"Fourth Estate" in Democracy Assistance

The „Fourth Estate“ in Democracy Assistance Practices and Challenges of German and International Media Development Cooperation 6th Symposium Forum Media and Development: The „Fourth Estate“ in Democracy Assistance

Practices and Challenges of German and International Media Development Cooperation

Civic Education Centre Schloss Eichholz, Wesseling, 2-3 November, 2010

Editors Christoph Dietz Julia Steffenfauseweh Angelika Mendes

Conference Photos Julia Steffenfauseweh Graphic/Design/DTP A. Sofie Jannusch In collaboration with: Catholic Media Council CAMECO DEUTSCHE-WELLE- AKADEMIE Friedrich-Ebert- Stiftung FES International Institute Christoph Dietz, Julia Steffenfauseweh, Angelika Mendes (eds.) for Journalism IIJ The „Fourth Estate“ in Democracy Assistance Konrad-Adenauer- Practices and Challenges of German and International Media Deve- Stiftung KAS lopment Cooperation Protestant Academy 6th Symposium Forum Media and Development (FoME) of the Rhineland 2-3 November, 2010, Schloss Eichholz, Wesseling Press Now St. Augustin/Berlin: Konrad-Adenauer-Stiftung e.V.; Aachen: Catholic World Federation of Media Council (CAMECO), 2011 Science Journalists ISBN 978-3-942775-61-8 Zurich University of Applied Sciences in Winterthur ZHW The „Fourth Estate“ in

Contents page

Executive Summary 5

National media development policies and beyond

Christoph Dietz and Helmut Osang 8 German media development cooperation survey Strong in training – weak in sustainability support

Florence Minery 16 French media assistance Developing tailor-made regional cooperation strategies

Ivar Evensmo 23 Norwegian media assistance An integral part of democracy support

James Deane 33 The UK perspective and beyond Growing faultlines in media development

African insights – International cooperation – Measuring impact

Eric Chinje Media development and social transformation 44 Message and the power of media in Africa

Mary Myers 46 DRC Media Sector Programme From „coupage“ to self-reliance?

Jesper Højberg 53 Ways forward for international media development Cooperation and partnerships

Tara Susman-Peña 59 Measuring the impact of media development The Media Map Project methodology

Executive Summary 5

EXECUTIVE SUMMARY

Since the end of the Cold War, the international development community has dedicated considerable human and financial resources towards strengthening independent and professional journalism in transitional and (post)conflict countries. The symposium “Fourth Estate” in Democracy Assistance: Practices and Challenges of German and International Media Development Cooperation aimed at analysing the current state of media assistance. It focused especially on donor policies of European countries, taking into account that the German Federal Ministry for Economic Cooperation and Development (BMZ) has expressed growing interest in media development. Therefore, the first part of this publication provides insight into the media development practices and policy frameworks of France, Germany, Norway and the United Kingdom, as seen through the eyes of media development specialists from these countries. The second part goes beyond the frameworks, and deals with different issues: the role of media for social transformation in Africa, a case study of a media sector programme in the Democratic Republic of Congo, coordination of international donors and implementers, and media development impact measurement.

The contributions to this publication indicate a broad mutual understanding of the role of, and strategies for, media development. Four common characteristics can be highlighted. First, media assistance is seen as an integral part of democracy support (see especially Evensmo), mainly due to the role of media as a guarantor of accountability (Deane, Min- ery, Susman-Peña) and platform for public discourse (Chinje). Second, media assistance requires not only journalism training, but a sector approach including all levels of the media sector, as professional editorial and financial management, capable professional associations, and an enabling regulatory environment (Dietz/Osang, Minery, Myers). Third, financial sustainability is of paramount importance for a functioning independent media sector, and media development cooperation must become more active in this area (Dietz/Osang, Minery, Myers). Fourth, closer cooperation and partnerships among donors and implementers should be encouraged (Evensmo, Højberg).

National media development policies and beyond

German media development Christoph Dietz, Deputy Executive Director of the media consultancy CAMECO, and Helmut cooperation survey Osang, Head of Media Development at Deutsche Welle Akademie, present the findings of Strong in training – weak in a survey on media support practices and strategies among 21 German organisations. They sustainability support find that new concepts in strengthening journalistic capacity have been introduced; tailor- Christoph Dietz and Helmut Osang made instruments for monitoring and evaluation are being developed; new implementing organisations have emerged; the media development investments seem to be expanding. However, using a holistic sector approach, they conclude that German media development 6

cooperation continues to be inadequate at strengthening a supportive legal and regulatory environment and economic sustainability of media in developing and transitional countries.

French media assistance Florence Minery, from the media programme of the French NGO GRET, presents the media Developing tailor-made regional support priorities of the French Ministry of Foreign Affairs, the Organisation Internationale cooperation strategies de la Francophonie, and her own organisation. French media development cooperation, Florence Minery she says, has introduced innovative approaches regarding training methods, reforms in broadcasting systems and media regulation. However, results of interventions in the fields of self-regulation and economic sustainability of media have been much weaker. She highlights the importance of tailor-made regional support strategies, and provides concrete proposals to enhance training effectiveness.

Norwegian media assistance Ivar Evensmo, Senior Advisor in the Civil Society Department of the Norwegian Agency for An integral part of democracy support Development Cooperation (Norad), gives an insight into past and present principles and Ivar Evensmo key objectives of Norwegian media support, and compares different approaches pursued by the Nordic countries and the UK. “In our view, media are a strategic component in development communication and conflict transformation,” he says, pointing to the main elements in Norway’s media support policy today. He calls for more targeted measures and presents an overview of new partners and initiatives in the field, such as the Global Forum for Media Development or the African Media Initiative. To conclude, he describes what are, in Norway’s view, major challenges and possible dangers in media assistance today, and provides ten guiding principles for a good media donor policy.

The UK perspective and beyond James Deane, Head of Policy at BBC World Service Trust in London, explains the United Growing faultlines in Kingdom (UK) Department for International Development’s (DFID) approach to media media development development. While DFID attributes media an important role as guarantor of accountability, James Deane the issue does not feature prominently on the governance agenda. He admonishes caution in using template approaches to media support in fragile states where DFID increasingly concentrates its efforts, and predicts rising attention for media development in the future. In a second step, he outlines three emerging issues affecting media development cooperation: the shift from strengthening institutions to meeting information and communications needs, the need to link media development to access to information movements, and the shift of power from West to East. He concludes by calling for more universal rather than western models of media development.

