A Systematic Analysis of the Discrepancies Between Press Freedom As Measured by Reporters Without Borders and Freedom House
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A Systematic Analysis of the Discrepancies between Press Freedom as Measured by Reporters Without Borders and Freedom House Lee B. Becker James M. Cox Jr. Center for International Mass Communication Training and Research Grady College of Journalism and Mass Communication University of Georgia U.S.A. Laura Schneider Graduate School Media and Communication Department of Journalism and Communication Science University of Hamburg Germany Tudor Vlad James M. Cox Jr. Center for International Mass Communication Training and Research Grady College of Journalism and Mass Communication University of Georgia U.S.A. ABSTRACT Since 2002, Reporters Without Borders, based in Paris, and Freedom House, based in New York, have conducted parallel, and ostensibly independent, measures of press freedom around the world. Across those years, the two nongovernmental organizations have produced measures that are extremely highly correlated. Perhaps because of the high correlations, no systematic analysis has been conducted of the discrepancies. This paper does just that, focusing on discrepancies that are consistent year-to-year as well as those that do not replicate. By using the textual summaries of discrepant cases, the authors attempt to understand the differences as a way of illuminating consistencies and discrepancies in the methodologies of the two evaluators. Paper presented to the international conference Media and the Public Sphere, Lyon, France, July 2-3, 2012. Introduction Two organizations currently produce quantitative measures of media freedom around the world based on the work of professional evaluators. The best known and most widely used measure of press freedom is that of Freedom House (FH). A nongovernmental organization based in Washington, D.C., Freedom House was founded in 1941 to promote democracy globally. In 1980, Freedom House began conducting its media freedom survey Freedom of the Press: A Global Survey of Media Independence which in 2011 covered 196 countries and territories (Freedom House, 2011). The second organization that rates media freedom globally and ranks countries based on these evaluations is Reporters Without Borders (RWB). Reporters Without Borders has released annually since 2002 its media freedom survey Press Freedom Index, which in 2011 covered 179 countries and territories (RWB, 2012a). Based in Paris, RWB defends journalists and media outlets by condemning attacks on press freedom worldwide, by publishing a variety of annual and special reports on media freedom, and by appealing to governments and international organizations on behalf of journalists and media organizations. One criticism of the FH ranking is that it reflected U.S. perspectives on economic and political pressures on the media in different countries and on their judicial systems. The creation of the RWB index has been an alternative tool to the FH ranking. Both of these indices have been widely used by governments, nongovernmental organizations and, more recently, by media scholars. They also have been repeatedly challenged and contested. In Germany in 2006, for example, the political opposition blamed the ruling coalition for doing nothing in order to strengthen the “defaulted and endangered” press freedom in the country, when Reporters Without Borders downgraded Germany by five ranks (Spiegel Online, 2006). When Freedom House changed the status of the Italian media from “free” to “partly free” in 2009, Prime Minister Silvio Berlusconi’s spokesman Paolo Bonaiuti said in a plenary session of the European Parliament: “The left has made them (the press freedom indices, author’s note) become famous like Pink Floyd. (…) Why do 27 left-wing European MPs accuse Italy over a lack of 1 freedom of information when everybody knows it’s not true?” (adnkronos, 2010). When Malawi plunged 67 places in the RWB index in 2011, the presidential and the government spokespersons strongly argued that the report was biased and did not reflect the media reality in the country (Media Institute of Southern Africa, 2012). Two professors at the Walter Cronkite School of Journalism and Mass Communication criticized the most recent RWB ranking of the U.S. (Grobmeier, 2012). They argued that the arrests of journalists who participated in the “Occupy” movement should not have led to a drop of 27 places in the index. The Freedom House measure for 2011 showed only a drop of one point in the country’s rating. Despite the challenges to both measures and the discrepancies between them, relatively little analysis has been done comparing the two indices (Becker, Vlad and Nusser, 2007; Becker and Vlad, 2011). This paper focuses on those similarities and differences. Freedom House and Reporters Without Borders Measurement Both the Freedom House and the Reporters Without Borders global press freedom indices are generally based on the principles constituted in Article 19 of the Universal Declaration of Human Rights approved by the U.N. in 1948, although RWB does not state that explicitly. Freedom House, however, claims that its study is based on “universal criteria”, taking as a starting point “the smallest, most universal unit of concern: the individual” (Freedom House, 2011). Although neither of the two organizations provides a detailed definition of its concept of press freedom, the methodology sections of their reports indicate what the respective indices attempt to measure. Freedom House’s Freedom of the Press index has an institutionalized perspective and seeks to detect the various ways in which “pressure can be placed upon the flow of information and the ability of print, broadcast, and internet-based media to operate freely and without fear of repercussions” (Freedom House, 2011). Thus, it aims to provide an idea of the entire enabling environment in which the media in each country operate. Freedom House uses three broad categories in order to measure the status of press freedom in the almost 200 countries included in the index: the legal environment, the political environment and the economic environment. Every category comprises between seven and eight 2 methodology questions that are filled out by the evaluators. The legal environment category “encompasses an examination of both the laws and regulations that could influence media content and the government’s inclination to use these laws and legal institutions to restrict the media’s ability to operate” (Freedom House, 2011). Hence, this category includes questions about the protection of press freedom through the constitution and other basic laws, the independence of the judiciary, Freedom of Information legislation as well as about the market entry for all kinds of media. The political environment category evaluates “the degree of political control over the content of news media.” Issues examined include the control over sources, censorship and self-censorship, citizens’ access to a wide range of news media and the safety of both local and foreign journalists. Finally, the last category measures the economic environment for the media, looking at media ownership and its concentration, limitations to news production and distribution and control through advertising and subsidies, among others. Each methodology question contains several sub-questions. Those 109 indicators are meant to provide guidance and help to evaluate each question correctly. For each country an analyst prepares the draft rating and country report. The analysts are external scholars as well as members of the core research team in New York. In the next step, the ratings are reviewed individually and on a comparative basis during regional and cross-regional meetings with the analysts and a dozen senior-level advisers. According to Freedom House the information needed to determine the score for each question is gathered from professional contacts, staff and consultant travel, international visitors, the findings of human rights and press freedom organizations, specialists in geographic and geopolitical areas, the reports of governments and multilateral bodies, and a variety of domestic and international news media. The overall score of a country is calculated by determining the score for each of the 23 methodology questions and then, in a last step, adding the scores of the three categories. With 40 possible points, the weighting of the political environment category is greater in the final index than the scores of the other two, accounting for a maximum of 30 points each. The scores resulting from the Freedom House evaluations range from 0 to 100. The current scale, however, is a replacement for a three-point ordinal measure used from the initiation of the measures in 1980 until 1992. In those early years, Freedom House differentiated between media systems judged to be “Free”, “Partly Free”, or “Not Free”. Since the 100-point scale was created, Freedom House reduces the data by labeling countries with a total score of 0 to 30 as 3 “Free.” Nations that score 31 to 60 are classified as “Partly Free.” And countries with more than 60 points are labeled as “Not Free.” The status of the countries is shown graphically in Freedom House’s Map of Press Freedom every year. According to Reporters Without Borders, the Press Freedom Index reflects “the degree of freedom that journalists, news media and netizens enjoy in each country, and the efforts made by the authorities to respect and ensure respect for this freedom” (Reporters Without Borders, 2012). As an organization with the mission of defending journalists RWB’s Press Freedom Index focuses on attacks