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Por Bethany Davis Noll
Número 23
Independent
media catalyze and reflect economic and political development. Over
the last 15 years, policy and decision makers, humanitarian organizations,
and foundations have begun to focus on the link between media and
good governance, the development of open markets, and the promotion
of civil society and democracy1.
These institutions have made haphazard efforts to foster free and
independent media in newly democratized, developing, and transitional
states. Some, such as the International Center for Journalists,
focus on training journalists, while others, such as the Media Development
Loan Fund, focus on providing loans to worthy local media outlets.
The United States Agency for International Development (USAID) has
funded several programs like IREX, which provides "training,
technical assistance, equipment grants and other direct aid to independent
media to help them improve their performance, both against state-sponsored
media and as compared with Western counterparts."2
Internews, a non-profit US organization which has blossomed across
the world in the past fifteen years, "fosters independent media
in emerging democracies, produces innovative television and radio
programming and Internet content, and uses the media to reduce conflict
within and between countries."3
The Department for International Development (DFID) in the UK is
developing programs in Russia that help establish regional press
councils and ombudsmen in order to increase accountability in the
press. While all these organizations have been pushing hard for
money and resources that will help them improve democracy in transitional
societies, international economic institutions such as the World
Bank are only now waking to the possibility of fostering economic
development through media aid.
In September 2001, the World Bank released its annual World Development
Report, "Building Institutions for Markets." The report
analyzes market institutions, their role in promoting growth, and
strategies for building institutions that support markets, all in
order to combat poverty and protect human rights. The report's tenth
chapter considers the role media and media freedoms play in promoting
development, combating corruption, supplementing traditional school
education, making public services more responsive to the poor, contributing
to better health, and promoting institutional reform. This is a
first for the World Bank, and reflects a newfound awareness of media
issues in international economic circles. The two overarching contributions
of media are summarized as "improving governance and supporting
markets." The report continues: to accomplish these goals,
media must be diverse, free of monopoly and restrictive financial
obligations, and unencumbered by onerous regulations.
One specific area that the report concentrates on is ownership of
content creators and media distribution outlets. World Bank Institute
researchers analyzed the ownership structures of 97 countries, categorizing
each of the top five newspapers, radio stations, and television
enterprises, as either state-owned, individual or family-owned,
employee-owned, political party-owned, or corporation-owned ("where
no single owner controls more than a 20 percent interest").
Once they finished this outline the World Bank Institute researchers
discovered that states with high levels of state ownership had low
media freedom, and media outlets in those states provided less information
to "people in economic and political markets" -though
not surprising to many in the media assistance industry, this is
a striking and unsettling piece of direct evidence for decreased
state media control.
This correlation was drawn after controlling for lower development,
autocracies, and poverty. Despite the strengths of the report, however,
the broad sweeping qualities of its data contain a few weaknesses.
For example, media outlets classified as "state-owned"
included such outlets as the British Broadcasting Corporation (BBC),
which is regulated by a Royal Charter and accompanying Agreement
that recognizes the BBC's editorial independence. The researchers
explain that it is too hard to put the BBC in a separate category
because you would then have to include media in Zimbabwe, for example,
which are governed by an ostensibly free Independent Mass Media
Trust that is in reality controlled by the government.
In addition, the data do not demonstrate some of the interesting
nuances evident in the worldwide media arena. For example, the report
states that "state ownership of media is found to be negatively
correlated with economic, political, and social outcomes."
If this conclusion were universally true, the lack of media freedoms
and the virtual absence of competition in the media industries of
China and Singapore should point to lower economic outcomes, but
do not.
After describing the results gained through their ownership study,
the World Bank's media chapter describes the necessary legal and
social structures for the development of free and independent media
and hence better governance and a freer flow of information. They
identified several factors, other than state ownership, that impede
media freedom. These include licensing requirements that may cause
discrimination against journalists who criticize the government
or write unfavorable articles. The report mentions the 1985 case
of a Costa Rican journalist who was uncertified. When Costa Rica
sought the advice of the Inter-American Court of Human Rights, the
Court found that the licensing requirement violated the American
Convention on Human Rights.