African insights – International cooperation – Measuring impact

Media development and Eric Chinje, head of the Global Media Program at the World Bank Institute, highlights social transformation the outstanding potential of the media for social transformation in Africa. He states that Message and the power media have to be an integral part of any development strategy, as major development of media in Africa challenges will not be fully addressed without an informed public discussion. However, Eric Chinje training journalists to cover development will not be sufficient, a more holistic view of the challenges of the media sector is needed. Executive Summary 7

DRC Media Sector Programme Mary Myers, a freelance consultant specialising in radio in Africa, reports on the experiences From ‘coupage’ to self-reliance? of a large media sector programme in the Democratic Republic of Congo (DRC). Initiated in Mary Myers 2007, the ‘Media for Democracy and Accountability Programme’, worth approximately 18 million Euros over five years, includes training of journalists and media managers, content production support, support to public service broadcasting, as well as support for regulation of the media sector, and the promotion of economic sustainability of media enterprises. Successes include pioneering TV and radio programmes, various training schemes for journalists, and support to human rights defenders. Due to the sector-wide approach of the programme, stakeholders from all parts of the media sector come together regularly to resolve pending issues, and the chance of duplication of efforts is reduced. However, one of the biggest challenges still facing the programme is the economic debility of Congolese media outlets.

Ways forward for international Jesper Højberg, Executive Director and founder of International Media Support (IMS), media development strongly advocates more cooperation and coordination among media and press freedom Cooperation and partnerships organisations, in order to improve the impact of media support efforts. Referring to the Jesper Højberg Paris Principles, he points to a general lack of targeted and concerted action in international development cooperation. He then uses the principles of harmonisation, alignment and ownership to describe deficiencies and suggest a way forward. Most organisations pursue a single-issue approach and are opposed to the idea of joint assessments, thus making it impossible to gain a sector-wide understanding of key challenges, and make the right strategic choices. In particular, he stresses the importance of strengthening national alliances and systems, and talks of the difficulties of promoting ownership in fragile states lacking strong national leadership. He finally describes the International Partnership Meetings as an opportunity to promote more coordination among actors in the field.

Measuring the impact Tara Susman-Peña, of the media development NGO Internews, gives an insight into of media development the methodological bases of the Media Map Project. Aimed at measuring the impact The Media Map Project methodology of international media development cooperation, the Media Map Project analyses the Tara Susman-Peña relationship between press freedom, governance and economic development. The project consists of three parts: a quantitative analysis of disaggregated governance indicators and statistical data; five media development country case studies; and a review of available studies on donor decision-making. First results of the Media Map Project provide clear evidence that freedom of the press is an important ingredient in good governance and economic growth. However, donors are not grasping enough opportunities to learn from their own experience. 8 The „Fourth Estate“ in Democracy Assistance − National media development policies and beyond

German media development cooperation survey Strong in training – weak in sustainability support By Christoph Dietz and Helmut Osang

Christoph Dietz is Deputy Executive Director of the Catholic Media Council, a consultancy on media and communication in developing and transitional countries, based in Aachen, Germany. Since 1993, he is in charge of the South America desk. Christoph is co-founder of the German This article summarises major characteristics to poverty reduction and the promotion of “Forum Medien und Entwicklung” (Forum of current German media development sustainable development…” Media and Development, FoME) and cooperation and aims to stimulate the moderates the FoME mailing list. He leads reflection upon its strengths and weaknesses. Various organisations (DED, ifa, MICT) the CAMECO resource centre focusing on It is based on a survey distributed in also stress the specific role media play in media landscapes in developing countries, media assistance, community media and September 2010 to 41 organisations, of conflicts and peacebuilding by “significantly religious communication. Between1985 and which 21 responded (see the complete study affecting the way conflicts are perceived and 1993, Christoph edited a solidarity journal at “German media development cooperation interpreted, the dynamics that unfold and on Peru. He holds a PhD in medicine. – a survey”, http://www.cameco.org/files/ the prospects for a constructive turn in the fome-mdc-survey-2010.pdf). direction of the conflict” (citation from the Helmut Osang (Ph.D.) is Head of Media DED profile). Development at DEUTSCHE WELLE AKADEMIE. Since joining the (former) Common understanding of the Radio Training Centre of DW in 1993 as role of media in democracy A holistic approach to media journalism trainer and media consultant, development he has held dozens of workshops in There is a broad common understanding Germany and abroad, in Africa, the among all institutions participating in How do the different actors try to contribute Middle East, South-East Europe and Asia, in particular South-East Asia. In this survey on the pivotal role of media to these goals, and in what way? How can 1997, he taught “Radio Journalism” in democracy and democratisation, well the results of the survey be compared, what at Ngee Ann Polytechnic in Singapore. summarised in the FoME mission statement: would be a suitable, a creative framework to Helmut has been a radio journalist with assess the findings and from there to move DW since 1984 and started his career “…free and independent media are essential ahead to a coherent approach and a common in journalism working with print media back in 1975. He holds a doctorate for the development of liberal democracies. ground for development cooperation from degree in Media and Communication Free and independent media ensure that all within Germany? Studies and Sociology. Helmut is one of groups of society can participate in public the initiators and co-founders of FoME. opinion forming. At the same time they Two years ago, UNESCO presented the demand transparency and accountability from ground-breaking „Media Development political, social and economic players. This Indicators” framework. The indicators form is also of particular importance with regard a gauge with which to measure if and how Christoph Dietz / Helmut Osang: German media development cooperation survey 9

media development is able – or being made able – to contribute to the overall and agreed Participating institutions goals: free expression, access to information, transparency, accountability, public parti- CAMECO – Catholic Media Council cipation, good governance, human rights and *DED – German Development Service human development. It’s a tool for analysis, DW-Akademie not for comparing or ranking. EZEF – Evangelisches Zentrum für entwicklungsbezogene Filmarbeit FES – Friedrich Ebert Stiftung UNESCO Media Development IDEM – Institute for Democracy, Media and Cultural Exchange Indicators ifa – Institut für Auslandsbeziehungen IMS – International Media Studies of Deutsche Welle 1: A system of regulation conducive to free- *InWent-IIJ – International Institute for Journalism dom of expression, pluralism and diversity of KAS – Konrad Adenauer Stiftung media LfM – Landesanstalt für Medien North Rhine-Westphalia 2: Plurality and diversity of media, a level MICT – Media in Cooperation and Transition economic playing field and transparency of Misereor ownership n-ost 3: Media as a platform for democratic dis- Prix Jeunesse International course Radijojo 4: Professional capacity building and suppor- RWB – Reporters Without Borders ting institutions that underpins freedom of Robert Bosch Stiftung expression, pluralism and diversity Solidaritätsfonds Demokratische Medien in der Welt 5: Infrastructural capacity is sufficient to sup- Xchange Perspectives port independent and pluralistic media Zeit-Stiftung

(UNESCO, 2008) *DED, InWent and the former GTZ merged in 2011 to the Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ). Deutsche Welle Akademie has proposed a slightly different set, suggesting the following five dimensions of a media system: media landscape in a country, it is required 1: An enabling legal and regulatory to look at the whole picture and at individual framework functions and factors and their interrelations. 2: The technical and material organisation of And to acknowledge that media is about the media landscape, or infrastructure content and journalists, indeed, and at the 3: Training levels and working conditions of same time about laws, regulations and gov- media professionals ernment politics, business, management and 4: Participation possibilities enabling people finance, and about beliefs, values and norms. to create media content, or the actual ways how to give voice and visibility and presence Everything is interconnected. This com- 5: People’s access possibilities, or the chances prehensive and systemic view is what one to practically get media and their content, to needs before actually considering where access information and how media development interventions (Deutsche Welle Akademie 2010) would be most necessary, effective and sustainable. The holistic and systemic view The common idea of the two sets of indicators is a step forward from the way in which is that in order to understand the complex many actors worked in the field of media 10 The Fourth Estate in Democracy Assistance − National Media development policies and beyond

development in the past: by choosing just free expression, access to information, trans- one instrument, mainly training individual parency, accountability, public participation, journalists, and implicitly assuming that this good governance, human rights and human development. It is important here to look at media in two ways – as a place where information, ideas and debates are exchanged, where voices are heard and visibility is given, a public forum, and as a civil society actor in its own right. This double role is what makes media development such a unique field in overall development cooperation.

