I'll tell the story like a bedtime story.
Once upon a time....WW II ended....some Germans gathered up in spring 1949, and wrote the Basic Law (the Constitution). Contained was article 5....which listed TV as a part of German rights.
German TV was not to be covered by gov't funding....it was a fee (tax) that households would pay...covering the cost.
It was heavily interpreted from the start....TV was supposed to provide culture, education, news, and entertainment (to a lesser degree).
The network created? ARD...Channel 1...was to be based out of Hamburg.
Who would monitor the network? Well...a group of sixty-odd folks....from all over the country, and marginally controlled by the gov't. It's safe to say....by such a large group....they could really change or guide the network.
So in this fairytale....about a dozen years go by and there's woes in fairytale land. The conservative folks (CDU/CSU) have figured out that basing ARD out of Hamburg...means a left-leaning group mostly runs ARD public forum shows, and the nightly news.
So the CDU/CSU cooked up this plan in the early 1960s....they'd create a 2nd network....basing it out of Mainz, and it'd have a right-leaning group of journalists. Funding poured in....buildings were acquired, and almost immediately. the lawyers for ARD stepped up....saying the Basic Law prevented a 2nd network. The court stepped up and agreed....the Basic Law says only one TV empire can exist.
Rather than collapse Channel 2 (the obvious answer)....ARD took control, and 'guided' them.
Instead of having one single left-leaning network....over a period of ten to twenty years...Channel 2 (ZDF) also leaned left.
As RTL arrived in 1984....ARD went back to the court and tried to halt them....saying ONLY one single network could operate in Germany. Commercial TV was supposed to be prevented.
The court eventually said 'no'.....nothing prevented commercial TV.
The general perception today? If you polled most 18-to-40 year old folks....more than half would say they marginally watch ARD or ZDF....that the monthly tax-fee (around 18 Euro) should be cut, and that some major reform is needed.
Oddly, if the gov't had screwed up in the early 60s....adding ZDF....you'd only have ARD today to mess with.
As for some ending to the fairytale? Well...no, it just continues on.