENTION

On both networks economic issues comprised the most attention. Of that coverage, the emphasis was on the general economic state of the agricultural industry. This coverage focused on the negative turn of events in that industry. Of evaluations, twice as many CBC and four times as many CTV statements examined the negative state of the agriculture sector.

CBC Blames Subsidies for Farm Crisis

Reports on tariffs and subsidies comprised two-fifths of network attention to economics. As figure B illustrates, 22 percent of CBC and seven percent of CTV attention to subsidies focused on how the international subsidy war made grain farming an unprofitable enterprise. For example, on 25 July 1991 Knowlton Nash reported: "Canada's grain farmers got some devastating news today. They learned just how much they're likely to get for this year's crop: in short, not much. For instance, today's minimum price for wheat is the lowest it's been in 16 years. And that means farmers will have to rely even more on various support programs to keep their farms alive. And all because of fierce subsidy wars raging far afield." Similarly, on 14 July 1991 in an interview with David Halton, Brian Mulroney explained Canada's position at the Group of Seven Summit: "I think we've got to get rid of some of the very strong signals on the trade-distorting agricultural subsidies. These are really killing Canadian farmers. It's just outrageous what is going on in terms of the subsidies that are coming from Europe."

Click here to view Figure B: Discussion of Tariffs and Subsidies (CBC)

Click here to view Figure B: Discussion of Tariffs and Subsidies (CTV)

Government Subsidies Fall Short

For both networks, the majority of statements were on the Canadian subsidies and programs implemented to assist farmers. Forty-seven percent of CBC and 59 percent of CTV coverage on tariffs and subsidies examined the Canadian programs. Of that coverage, almost half of CBC and half of CTV attention was neutral, simply referring to the subsidy or how much Ottawa spends on agricultural subsidies. For example, on 10 October 1991, Peter Mansbridge reported a story on government subsidies: "Now government help for farmers is nothing new. By guaranteeing a minimum price for their crop or a minimum annual income for each farmer, Ottawa has subsidized grain farmers for years. In 1987, Ottawa paid out $2.4 billion to grain farmers, but the Mulroney government has cut aid packages over the past few years to just over $550 million in 1990."

Of the remainder, over twice as many CBC and almost twice as many CTV assessments of Canadian subsidies complained that the subsidies did not go far enough. For example, on the 20 October 1991 "CTV News," Mark Sikstrom reported: "The farmers were wanting more money, about $200 million more, and they're not going to see it until some time in the spring." Similarly, on 18 April the government aid package to farmers was criticized for not being large enough. Lloyd Robertson introduced the story in the following manner: "Canada's farmers have also been battered by the recession, and today the federal government sent them some help. Ottawa announced an aid package worth more than $400 million. But, as Mark Sikstrom reports, the farmers say it's just not enough." The story focused on the plight of the farmers and the inadequacy of the program. Sikstrom stated: "Farm groups say it will help but it's less than half of what's needed." A representative from the Saskatchewan Wheat Pool was then quoted: "The problem was identified 18 months ago, 24 months ago, that we were going to need significant dollars to maintain our farms, and that money just hasn't been, been forthcoming and still isn't and isn't there."

Even when reporters asked for solutions to the farm crisis, sources were reluctant to offer any other than more government support. Instead they focused on the lack of government aid. For example, on 10 October 1991, Barbara Frum asked farm activist Allen Wilford: "If this amount of money isn't enough and all the billions accumulated over the past five years, the past ten years, aren't enough, what's the answer here?" Wilford's response: "Well, I would like to correct you first, Barbara. We have five billion last spring announced by the federal government and not one penny has reached the farmer yet and won't until 1992. So we haven't got the handouts that the average Canadian thinks the farm industry has got."

" . . . we've got to get rid of some of the very strong signals on the trade-distorting agricultural subsidies. These are really killing Canadian farmers.

It's just outrageous what is going on in terms of the subsidies that are coming from Europe."

Wilford's solution came later in the interview when he argued for another type of subsidy: a guaranteed minimum farmer's salary.

Threat to Marketing Boards

Discussion of marketing boards comprised 15 percent of CBC and 20 percent of CTV attention to tariffs and subsidies. Interestingly, the problems facing grain farmers were rarely linked to the problems facing dairy, poultry, or egg producers. While the networks--especially CBC--identified international grain subsidies as being the major contributing factor to the grain crisis, no similar condemnation of marketing boards was heard. Instead, statements and stories relating to marketing boards focused on farmers' demands that the supply management boards be protected, and on government attempts to save them. For example on 18 February 1992 Lloyd Robertson introduced a story on GATT with the following: "Canada's dairy and poultry farmers are also worried about their future, and today several hundred of them travelled to Ottawa to plead their case directly to Prime Minister Mulroney. The farmers are concerned about a proposed new world trade deal that would scrap Canada's farm marketing boards. The prime minister promises a fight."