The working model also provides a holistic approach to designing media support programmes. Ideally speaking, a media programme should incorporate elements of all three corner sections. If this cannot be done by one agency alone, various actors can collaborate and complement each other. Or, there may be situations where there is a specific focus upon one section only, due to the specific local context. What is crucial is that there is a holistic approach to media development.

will have impact on the entire media system We now relate the findings of the media in the given country. From: Andrew Puddephatt, development cooperation survey to this Sida’s guidelines for media working model. development. Stockholm: For the sake of presenting the survey Swedish International results, we thought to further simplify the Strengthening professional Development Agency, 2010 mentioned sets of indicators, to make the capacity underlying holistic approach clear and visual. We picked this visual from a recent Strengthening professional capacity con- publication by Andrew Puddephatt, the tinues to be the main focus of German media author of the UNESCO-IPDC indicators, and development cooperation. Intervention are using it here as a working model here. The strategies beyond individual journalistic model further narrows down the mentioned training gain in importance. sets of indicators. It pictures the essential cornerstones of a functioning media system: Capacity building can be defined as the professional capacity, legal and regulatory “process of developing and strengthening environment, and economic sustainability. the skills, abilities, processes and resources that organisations and communities need Only the combination, the results of multiple to survive, adapt, and thrive in the fast- interrelations and also overlapping functions changing world.” (Ann Philbin, Capacity of the three corner sections can produce an Building in Social Justice Organizations, Ford environment that builds media that support Foundation, 1996) Christoph Dietz / Helmut Osang: German media development cooperation survey 11

Strengthening professional capacity in media development and practical media production development can be achieved at various (DWA, MICT); intervention levels (see also SDC 2007): – Training is combined with exchange • Individuals, e.g. training of journalists; programmes, internships and scholarships • Media outlets (institutional level), e.g. (n-ost, LfM, Robert Bosch Stiftung, ZEIT). guidance of a single media outlet in strategic planning processes, tailor made trainings There is an overall trend away from isolated for editorial teams, technical assistance, training activities at the level of individuals provision of equipment; – hoping for the trickle-down effect – to a • “Supporting national media institutions and more integrated, organisational approach networks”, i.e. the setting-up of or support (level of media outlets), where training is one to local training and research organisations, option among several others. production networks and associations of journalists, media monitoring groups, press German media development cooperation also councils, etc. fosters some “supporting media institutions and networks”. The survey includes five The vast majority of agencies in German examples: strengthening the Sudan Catholic media development cooperation undertake radio network (CAMECO); strengthening an capacity building at the level of individuals independent journalist association in Burkina or media outlets, and most of them see Faso (DED); strengthening local journalists’ training as the predominant activity in this network in Latin America (DWA); supporting context. Most target journalists (exception the Asia News Network (KAS); creating media Deutsche Welle Akademie (DWA) which networks among conflicting factions in provides capacity building for all sectors society (MICT). in broadcasting – managers, technicians, journalists). This is not new, and has been the Weak assistance to an enabling case for many years. legal environment

However, some remarkable changes have A supportive legal and regulatory taken place over recent years: environment is of fundamental importance – Training contents have moved from for the development of a professional and basic skills to more specialised training for independent media sector. However, very few designated subject areas, such as economics German organisations work in this field. Of and finance, elections, climate and the 21 organisations included in the survey, environment, or children’s TV (DWA, InWEnt- only Friedrich Ebert Stiftung (FES) and Konrad IIJ, DED, Prix Jeunesse); Adenauer Stiftung (KAS) mention being active – Training is related to particular situations, in media policy and regulation issues. such as conflict prevention and conflict resolution (DWA, DED, ifa, InWEnt-IIJ); Reporters without Frontiers is the only – Training is targeting specific types of media organisation systematically offering and programme types, such as community emergency assistance to threatened media radio or participatory programmes on workers. In addition, Zeit-Stiftung awards mainstream media, and is at the same time the “Gerd Bucerius Prize Free Press of trying to build the overall capacities of the Eastern Europe”, and Misereor supports the involved media (DED, DWA, InWEnt-IIJ); community media legislation campaign of – Training is closely linked with content AMARC in Latin America. 12 The Fourth Estate in Democracy Assistance − National Media development policies and beyond

Economic sustainability: the networking is mentioned to be a major Achilles heel element contributing to sustainability by DED and MICT. Often enough – not only in developing and transitional countries – economic Growing variety of actors sustainability is the Achilles heel of professional and independent journalism. The following table shows that, during the However, few institutions are developing or last ten years, many new actors in media have already developed specific instruments development have emerged (Ü), especially focusing on media sustainability, be it “media development NGOs”, i.e. NGOs exclu- of individual media outlets or the media sively active in the media field. sector as a whole. CAMECO plans to edit practical materials on local radio marketing; The broad variety of actors reflects a broad DW-AKADEMIE and InWEnt-IIJ offer trainings variety of local counterparts and approaches, in media management, or integrate issues e.g. some institutions address community of economic and financial sustainability media (e.g. CAMECO, DED, DWA, Misereor), in capacity development projects with mainstream media (e.g. Konrad Adenauer individual media outlets or media groups Stiftung) or public service media (DWA). It (DWA). KAS conducted the Africa Media may be also helpful to distinguish between Leadership Conference on “Sustainable Media those organisations exclusively specialised Business Models in the Digital Age”. Partners’ in media and those where the media field

Organisations exclusively active in Organisations active in the the media field media field and other areas State-related DW-AKADEMIE DED (parastatal)  IMS FES organisations and InWEnt-IIJ  IfA-zivik political foundations* LfM KAS Prix Jeunesse NGOs and private CAMECO Misereor foundations EZEF Robert Bosch Stiftung  IDEM Zeit-Stiftung  MICT  n-ost  Radijojo Solidaritätsfonds  Xchange P.  Reporters Without Frontiers