In addition, criminal rather than civil defamation and insult laws
may hinder the use of media to express opinion or to criticize governments.
When media are financially dependent on the state, they may be forced
to represent only the state-sanctioned view of events. Finally,
the report states that competition is vital to ensuring high quality
media. "In countries with media monopolies, political, economic,
and social outcomes are worse than in those where the media are
competitive, in part because the former are less effective in improving
institutional quality."
In addition to indicating structures or systems that can negatively
affect media, the report outlines several positive actions that
can be used for improving media freedoms. These include increasing
literacy rates, training journalists, encouraging competition, setting
up complementary institutions, such as self-regulatory bodies or
press councils, and encouraging rule of law and adequate courts
systems.
Notwithstanding the shortcomings in the data used by the report,
the media chapter of the World Bank's report shows that the economic
assistance world is paying much more attention to media as part
of a state's economic and political development. Economists, though
late, are now eager to join the debate over media and its economic
and political influence in society.
The World Bank's report coincides with a recent study, sponsored
by the United States Agency for International Development (USAID)
and written by Monroe Price and Peter Krug at the Programme in Comparative
Media Law and Policy at Oxford University, entitled the "Enabling
Environment for Free and Independent Media." The Enabling Environment
study complements the World Bank report in several ways as it delves
into much greater detail about the legal and social structures that
foster and support free and independent media.
The objectives of the Enabling Environment study in describing necessary
laws and institutions are stated thus,
In this Study, we discuss specific laws that are important building
blocks. Still, we emphasize the surroundings of law and the creation
of a culture of effective independent and pluralistic media. After
all, what is it that makes one society open and tolerant and one
not? What is it that produces a citizenry that not only has the
sources to be informed but also, in fact, avails itself of them?
Beginning with the assumption that, "at some point in every
transition [towards democracy] a free and independent media sector
is vital" the authors of the study go on to describe media
structures that add to the enabling environment, the importance
of rule of law, the legal system and its impact on media content,
and aspects that broadly affect the enabling environment like new
technologies, civil society and NGOs, education, and copyright regulation
and enforcement.
The legal and social structures described by the report and their
importance for media freedom echo some of the points made in the
World Development Report. An important question asked in this study
is what balance should there be between publicly owned broadcasting
and private media. "Market failure" and public interest,
as justifications for public service broadcasting are analyzed in
light of the Internet and the continued need for funding in media
in post-soviet countries and other transitional societies. The study
concludes that while public service broadcasting should be encouraged
as a way to make up for lack of educational and diverse information
on private media, and is acceptable as a way to sustain national
identity in unstable areas of the world, the right to receive and
impart information may be hindered by laws that protect restrictive
public monopolies. A study of the enabling environment would examine
the restrictiveness of regulation concerning public service media
and determine whether the media system fulfills public values or
instead denies the public its right to receive and impart information.
The study then goes on to analyze competition in media by looking
at the usefulness of general anti-competition law, the need to provide
access, and the need to ensure a plurality of voices. Other structural
questions broached by the study are the legal issues around foreign,
religious, or political ownership of media, and the legal issues
surrounding the predominance of one voice or one controlling ideology
in media of a country. Finally, the continued need for government
subsidies or funding in many transitional societies is explored
against the concern that government subsidies allow the government
to indirectly or directly exert content restrictions. According
to the authors of the Enabling Environment, all of these factors
need to be carefully examined when assessing the likelihood that
the social and legal environment will encourage or sustain free
and independent media.
After giving structural issues significant attention, the Enabling
Environment turns to law. Rule of law and legal institutions are
the basis of many free media systems around the world. Enabling
Environment lists four areas of law that have bearing on the freedom
of media. These are laws that govern newsgathering, such as Freedom
of Information Acts and licensing requirements; content-based regulation,
such as secrecy acts, pre-publication censorship by "public
authorities", and libel and defamation laws; content-neutral
regulation that has the potential to influence content indirectly;
and "protection of journalists in their professional activity."