Only on CBC was a link made between the fact that grain subsidies and marketing boards are both considered subsidies. In three stories, CBC acknowledged that marketing boards are

"A look at the dollars and cents of farming today confirms things just aren't adding up for these people in Canada."

viewed as a subsidy by the Europeans. As well, only CBC pointed out that Canada's position of fighting for the end of grain subsidies, yet pressing for the protection of marketing boards was contradictory. For example, on 26 November 1991, Joe Schlesinger concluded a story by stating: "The government is assuring dairy and poultry farmers that it will protect them, but it could find itself the victim of its own success. Having pushed so hard for so long to help Western wheat growers, it could find itself in the uncomfortable position of having to choose between them and the dairy farmers of Quebec and Ontario."

General Economic Woes Emphasized

General economic issues comprised two-fifths of network attention to economic issues. This coverage discussed low crop yields, loss of personal income and the difficult agricultural market. For example, on 10 October 1991 Peter Mansbridge reported: "Grain farmers have been devastated by an international subsidy war that's forced prices down and made some crops virtually worthless." Aside from the problems farmers had from international subsidy wars, the networks also reported that natural disasters and poor weather had worsened the farmers' plight. For example, on 24 August 1992 CTV's Bill McFarlane reported: "But, for farmers, snow couldn't have come at a worse time. As it melts, it exposes what could have been a good crop. Now it's on the ground, flattened like a pancake."

Prices and Sales Focus on Low Prices

The remaining one-fifth of economic coverage focused on sales and prices of agricultural commodities. This coverage focused on the record low grain prices. For example, on 10 October 1991, Barbara Frum reported: "Grain prices are at a 20 year low, driven down by a global trade war." Similarly on 22 November 1991 Lloyd Robertson reported: "A look at the dollars and cents of farming today confirms things just aren't adding up for these people in Canada. For example: at $2.00 for a bushel of wheat, it's hardly worth it for farmers to put their crops in the ground. The current price is the lowest in two decades and with inflation taken into account, farmers say it could be the lowest on record."

GRAIN SECTOR EMPHASIZED IN TV COVERAGE

As figure C illustrates, both networks paid the grain sector of agriculture the most attention. Half of CBC and over one-third of CTV attention to agriculture examined grain prices, GATT negotiations on grain subsidies, and the plight of those farmers.

Click here to view Figure C: Agriculture Sector Discussed

Livestock and Dairy Under-reported

By contrast, livestock received only 10 percent of CBC and 8 percent of CTV overall attention to agriculture. Fruits and vegetables also received little coverage with only 6 percent of CBC and 15 percent of CTV coverage on agriculture. These stories centred on the problems Prince Edward Island farmers were having with the American ban on their potato crops.

The dairy, poultry, and egg sectors, which comprise 28 percent of farm receipts, received only six percent of CBC and 14 percent of CTV attention to agriculture. What is significant in these results is that of the agricultural sectors, livestock is the most profitable. According to Statistics Canada, in 1991 receipts from livestock accounted for 37 percent of total farm cash receipts.

Of note is the finding that often the networks did not specify the agriculture sector. Twelve percent of CBC and almost one-fifth of CTV coverage of agriculture did not specify to which aspect of the agriculture industry they were referring. For example, on 14 February 1992 "CTV News," Diana Bishop reported: "Frustrated farmers and angry workers converged on Peterborough's city hall, ready to confront the prime minister." Similarly, on the 22 May 1992 "National," Knowlton Nash introduced a story on GATT saying: "In Europe, politicians are calling it the most radical reform of agricultural policy ever. And it could be the long awaited break-through in the stalled GATT talks (the General Agreement on Tariffs and Trade). European Community agricultural ministers have agreed to cut farm subsidies."

FARMERS GIVEN FORUM FOR THEIR VIEWS

The personal accounts of farmers and a generally negative outlook on agriculture were emphasized in many of the newscasts. It does not come as a surprise, therefore, that the main source of statements on agriculture came from farmers. Roughly half of CBC's (47 percent) and CTV's (49 percent) sources' statements originated from farmers.

The federal government provided only 12 percent of CBC's and 16 percent of CTV's sources' statements (figure D). All other sources, including foreign governments, business operators, and academics, each provided less than 10 percent of statements on agriculture.