* “State-related (parastatal) organisations” refers to institutions which may not belong to the official state structure, but fulfil a semi-statal role (e.g. public service broadcaster) or partly implement state policies. German “political foundations” are connected to the major parties of the German political spectrum and supported by the state budget, although they are independent private, nonprofit foundations. They complement the official German foreign policy, but choose their own priorities and strategies. All foundations – Friedrich-Ebert-Stiftung (FES), Friedrich-Naumann-Stiftung (FNS), Hans-Seidel-Stiftung (HSS), Heinrich-Böll-Stiftung (HBS), Konrad-Adenauer-Stiftung (KAS), Rosa-Luxemburg-Stiftung (RLS) – also work in the media field, though only FES and KAS (the most active political foundations in media development) responded to the questionnaire. Christoph Dietz / Helmut Osang: German media development cooperation survey 13

is one of several working areas, as these However, no recent statistical data are availa- tend to follow different institutional logics. ble regarding the total amount of German Specialised media organisations will aim to media development cooperation. further develop their “niche”, meanwhile non- specialised institutions will relate their media As the following table shows, German media activities to their overall goals and focuses. development cooperation has experienced Both models have specific advantages and substantial changes over the last decades. limitations, e.g. organisations exclusively Since its peak in 1981, German investments active in the media field will probably find have continuously decreased. it easier to launch new project ideas on an experimental basis, meanwhile organisations Contrary to Germany, many other donor active in many areas will probably more countries have increased their media easily connect their media activities with development budgets since the 1990s (see other working areas. Myers 2009 for more details). The major donor country has been the United States Few actors with a major media of America with 142 Mio. US$, in 2006, development budget including state as well as private donors (see National Endowment for Democracy 2008). The following table shows that only seven organisations participating in this survey Tailor-made monitoring and evalu- have a budget for media development which ation instruments surpasses € 500.000. The DW-Akademie is by far the “biggest” player in the field. Vari- Amongst the respondents of the survey, ous organisations have experienced raising questionnaire based quantitative methods media development budgets (é). In addi- still prevail in evaluation practice. This is also tion, many new NGOs emerged over the past due to the lack of readily available impact- ten years (Ü). We therefore presume that oriented methods and approaches in media overall German investments in media devel- development cooperation. It is for this reason opment have increased over the last few that FoME organised two conferences on this years. issue under the title “Measuring Change”, Annual media Annual media Media development development budget development budget budget not known > 500.000 Euro < 500.000 Euro State-related DW-AKADEMIE  ifa-zivik DED  (parastatal) FES LfM organisations + IIJ Prix Jeunesse political foundations KAS  NGOs and private CAMECO EZEF Robert Bosch St. foundations  MICT   IDEM Misereor  Radijojo  RWB  n-ost Solidaritätsfonds  Xchange P. Zeit-Stiftung 14 The Fourth Estate in Democracy Assistance − National Media development policies and beyond

Year Amount Source & Additional Information 1981 104.6 million DM (equivalent Wilke 1996, p.541; does not differentiate between media to 101.5 million EUR in 2009, development and development communication and includes including devaluation) only projects financed by the development ministry BMZ*; 1995 43.2 million DM (equivalent to Wilke 1996, see commentary above 27.7 million EUR in 2009, including devaluation) 2000 19.3 million EUR (equivalent to Oepen/Abele 2003, p. 45; includes only projects financed by 24.8 million EUR in 2009, the development ministry BMZ*; also contains some including devaluation) contradictory data such as an overall sum of 32 million EUR from 1998−2002 (annex 3), which would mean an average amount of 6.4 million EUR per year 2010 ??? Probably an increase in comparison to 2000.

* Funds from the Foreign Ministry (e.g. to UNESCO- IPDC, the Stability Pact in 2007 and 2009, which brought together on milestones and indicators for process to Southeast Europe and experts in evaluation and monitoring from progress (DWA) others) are not included, around the world. One practical result of – “Movie matrix”: A framework concept nor are private donors. the international sharing of experience in for results-oriented planning and this field is the mediaME-wiki initiative, implementation at all stages of the funding organised by CAMECO and supported by cycle (ifa) international and German media developers, – Proprietary programme-integrated planning, evaluation experts and academics. monitoring and evaluation system called PriME which is based on the DAC criteria and uses Various promising developments within the quantitative and qualitative M&E tools (IIJ/ German Media Development Cooperation inWent) (see also Fengler et al. 2009). community can be observed, namely a growing number of new approaches: Open questions – Combination of quantitative and qualitative methods: MICT applies a mix of Some important strategic and conceptional quantitative methods, such as circulation aspects of media development cooperation reach, number of articles, etc., and qualitative are not covered in this survey. The following methods, such as in-depth interviews, group questions give an idea of what else needs discussions, media content analysis; as a pilot to be discussed in order to design coherent in one case, DWA tried base-line studies on media development policies for the future: media usage as a starting point, in-depth • How do German agencies in Media interviews with team members and control Development coordinate their activities? group at the start of project and again later How do they cooperate with each other, and on) with other international donors in the field? – Integrated approaches: Results-based Where would be potential future cooperation monitoring and evaluation, where refined fields? quantitative and qualitative methods • How do strategies of German media deve- are integrated in the entire process of lopment agencies relate to differences in the project management: planning, designing, state of the political system, the level of eco- implementing (DED, DWA) nomic development, the phases of conflict in – Emphasis on continuous monitoring, based the partner countries? Christoph Dietz / Helmut Osang: German media development cooperation survey 15

• How does German media development co- National Endowment for Democracy: Empowering operation address governance and accounta- independent media - U.S. efforts to foster free and bility issues? independent news around the world. Washington • What steps can be taken to further research DC: National Endowment for Democracy, Center of media development cooperation? for International Media Assistance (CIMA), 2008 Oepen, Manfred; Abele, Christine: Schlussbericht Literature Cited zur Designstudie Medienförderung im Rahmen Arbeitsmappe Praxis und Perspektiven der der deutschen Entwicklungszusammenarbeit. deutschen Medienförderung. Aachen: Catholic Bonn: Bundesministerium für wirtschaftliche Media Council (CAMECO); Bonn: Evangelischer Zusammenarbeit (BMZ), 2003 Entwicklungsdienst; Eine Welt Medien, 2002 Puddephatt, Andrew: Sida‘s guidelines for media Deutsche Welle Akademie: Kommunikation. development. Stockholm: Swedish International Partizipation. Entwicklung – Positionspapier Development Agency, 2010 Medienentwicklungszusammenarbeit. Bonn: SDC: Media assistance in the Swiss development Deutsche Welle Akademie, 2010 cooperation: media - a key player for realizing Fengler, Susanne et al.: Qualitätssicherung in social accountability. Orientation guide. Berne: der Weiterbildung internationaler Journalisten: Swiss Agency for Development and Cooperation Studie zum konzeptionellen und strategischen (SDC), Governance Division; Swiss Federal Vorgehen für PM+E-Maßnahmen des Inter- Department of Foreign Affairs (DFA), 2007 nationalen Instituts für Journalismus (IIJ) von UNESCO: Media development indicators - a InWEnt. Bonn: Internationale Weiterbildung und framework for assessing media development. Entwicklung (InWEnt); Berlin: Internationales Paris: UNESCO, International Programme for the Institut für Journalismus (IIJ), 2009 Development of Communication (IPDC), 2008 Myers, Mary: Funding for media development Wilke, Jürgen: Medienförderung in der deutschen by major donors outside the United States. Entwicklungspolitik: Indizien und Gründe eines Washington DC: Center for International Media Niedergangs, in: Rundfunk und Fernsehen, vol. Assistance, 2009 44, nr. 4 (1996), p. 539-547. 16 The „Fourth Estate“ in Democracy Assistance − National media development policies and beyond