As was also stated by the World Bank report, licensing requirements
are commonly used as a tool of repression and should be carefully
examined. Measuring how restrictive or and effective these laws
are is an important part of assessing the enabling environment.
However, the authors of the Enabling Environment make clear that
an analysis of the legal structure is not sufficient for acquiring
a clear understanding of the state of media in a country. For example,
a journalist in China, writing in the regions, may publish an article
critical of corruption in the government in her local newspaper
or on the Internet, without the legal backing of a free speech law
that prohibits censorship, a viable Freedom of Information Law,
or civil defamation laws that do not exert an unreasonable penalty
on journalists. Al-Jazeera, a state-funded satellite television
station in Qatar, which broadcasts news throughout the Arab world,
allows journalists to publish news critical of Arab governments
that the journalists would not be able to publish elsewhere. Obviously
there is much more to the development of free and independent media
than law alone. Professional training, the development of competition
and privatizing media, globalization, creating systems that ensure
accountability, and ensuring a vibrant and healthy civil society
that will be eager to read what is in the newspapers, all influence
the amount of freedom media enjoy.
Finally, passing laws is not the most important part of a functioning
enabling environment. In Mexico, there has been a protracted discussion
over a Freedom of Information Law. Seen from the perspective of
the enabling environment, this debate is useful for the country,
not only because it will generate a Law in the end, but because
the citizens of Mexico are involved in the public process of drafting
and planning a law for their country. This debate has been waged
throughout the country, and Mexicans have asked such questions as:
Should the law apply to all three branches of government or just
the executive? It is a pageant that teaches and instructs at the
same time as it creates a legal structure.
New technologies, civil society and participation of NGOs, and education
all come into play in a society that is moving towards developing
free and independent media. New technologies may allow previously
marginalized voices, or voices that were not part of the "cartel"
to be heard and influence public policy. Local NGOs in the former
Soviet Union, in the Balkans, and Eastern Europe have all been involved
in promoting health, civil society, and the free flow of information.
These are elements that must interact with the available laws and
regulations in a state. Civil society, competitive ownership structures,
and economic independence in media must sustain each other.
In order to achieve this goal, governments, media assistance organizations,
policy-makers, and those who wish to influence policy and educate,
may be involved in reinforcing the enabling environment in a developing
country. Resources include technical assistance and the use of constitutions
and international instruments. Technical assistance can be given
in the form of indirect aid to broadcasters, business training,
funding for printing presses, legal aid, and other forms of structural
aid. Also, by relying on constitutions and international instruments,
aid providers can promise aid if a state demonstrates adherence
to international principles of human rights. Now that institutions
such as the World Bank have realized the importance of free media
to open markets, international economic organizations can condition
their aid on evidence of efforts to privatize media, encourage competition,
or decrease restrictive "chilling" penalties on media.
Article 19 of the Universal Declaration of Human Rights states that
"Everyone has the right to freedom of opinion and expression;
this right includes freedom to hold opinions without interference
and to seek, receive and impart information and ideas through any
media and regardless of frontiers." Throughout the past fifty
years, and frenetically in the last 10 or 15 years governments and
society have sought ways to provide this basic right to citizens
across the world. The findings of the World Bank, its involvement
in the discussion, and the efforts of Price and Krug to explain
the enabling environment are the next step in the process of understanding
what makes a media system free and what makes a free media system
important.
Notas
y referencias bibliográficas:
1
In 1999, the USAID stated "Access to information is essential
to the health of any democracy for at least two reasons. First it
ensures that citizens make responsible informed choices rather than
acting out of ignorance or misinformation. Second, information serves
as a "checking function" by ensuring that elected representatives
uphold their oaths and carry out the wishes of those who elected
them." "The Role of Media in Decmocracy : A Strategic
Approach ," June 1999, Technical Publication Series, Center
for Democracy and Governance, United States Agency for International
Development. Online [September 2001] Available: http://www.usaid.gov/democracy/pdfs/pnace630.pdf.
2 IREX description online [September
2001] http://www.irex.org.
3 Internews description online
[September 2001] Available: http://www.
Internews.org
Bethany Davis Noll
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