Click here to view Figure D: Argiculture Sources

Interestingly, consumers' groups comprised only five percent of CBC's and six percent of CTV's sources' statements. One story on CTV which did go to consumers for comment was to do with marketing boards. On 21 February 1992, Dana Lewis reported: "Farmers say consumers have a stake in their battle to preserve marketing boards in Canada. Some consumers groups say we have a stake alright, but it's in getting rid of the boards not preserving them... Grocery distributors claim because of marketing boards they are forced to pay 50 to 80 percent more for many farm products than American

. . . consumers' groups comprised only five percent of CBC and six percent of CTV sources' statements.

grocers. And the costs get passed on. The Canadian Consumers Association wants marketing boards done away with." These comments were far outnumbered by farmers who claimed that the elimination of marketing boards would threaten their livelihoods.

HUMAN ELEMENT EMPHASIZED

Social and personal stories about agriculture comprised slightly over one-quarter of CBC and slightly over one-fifth of CTV attention to the topic. For example, the 6 March 1992 "Journal" presented the lifestyle of a farmer. The story began with this testimonial: "My name is Doreen Dubreuil. We're a mixed farm. We grow most crops, from fall rye to wheat to oats to lentils. Both the boys are away during the week, and so I have, in the wintertime, I have the cattle to look after." Throughout the story Denise Rudnicki described the Dubreuil's life and allowed each member of the family to discuss their particular situation.

More significant was the finding that in almost half of CBC (43 percent) and over half of CTV (53 percent) agriculture stories, a personal story was presented.

These statements consisted of describing the daily life and difficulties of Canadian farmers. Two-fifths of CBC and less than one-quarter of CTV coverage on the personal aspect of agriculture was neutral. Of the remainder, almost twice as many CBC and almost three times as many CTV evaluations were negative. In fact, in during the 20 month time frame of this study, only one story presented a farmer who was able to make ends meet despite the challenges. On 17 February 1992, Peter Mansbridge introduced the story in the following way: "Well there's a lot of anxiety down on the farm these days-dairy and poultry producers worried about losing their subsidies, grain producers worried about low prices. And who can blame them when figures show almost 20 percent of Canadian farmers are now over their heads in debt. Tonight, a more encouraging farm story in our CBC news inquiry: Hard Times, Hard Choices. It's about succeeding in spite of it all. Here's Kelly Crow with the story of how one Saskatchewan farmer is making it work."

PRAIRIES IN FOCUS

Given the emphasis on the grain sector it does not come as a surprise to find that the prairies were the most talked about agricultural region. Thirty-one percent of CBC and 24 percent of CTV attention was on the prairies (figure E).

Click here to view Figure E: Region Compared to Net Farm Income

General discussion of agriculture as an issue of national importance comprised over one-quarter of CBC and one-third of CTV total attention. Ontario was the topic in 14 percent of CBC and 15 percent of CTV attention.

Quebec Ignored in Agriculture

Quebec, British Columbia and Atlantic Canada were given little attention in the network's coverage of agriculture. Each received less than five percent of the network's attention to the regions.

POLITICS FOCUSES ON GATT TALKS

The political discussion of agriculture centred mainly on relations between government and the farmers, and on international trade talks such as the GATT.

As with most of the coverage on agriculture, assessments of political events and issues tended to provide three times as many unfavourable as favourable assessments.

Some of the discussion centred on the relations between government and the farmers. Much of the negative attention was from farmers fearful that the Canadian government would not be able to fight for Canadian marketing boards in the GATT talks. For example, on 21 February 1992 Diana Bishop reported the following: "Farmers are worried that the federal government won't fight hard enough at the trade talks in Brussels." Although the finance minister, Don Mazankowski, provided a statement of reassurance, the tone of the farmer's comments indicated they mistrusted the government's abilities. The story ended with the farmer's concerns.

Don Mazankowski, Finance Minister: I appeal to you. We are not your enemy. We are your friend. We're defending your interests.

Diana Bishop: But Canada is badly outnumbered on this issue. Most other countries would like to do away with marketing boards, something Livingston says doesn't give him much hope.

Bill Livingston, Farmer: Well, not yet, I won't be too hopeful on anything until I hear from Brussels and then I don't know whether we can believe it all then.

METHODOLOGY

Results on Agriculture are based on census samples of 66 National," 12 "Journal," 12 "Sunday Report," and 6 "Venture" stories as well as 83 "CTV National News" stories from January 1, 1991 to September 30, 1992. All stories appearing during that time were coded, representing a total population rather than a random sample of stories.

Three researchers were employed in coding the news stories. The researchers were selected on the basis of their differing political views. To assess the clarity of the research instrument and measure consistency, tests of inter-coder reliability were conducted throughout the procedure. A high level of intercoder reliability (0.88) was obtained.

Further information or details on the coding design and methods may be obtained by contacting the National Media Archive.

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