French Media Assistance Developing tailor-made regional cooperation strategies By Florence Minery

Florence Minery has worked for the Media Programme of the Research and Technology Exchange Group (GRET), a Paris-based development organisation, In countries in democratic transition the way: it remains more an opinion press rather since 2004. She designed and supervised media are of strategic importance. Citizens than a source for hard news. Radio success- media development projects in Chad, are better placed to participate in democra- fully fills the local niche. Television fascinates Côte d’Ivoire, DRC, Congo, Rwanda and tic decisions when they are informed by a and entertains, often with images from else- Burundi, financed by Britain's Department for International Development (DFID), responsible press. Thanks to a legitimate and where. the Belgian Ministry of Foreign Affairs, transparent press, the media contributes to and the European Commission. In 2008 the emergence of public opinion, which in Objectives of French media and 2009, Florence evaluated the media turn supports the establishment of a more assistance support activities of the French Ministry critical and better structured civil society. An of Foreign Affairs and the Organisation Internationale de la Francophonie over independent and responsible media sector is For more than 15 years, strengthening the the past ten years. She worked as media necessary to facilitate democratic processes, media in developing countries has been a project manager in Chad in 2002-2003. enabling an easier dialogue between civil specific goal of the French Ministry of Foreign She holds a PhD in Information Science society and the state. Affairs, the Organisation Internationale de on ‘Geopolitical examination of French- la Francophonie (OIF) and French NGOs like language newspapers of Sub-Saharan West Africa’ (Paris 2, 2006). Among In French-speaking Africa, the media partici- GRET (Professionels du développement soli- others, she has published on the state pate in public debate but they lack editorial daire). They support the media as a sector of the media in Chad (GRET, 2001) and economic independence, professionalism in itself. Since the end of the cold war at the and in Côte d’Ivoire (GRET, 2000). and legal protection, so the rules of the pro- beginning of the 90s, the objective has been fession as established in developed countries to support democratisation processes by apply only in limited fashion. Freedom of the fostering a pluralistic media sector. To do so, press and access to information sources are it was necessary to professionalise, regulate not fully guaranteed, thus limiting the capa- and organise it. city of the media to play their role in a process of democratisation. The print media attempts Activities to this end include: to be a platform for national and democratic • Supporting capacity building, espe- debates, but does so in a still overly partisan cially with the training of journalists and Florence Minery: French media asssistance 17

representatives of media outlets and profes- writing for the press, and ethics. Less atten- sional associations; tion has been paid to the training of manage- • Structuring the media sector by helping ment – the editors and directors of the media regulatory and self-regulatory bodies and business. However, management training is professional organisations, as well as suppor- now also being gradually included in France’s ting legislation towards freedom of the press; media development portfolio, in particular • Raising awareness and increasing for radio1. accountability of media professionals in matters of ethics and of freedom of the press; French Ministry of Foreign Affairs • Supporting local journalism, principally community radio; For the French Ministry of Foreign Affairs, the • Promoting African broadcasting and goals of media assistance and public diplo- films, with funds to stimulate local produc- macy form part of a single strategy. Both tion and exchange of programmes. perspectives belong to the audiovisuel exté- rieur cluster of the Direction de la Politique Already more than 10 years ago – a few years Culturelle et du Français. Two media specialists after the democratisation process in franco- work for this cluster. phone Africa – French donors stopped their support for academic training programmes The specific objectives of media assistance for journalists, as African universities suffered are: from a poor level of professionalism and were • Strengthening the professionalism of the also not able to cover the training needs lin- media and journalists; ked to the new media environments. • Consolidating the regulation of the media across the network of African regulatory The target group of training has been fore- bodies; most journalists and the programmes • Fostering the production of local broad- focused on journalistic research techniques, casters and producers. 18 The Fourth Estate in Democracy Assistance − National Media development policies and beyond

Organisation Internationale de la also contributed to setting up a private audi- Francophonie (OIF) ovisual production sector in several countries. French assistance has helped improve the The Organisation Internationale de la Franco- skills of media professionals and members phonie (OIF) is an international organisation of the regulatory bodies. Specific training on of politics and governments with French as the reporting of electoral issues had a posi- the mother or customary language, and tive impact, even more so when this training where there is a notable affiliation with the involved the regulatory authority. French language or culture. However, regarding media support, spreading the French The results of French media assistance inter- language is NOT the priority of the OIF. ventions on self-regulation and the social responsibility of journalists are weaker. This Being active in media support since the is also the case with respect to strengthening early 1990s, OIF has its own media develop- the economic sustainability of the media, a ment department (which also collaborates more recent focus area. In addition the inter- with the Foreign Ministry). The OIF’s media vention strategies of the French Ministry of support programme aims at “consolidating Foreign Affairs and the OIF are not always democratic processes” and works in two main very clear. policy areas: In the case of the ministry, the two issues of, on the one hand, developing an independent Promoting Press Freedom media sector and, on the other, the public • Developing legislation to guarantee free- diplomacy importance of strengthening dom of information and communication; French audiovisual presence are mixed. The • Strengthening regulatory bodies; OIF’s policy lacks coherence in that it has too • Supporting self-regulation activities. many objectives and is therefore not a really Reinforcing Media Pluralism strong strategy. • Modernising public television and suppor- GRET in Media Development ting press agencies; • Transforming broadcasting structures; The Paris-based NGO GRET has been active • Supporting the funding of the written in media development since 1995, mainly in press; the fields of network coordination, research • Providing professional training and suppor- and field projects. GRET works closely with ting capacity building; local professional organisations and is orga- • Improving the content of local radio; nised around issues in a variety of areas: • Helping the digital development of radio ongoing training; strengthening of self- and stations and newspapers. state-regulation mechanisms; development Outcomes of freedom of the press; and promotion of a business culture within the media. Its The French Ministry of Foreign Affairs and the interventions focus on three different target OIF have introduced innovative approaches, groups: media outlets and professionals; above all with respect to training methods, professional organisations; and regulatory reforms in broadcasting systems and the bodies and ministries – the latter encourages development of media regulation. Ongoing the involvement of the state to promote the training has led to significant changes in pro- emergence of a public policy on information fessional practices. The ministry’s support has and communication. Florence Minery: French media asssistance 19

