COUNCIL CONSEIL OF EUROPE DE L’EUROPE The ways in which the public, in all its diversity, can be involved in consultative programming structures Salvatore Scifo H/Inf (2009) 11 The ways in which the public, in all its diversity, can be involved in consultative programming structures Report prepared by Salvatore Scifo, June 2009 Directorate General of Human Rights and Legal Affairs Council of Europe Strasbourg, June 2009 Acknowledgements The author of this report would like to thank a number of persons who have contributed to this research: the members of the Group of Specialists in Media Diversity (MC-S-MD), and in particular the European Broadcasting Union, Jacques Favre and Ed Klute for their comments on drafts of this report; Karin Wahl Jorgensen, of the Cardiff School of Journalism, Media and Cultural Studies, for her insightful perspectives given in the area of journalism and public participation; the Council of Europe’s Secretariat for his support in the process of preparation and editing of this report. The opinions expressed in this work are the responsibility of the author and do not necessarily reflect the official policy of the Council of Europe. Directorate General of Human Rights and Legal Affairs Council of Europe F-67075 Strasbourg Cedex http://www.Council of Europe.int/ © Council of Europe 2009 Printed at the Council of Europe Contents Executive summary . .5 A rationale for public’s involvement in programming structures . .5 How the public can interact with media institutions . .7 The European context . 10 Accountability and participation in the public service broadcasting . 11 The context . .11 The main features . .12 Some case studies . 13 Community/third sector media . 14 Newspapers/print media . 17 The contribution of civil society organisations . 19 Conclusions . 20 Recommendations . 21 References . 21 Salvatore Scifo, June 2009 Executive summary The report was commissioned by the The range of possible interactions Newspapers are also going through Council of Europe Group of Specialists between the media industry and the substantial changes and their online on Media Diversity (MC-S-MD), to re- public, including civil society organisa- versions now include more interactive search “the role of the media in pro- tions, include options of regulation, platforms that facilitate the participa- moting social cohesion and the self-regulation and co-regulation, and tion of the public and interaction with integration of different communities a wide range of tools that can be used their readers. However, further re- and in particular prepare a report ad- in each context. search is needed to analyse the dy- dressing the ways in which the public However, the mere formal existence of namics of participation and the in all its diversity can be involved in a law, procedure, code, body or com- editorial choices that occur in these consultative programming structures” mittee is not a guarantee of viewers’ platforms. Where effectively intro- across TV, radio, newspapers and new rights to be protected. Recent research duced, ombudsmen have improved media. findings offer a fragmented picture in the quality of the relationship terms of media accountability and between the newspapers and their The report draws on academic studies possibilities of participation that readers. and official reports on “consultative depends on the historical and social Where they exist, civil society organi- programming structures”, meaning the contexts of each country, ranging from sations provide extremely valuable wide range of tools that are available well-developed systems in some coun- work to monitor the media, represent- to the public to interact and to be con- tries to very weak or almost non exist- ing viewers’ interests within the indus- sulted by media institutions on pro- ent in others, where media systems are try, and providing information and gramming matters, with a focus of co- still in transition, following recent discussion forums to media users. regulation options. major media reforms. Where these organisations are weak or non existent there is a need to encour- Whereas for television and radio this Public service media are a key player in age their establishment and develop- term usually refers to viewers’ and lis- promoting social cohesion at national ment. teners’ panels, in the case of news- level across Europe, but need to con- papers it refers to ways in which the tinuously redefine the relationship Awareness of consultative program- public can get in touch with their with their audiences through the use ming structures has to be increased, editing hierarchies, commonly known of online platforms, and also open and the cause of non-participation to as “Letter to the Editor”, or their con- their content to conversation “in order be researched further with the collab- temporary equivalents in their online to build and maintain a constant dia- oration of all the stakeholders involved versions. logue with the public”. in this process. Community media, with their reliance The Council of Europe should keep Previous studies have shown that in on volunteers from the local commu- monitoring developments in this area many countries broadcasters and nity and the collaboration with a and possibly facilitate the constitution media authorities are developing en- network of civil society organisations of platforms which could bring to- hanced feedback tools, complaining involve their target audiences directly gether media institutions, policy procedures and websites to inform in researching, producing and present- makers and civil society, in order to consultations and facilitate the in- ing programmes. They are usually help raise the awareness on consulta- volvement of the public in consulta- more responsive as they are able to be tive programming structures, as well tive programming structures through in closer contact with their local com- as the opportunities and challenges internet-based platforms. munity than larger broadcasters. offered by digital media. A rationale for public’s involvement in programming structures The role of the media goes much further than which citizens use to make sense of and inter- The role of media institutions in simply providing information about events and pret the world in which they live. Consequently, shaping cultural identity, beyond their issues in our societies or allowing citizens and the role of communication media extends to in- use for information, entertainment groups to present their arguments and points of fluencing who we think we are and where we and education, is well documented. view: communication media also play a forma- believe we fit in (or not) in our world: in other Both industry and academic research words, the media also play a major role in tive role in society. That is, they are largely re- in the field has been, and continues to forming our cultural identity. (European Com- sponsible for forming (not just informing) the be, a subject for passionate discus- mission (EC), 1998:9) concepts, belief systems and even the lan- sions at both national and wider Euro- guages – visual and symbolic as well as verbal – pean level. 5 Ways in which the public can be involved in consultative programming structures In a continent where public service for the time being – this negative trend” (Celot “feeding into the broader constitutional en- broadcasting has historically played an and Gualtieri, 2005:351). deavour of effective citizen participation’, which important role in enhancing demo- In other words, requires ‘a diverse range of the views to be in cratic processes, this sector is currently circulation and accessible to as wide a range of “the digital revolution and platform conver- going through an unprecedented level the population as possible in order to allow for gence tend to divert funding from program- of change that is contributing to rede- comparison and triangulation” (Feintuck, ming to technology and marketing’ (Baldi and fine the concept of public service 1997:3). Hasebrink, 2007a:10) broadcasting (PSB) itself and how it adapts to the converging media sce- with consistent sums destined to In the newspaper industry, sector’s nario of this decade. promote cross-media presence and in- representatives have stated that tools frastructures. to facilitate consultation and interac- Private media concentration in fewer Less quality in programming can also tion with the programming structure hands and, in some cases, the process have social consequences on the are already incorporated in the layout of commercialisation of PSBs, as well public and this has attracted the atten- of the paper, in both internet and print as similar trends in the print and large tion of institutions such as UNESCO versions. However, the possibility of web-based media, have raised con- and the Council of Europe, which are submitting feedback, comments and cerns among policy makers, research- “trying to strengthen civil society or- opinions, does not automatically mean ers and sections of the public alike, ganisations in order to foster citizens’ that there will be an increased degree worried that citizens’ position in rela- participation” ( ibid ., 11). Regarding the of influence of the public, in the edito- tion to the media has been weakened Council of Europe, the issue of how rial choices and programming struc- in the last two decades, and that “tra- public service media should promote a tures of mainstream media and further ditional legal and market-oriented ac- wider democratic participation of indi- research is surely needed in this area. countability mechanisms alone are no viduals has been explored for a longer sufficient”. Therefore, as media number of years. Outside the realm of mainstream researchers Bardoel and d’Haenens media, community media, given their Moreover, the right to freedom of ex- argue, it is extremely important to own nature, have consultative struc- pression 1 through the media needs to discuss “to what extent modern media tures usually built-in their organisa- have balance with regards to other meet the citizen and how the account- tional structure.