It happened historically. At the time of the creation of radio and television, there were no conditional access control systems (CAS), as well as the technical capabilities for their implementation, and the air, unlike the cable infrastructure, did not allow controlling the so-called "last mile". Which, as I suppose, contributed to the development of cable, and then satellite, commercial broadcasting in countries with market economies.
And their (free-to-air radio and television) social function and models of interaction with the viewer are a consequence of the initial conditions of occurrence, not the cause.
Because some TV / radio perform a social function and are financed by the state, some TV / radio operate in the interests of certain organizations, and they also finance, for example, religious TV / radio, and the rest exist through the sale of advertising time. As a matter of fact, everything is very simple, but there are subtleties, for example, in the Russian Federation, TV exists in a hybrid version, seemingly independent commercial structures, and seemingly state media.