Over the past five years, GRET has been ope- Strengthening governance and accounta- rating media projects in the transition and bility requires integrated programmes with post-crisis countries Burundi, Chad, Congo, mixed target groups, i.e. including represen- Democratic Republic of Congo, Congo-Braz- tatives of the political arena, law enforcement zaville, Ivory Coast and Rwanda. The projects and the media. Activities like workshops to included capacity building of professional share experiences and best practices may be media organisations (by providing training appropriate for such a mixed public, as the methodologies and technical support); expectations and constraints of each partici- accompanying local partners; encouraging pant are naturally different. Workshops may skills transfers; and exchanging know-how end with the adoption of a final agreement and experience. These projects have been or declaration of resolutions. conducted in cooperation with local and international partners, and included the rele- A governance-centred approach should also vant governmental authorities (supervisory help African states set up a public policy for ministry, regulatory body). GRET has been the media sector. In order to give media sup- facilitator and animator as well as the coun- port a governance objective, certain aspects terpart of the technical and financial stake- are important: holders of these projects. • Training journalists in using reliable infor- Since 1998, GRET has published practical mation sources is crucial: relying on verifia- handbooks for media professionals in French ble sources of information enables journalists and English. These include: Radio Production; to prove what they wrote, avoids rumours and The Art of Publishing a Newspaper and Media guarantees high quality. Unfettered access to Law, Ethics and Standards of Professional Con- government information is also important, duct. both for reducing the risks faced by journalists and sensitising government officials to Sectoral approach public accountability. Over the last years, media support has experienced change: the sectoral approach has become more prominent. The sectoral approach aims at consolidating the media sector within its institutional and political environment. As such it not only focuses on the enhancement of individual journalistic quality, but also on improving the economic context and the regulatory environment in which the media operate.

Media governance Governance and accountability have become prominent themes in international development assistance. It is really the most important that is being worked on at the moment, because involving all stakeholders is crucial for democratisation and development. 20 The Fourth Estate in Democracy Assistance − National Media development policies and beyond

• Community radio stations must be • Community radio stations can generate legally recognised so that they can work as revenues by offering ICT services like inter- local watchdogs and public forums, notably net cafés. However, the capacity of these on political questions that they are often for- radios in ICT matters must be improved. This bidden or discouraged from covering. notably means getting them to master different aspects, in particular interactivity with • Transparent media regulation has to listeners and economic management. be fostered, notably by way of a cooperation instrument, namely the Network of African Regional support strategies Regulatory Authorities. With respect to regulatory bodies, their mediation role must be Normally, media support aims at responding reinforced. to the needs of the media sector in a specific country. However, especially – but not only – in Africa, needs and challenges might be quite similar in a broader regional context, and regional media programmes (e.g. for French-speaking West Africa or the Great Lakes region) may have significant advantages over narrower national approaches.

Of course, a coherent media support strategy requires first a detailed analysis of the problems that could be dealt with at the national level, and of those best addressed at a regional level. Issues such as an appropriate legal framework, support for regulatory and self-regulatory bodies, the structuring of professional organisations, etc. may be primarily addressed at the national level. Professional training – in order to work on • The mechanisms of self-regulation should common standards – and production of pro- be more operational and better implemented grammes on regional topics and interests in civil society. Thus, the critical spirit of the may be best treated at the regional level. citizens towards the press should be stimula- ted. Regional media programmes may offer long- term support to journalism schools, including • Support for economic sustainability for equipment (documentation, specialised must be integrated into each media project. software, etc.). Regional programmes may An economically well-managed and inde- also imply cooperation between professional pendent organisation contributes towards organisations and institutions across borders, the struggle against corruption. It reduces e.g. regarding defending freedom of the the fragility of working conditions for media press and security of journalists. Of course, professionals, facilitates good ethical stan- the success of regional programmes depends dards, and therefore leads to a better quality on decentralised coordination and flexibility press. in implementation. Florence Minery: French media asssistance 21

Some advantages of a regional programme: • Cost-effectiveness: conducting the same activities for several countries reduces costs and staff; • Greater capacity of lobbying and advocacy; • Sharing of experiences and practices; Establishing professional ties.

Some difficulties in implementing a regional programme: • Defining objectives and results which cor- respond both to the regional and national needs; • Guaranteeing well-balanced activities among the participating countries, so that the programme does not become four or five Further steps independent national projects. • Ensuring the visibility of regional pro- There are many ways to improve the media grammes at the different national levels. sector in Africa. They include: • In-depth diagnosis of organisational and Lessons learned management capacity of professional asso- Summarising the last 15 years or so of French ciations and organisations: self-regulatory media assistance, I would like to highlight the bodies and other institutions representing following strategic and methodological less- collective interests can hardly be auto- ons learned: financed. They undoubtedly need short-term external support, as they fulfil a general • Support must be based on an in-depth- interest function. analysis of the whole media sector and of the direct political context of the media. • Long-term projects – over three or four years – should be encouraged in order to accompany the professionalisation of the sector and to ensure sustainability, including, for instance, through the training of trainers. • Local partners should not only be informed but also directly involved in the implementation of media programmes, for example in the steering committee, as it contributes to strengthening the ownership and the visibility of the project. • State institutions should also be involved in order to spur them to carefully work out a public policy in the field of information and communication. 22 The Fourth Estate in Democracy Assistance − National Media development policies and beyond

• Broadening the concept of self-regulation could know and use these local trainers and from merely internal control mechanisms to their specific competences better. a matter of broader political dialogue, including the state and civil society. It is necessary to make a clear distinction • Ensuring that regulatory authorities are between professional training and aware- financed more from the general state budget. ness-raising workshops aimed at sharing • Working with all relevant levels and sta- experiences. Professional training requires a keholders for the media sector, not only homogenous public that participates actively journalists (by enhancing their professional in the training session. To this end, hands-on capacities), but also media managers, media exercises and individual evaluations by the owners, advertisers, legislators and politi- trainers are paramount. The training sessions cians (regarding the legal framework). must be part of a structured training plan and • Strengthening the economic viability of should propose a concrete learning path to media outlets by encouraging managers to the trainees. E-learning has proven useful in organise their media organisations as busi- particular for supervising ongoing training, nesses. as this may be difficult to do in-house. Trai- ning plans could combine residential work- Enhancing training effectiveness shops and on-line sessions. Training has been the most popular inter- Each training plan should include a train-the- vention method supported by donor orga- trainer module. Training local trainers is one nisations. It consists mainly of seminars for of the concrete results of a programme and professionals, while support of basic skills may substantially enhance the sustainability training has been abandoned. Special atten- and ownership of media programmes. tion must be dedicated to the professionalism of journalism schools, in particular to ensure The selection of trainees should rely on trans- a better balance between theory and prac- parent criteria and should directly result from tice. Cooperation between schools and media the specific objectives of the training. Gender professionals should be encouraged. considerations should be an integral part of In order to improve the management of the selection process to ensure an appropri- press enterprises – financial management, ate place for women in the media. A thorough working rules, tax etc. – in-house training application process to evaluate if the candi- should especially target managers, editors dates have the appropriate skills and abilities and directors of commercial services. The for the training – including motivation, pro- heads of marketing and those responsible for fessional background, current position within advertising need real marketing tools, while a media organisation – leads to better quality heads of editorial staff require management and higher efficiency of the training courses. skills to improve the efficacy of their team. A It is also necessary to get rid of the practice of well-managed media outlet contributes to “per diem” stipends, or at least harmonise the the fight against corruption, as it helps red- different practices. This may be addressed by uce the uncertain and precarious situation better coordination among the donors. many journalists work under.

