The way television and digital platform audiences are measured is once again at the center of the debate in Spain. Mediaset España has publicly defended the need to strictly apply the principles of Article 24 of the EMFA, the European Media Freedom Act, which regulates how audience measurement systems must be developed across the continent.
The issue is particularly relevant because the EMFA has been directly applicable in Spain since August 8, 2025, which requires a review of national regulations such as the General Law on Audiovisual Communication and the law governing the National Commission on Markets and Competition (CNMC) to adapt them to European requirements.
A debate organized by the CNMC
The president of Mediaset España, Mario Rodríguez, recently participated in the event Audience measurement in the digital ecosystem: transparency, comparability and pluralism in the application of Article 24 of the EMFA, organized by the CNMC at its headquarters in Madrid.
During the round table Towards a cross-media measurement that is comparable and useful for media and advertisers, moderated by Siana Kalinova, head of the Audiovisual area of the CNMC, Rodríguez advocated for adapting Spanish legislation to the criteria set by Brussels as soon as possible.
What Article 24 of the EMFA requires
As the executive explained, the European regulation establishes clear principles regarding who should measure audiences and how. Article 24 includes seven criteria: transparency, impartiality, inclusivity, proportionality, non-discrimination, comparability, and verifiability.
Rodríguez pointed out that the EMFA does not prohibit self-measurement by each platform or media outlet, but it does presume that such a system is biased. Therefore, he argued that when different cross-media measurements are integrated into a final common data set, that task should fall to an independent third party.
The proposal for a joint body
The president of Mediaset España proposed that this role be assumed by a JIC (Joint Industry Committee), a body in which advertisers, agencies, and publishers participate in a balanced manner, capable of setting a certified and unique measurement standard for the entire market.
Rodríguez insisted that any solution must fully respect the principles of the EMFA, including the obligation to document in detail the methodologies used and the results of the corresponding audits.
The example of viewing seconds
To illustrate current shortcomings, the executive gave a concrete example: today, a two-second ad view on a mobile phone is counted in the same way as a thirty-second ad broadcast on television during prime time.
Rodríguez considered that comparing such different realities does not benefit any of the parties involved, neither advertisers, nor agencies, nor media outlets.
Italy, Germany, and the role of the CNMC
The president of Mediaset España cited the cases of Italy and Germany as references to follow in the regulation of audience measurement in Europe, and argued that the CNMC should intervene in this matter in Spain.
As a positive precedent, he mentioned the recent Code of Conduct for the Classification of Audiovisual Programs and Content, a sectoral agreement that, in his view, demonstrates that it is possible to reach broad consensus when the regulator promotes dialogue between all actors.
A hybrid system for measuring audiences
Rodríguez proposed that the future measurement model should move away from proprietary systems that function as mere aggregators of figures by those who are the subject of measurement.
Instead, he proposed a hybrid system based on census data, ideally through a single SDK (Software Development Kit) integrated into each application or player, or alternatively a server-to-server system complemented by an equivalent identifier.
This system should also be completed with a panel that provides information on who is behind each screen, such as gender, age, or social status, to finally offer reliable data on unique users.
Other participants in the debate
The round table also featured the participation of Eduard Nafría, Director of Insights and Business Development at Fifty5Blue; David Sánchez, Director of the Media Division at GfK; Jaime Agulló, Head of Measurement at the Spanish Advertisers Association (AEA); and Miguel Ángel Miguélez, Data Technology Analytics Lead at WPP Media España.
Frequently asked questions
What is the EMFA and why does it affect audience measurement in Spain?
The EMFA is the European Media Freedom Act. Its Article 24 regulates how audience measurement systems must be developed to ensure they are transparent, impartial, and comparable across different media.
Since when has the EMFA been applied in Spain?
The European regulation has been directly applicable in Spain since August 8, 2025, which requires the review of national laws such as the General Law on Audiovisual Communication.
What does Mediaset España propose to measure audiences more fairly?
The company advocates for a hybrid system that combines census data, through a single SDK or server-to-server systems, with panel information that includes variables such as the user's gender, age, or social status.
What is a JIC (Joint Industry Committee)?
It is a joint body in which advertisers, agencies, and publishers participate in a balanced manner, with the aim of setting common methodologies and a certified measurement standard for the entire sector.
Which European countries are cited as a reference in this debate?
During the event, Italy and Germany were mentioned as examples of countries where regulatory decisions regarding audience measurement have already been adopted, which Spain could take as a reference.
Who organized the event on audience measurement?
The debate was organized by the CNMC (National Commission on Markets and Competition) at its headquarters in Madrid, with the participation of representatives from media, advertisers, agencies, and measurement companies.