1 See for example http://www. Today we can rely on a good number of well- diplomatie.gouv.fr/fr/actions-france_830/ qualified African trainers. However, internati- medias_19551/plan-radio-afrique_17969/ onal organisations involved in media support index.html 23

Norwegian media assistance An integral part of democracy support By Ivar Evensmo

Ivar Evensmo is a senior advisor in the “For the growth and consolidation of a democratic system, it is important that the atti- Civil Society Department of the Norwegian tudes and values of such a system, like respect for human rights, should be expressed Agency for Development Cooperation and reflected in different contexts…The ability to form independent opinions depends (Norad). Prior to working with Norad, Ivar was a researcher at the International on access to varied and reliable sources of information, for which the existence of a free Peace Research Institute Oslo (PRIO). and independent press is essential. High standards of quality are important, including He previously worked as a development compliance with certain press ethics that are in line with the culture in which the infor- consultant at the Centre for Partnership in mation is being disseminated. The information also has to be made as widely availa- Development (DiS) in Oslo. From 1989 to ble as possible, and in this respect a high illiteracy rate, a thinly spread population, 1991, he was a community participation advisor in the Rukwa region of Tanzania. widespread poverty, gender inequality and great cultural differences can represent He developed a regional media support considerable challenges to dissemination.” programme for the Eastern Balkans in the late 1990s, supplemented by programme components of democracy This is a quote from the document Support • Dissemination of information on demo- building and assistance to refugees. for Democratic Development, published by the cracy and human rights in schools During that period, he established the Norwegian People’s Aid Regional Norwegian Ministry of Foreign Affairs (MFA) • Information on democracy and human Office for the Eastern Balkans, and in March 1993. In her introductory note, the rights directed at the general public or spe- was its first residential representative. Minister of Development Cooperation, Kari cific groups (women, specific occupational Since then, Ivar has worked in various Nordheim-Larsen, wrote “our aim is to pro- groups, etc.) capacities to improve donor support mote development based on the rule of law • Measures for promoting free and indepen- models for media development in transitional and post-conflict societies and internationally accepted standards of dent media, including the training of journa- in the Balkans, Africa and Asia. He has human rights in which all parts of the popu- lists, with an emphasis on quality and respect extensive experience in managing the lation have a genuine possibility of influen- for fundamental ethical principles relationship between NGOs and civil cing their own situation by means of free and • Various forms of support for publications, society, as well as specialised knowledge open participation in political life“. with an emphasis on helping to increase on the intrinsic linkages between freedom of expression, development, access to varied and reliable sources of infor- democracy and conflict resolution. Media and democratic delvelopment mation.

Regarding information, the media and the This has been Norway’s media support policy press (the original headline used in the docu- for almost twenty years. Except for updated ment) the following types of support were – regulations and guidelines, a new version and still are – considered the most important: has never been published. What did come 24 The Fourth Estate in Democracy Assistance − National Media development policies and beyond

later, however, was the analysis of the role of complex context in which this policy shall be media in conflict and post conflict countries. carried out. Although the atrocities in Rwanda in 1994 were greatly facilitated by modern national Media support and human rights media outlets, it was the wars in ex-Yugos- lavia that became a real eye-opener for the Much of Norway’s efforts to support freedom international community. Many witnessed of expression used to focus on traditional the hugely negative impact of information press freedom activities, journalist training blockades between countries in which peo- and advocacy against censorship and biased ple had previously enjoyed multiple infor- media. But such projects were mostly framed mation systems, and how all fractions used as economic and social development projects, very sophisticated propaganda machineries and rarely integrated in human rights and in what became known as ‘Prime Time Crime’. media programmes. It became clear that local media, based on democratic values and high journalistic stan- Thus, Foreign Minister Jonas Gahr Støre laun- dards, are fundamental both for develop- ched an initiative in 2008 targeting violations ment as well as for conflict prevention and of the right to freedom of expression. He good governance. highlighted the links between media, democracy and development, and demanded more Media assistance as an integral part of Nor- direct support to media in conflict areas. As wegian democracy support, with more funds a consequence, support to free media moved at its disposition, faces a number of new chal- high up on the governance agenda. It is also lenges. The globalisation of markets, security the rationale for the Norwegian Agency for concerns, technological changes, financial Development Cooperation’s (Norad) shift crises, emerging new media business models, from supporting a traditional communication Paris Declaration principles and other aid for development approach to a new vision of architecture measures all contribute to the building permanent media capacity in developing countries.

There has also been a geographical shift towards countries such as Afghanistan, Sri Lanka, Zimbabwe and Russia. Dialogue with countries that have large Muslim populations like Indonesia is prioritised. We will also prioritise countries and projects to which we have something special to offer, and where we can make a difference. This may include topics such as the Nordic media council, as a model for media self-regulation.

There are special policy guidelines for Norwe- gian support to free media, which help both Norad and MFA in setting practical priorities. They are currently being evaluated and will probably be updated soon to better reflect the enhanced role of digital and social media. Ivar Evensmo: Norwegian media assistance 25

Norwegian media support in figures

Of the total amount of 108 million NOK (approx. 19 million US$) used on various media and communication projects in 2008, 15 million came from the budget line ear- marked for Mr. Støres’s Freedom of Expres- sion and Free Media Initiative. But the figures are very difficult to classify, since freedom of expression and media assistance fall within several OECD Development Assistance Com- mittee (DAC) codes.1

In 2008, the Norwegian portfolio consisted of 84 projects and programmes, some very small, some quite large. Some were global initiatives, while most were geographically classified, with Africa ranging on top with 24.5 million NOK, Asia and Europe second tions, and partly due to different practical with 23 million NOK each, Latin America third approaches. with 1.5 million NOK, followed by Middle East with 1.4 million NOK. Some were pure media Pursuing different approaches support initiatives, while others were human rights projects with free media components. Fifteen years ago, the pattern of media assi- In addition, there were 18 larger develop- stance was fairly simple. There were relatively ment programmes with media and freedom few funding organisations, with UNESCO lea- of expression components. Smaller initiatives ding and a handful of bilateral donors working were usually implemented by INGOs, while with individual countries. The donor commu- UN organisations like UNDP, OCHA and UNHCR nity as a whole lacked deep understanding of received very large grants. the role that free and plural media could play in development and conflict management. Despite their uncertainty and complexity, Nor was the nature of aid as complex as it has these figures place Norway at number nine now become, with the distinct objectives of of the world’s top media supporters. Together “media for development” and “development with Sweden, Norway would rank at number of the media” to promote good governance four, alongside the UK, following the US, the being pursued in various combinations and EU and Japan. And, if we added Denmark and defying easy classification. Finland, the Nordic Group could claim to be a world leader in media assistance, only sur- Most media donors operated with a two- passed by the US and perhaps the EU. So the tier perspective. For instance, the strategic Nordic block has a huge potential when it acts framework provided by the Danish Develop- together. ment Assistance pursued the development of free, open and plural media structures for However, in the past this potential influence democratic dialogue on the one hand, while was never systematically exploited, partly strengthening the content of the communica- because of different theoretical orientation process in quantity and quality through 26 The Fourth Estate in Democracy Assistance − National Media development policies and beyond

means such as training journalists and broad- Britain, for its, part explicitly linked media casters in professional and management support to poverty reduction. The United skills on the other. Kingdom (UK) Department for International Development (DFID) stated in a report pre- The Norwegian policy for media support pared jointly with the World Bank: “Strategic referred explicitly to the good governance communication is much more than merely agenda: “Free and independent media are an informing citizens about Poverty Reduction essential part of a viable democracy. All socie- Strategic Plans (PRSPs). Rather, it is the active ties need open channels to be able to engage seeking of the perspectives and contributions in social debate and to examine the exertion of citizens so that they can help to shape of power and authority in an independent policy. It also means ensuring that mecha- light… The right to information is necessary nisms are in place for a two-way flow of infor- for good governance, and good governance mation and ideas between the government is perhaps the single most important fac- and the citizenry as well as making deliberate tor in promoting development and fighting efforts to build consensus amongst stake- poverty. In Norwegian development coope- holders about the development strategy the ration, support for media was regarded as nation wishes to pursue”. Today, we would an integral factor in the overall work of pro- call this approach ‘A Voice and Accountability moting good governance.” In order to attain Perspective”. these objectives, the operational guidelines from 2005 specified strengthening the legal The Balkan conflicts became a turning point framework for the media and for journalists, to all these approaches. In the beginning, improving professional standards, promoting media support in this region lacked coor- diversity and accessibility, helping to ensure dination. In Bosnia-Herzegovina (BiH) for the media have access to information, and instance, a large number of local radio and holding them accountable. TV stations mushroomed, with backing from many donors. The big players, such as the EU The Swedish strategy gave more emphasis and the US, had very different ideas about the to cultural factors such as the expression of future of the media industry. The Europeans cultural identity, the preservation of national wanted to promote their own concept of languages and the cultural heritage. public broadcasting financed by license fees; Ivar Evensmo: Norwegian media assistance 27

the Americans favoured a commercial sys- Media for conflict transformation tem. This struggle had very damaging effects in BiH, and subsequently also in Kosovo. Although not formalised in a new policy document, the main elements in Norway’s Towards more targeted media support media support are clear. In our view, media are a strategic component in development The Balkan experience made it obvious that communication and conflict transformation. media support is much more than training In implementing our media support policy, and ad hoc support to campaigns and tech- we try to incorporate media development as nological transfers. A much broader approach a structure for democratic dialogue with stra- was needed, establishing norms and rules for tegic communication as a way of channelling how media support should be given in deve- the dialogue. lopment as well as conflict and post-conflict periods. I am proud to say that Norway was Practical assistance is classified in three con- a pioneer in developing this new understan- textual categories: pre-conflict, conflict and ding, for instance by publishing a study in post conflict situations, as well as three main 1999 called Local Media Support, which gave types of project objectives, i.e., humanitarian concrete advice for media programming. reporting, conflict resolution and institution Unfortunately, the impact was modest in building for development and better gover- Norway and elsewhere. nance. But we need to improve our analytical skills in media analysis and expand our The policy transfer to good programming management capacity. has been cumbersome in Norway for many reasons. Norway’s support to freedom of Norway adheres to the Paris Agenda and expression and media development still suf- tries to promote consensus among influen- fers from many of the same weaknesses iden- tial public and private media donors about tified ten years ago, such as lack of a proper the fact that a well coordinated holistic sec- definition of media support, a fragmented tor approach is more effective than short- grant management structure, a weak admi- term, ad hoc, single projects by individual nistrative support system, lack of baseline donors. We also believe that a programmatic information and performance indicators, approach based on a proper needs assess- and poor monitoring and evaluation mecha- ment with broad participation from national nisms, to mention a few. stakeholders is the best strategy for building national capacity and ownership. But many Norway’s media assistance policy now pur- donors still have rigid policies and funding sues the following key objectives: Strengthe- mechanisms that set limitations for their ning the capacity for communication ana- practical cooperation on the ground. lysis, distinguishing between interventions with different objectives, creating synergy New partners and initiatives from different communication strategies, following international norms and standards, The Global Forum for Media Development adhering to the Paris Declaration, ensuring a (GFMD) founded in 2005 with now almost mix of donor support mechanisms, entering one thousand member organisations, has into partnerships with professional media contributed very much to creating consensus organisations and building permanent media on common policies for communication and capacity. media development. This was complemented 28 The Fourth Estate in Democracy Assistance − National Media development policies and beyond

by another important initiative in 2009 by the intervention. In particular, public donors Salzburg Global Seminar on Strengthening should refrain from being operational, and Independent Media, that initiated a working instead work through funding partnerships process among some key donors to promote with the wide range of professional media a new holistic approach to build permanent organisations that exist. This will be particu- media capacity at country level. A third ini- larly important when supporting politically tiative that points in the same direction, but sensitive areas. works at a continental level, is the African Media Initiative (AMI), linked to the Com- Lessons learned mission for Africa Report in 2005. The report forcefully argued that unless the combined The Nordic experience is that a mixed efforts of better information, knowledge, approach of support from headquarters and media and development communication country level offices has been the most effec- strategies were strengthened across the tive implementing strategy. Decentralisation board, the Millennium Development Goals can be conducive if it facilitates collabora- (MDGs) would not be met. It called for mas- tion between media donors on the national sive new investments in the media sector, level. But this implies that media policies and which were slow to come forward, but now guidelines can be set on overall objectives, seem to have a good chance to succeed under while remaining flexible enough for national the leadership of the African Media Initiative representatives to adapt to local conditions when it kicks off fully in 2011, with active and priorities. In practice, this has been dif- support from many international media ficult to achieve. Zimbabwe is a very positive donors, including Norway. example in this respect.

It is particularly interesting that AMI con- Furthermore, not all communication initiati- centrates on the private media sector, which ves fit into a decentralised decision-making is considered the engine for future media model. Direct support to media in crises and development in Africa. State media will also conflict might better be done from a central benefit, but are not considered capable of level where it is easier to have an overview of assuming a substantial role in the continen- the situation, including international actors tal drive to improve the legal, commercial, and proceedings. Intermediary non-govern- managerial and technological framework mental organisations are usually well placed necessary to create the vital, dynamic, pro- to channel foreign resources to local activities fessional and diverse media structure African and to advise partners on the ground. countries so badly need today, if they are to catch up with the rest of the world in deve- Documenting impact by use of diagnostic lopment and governance performance. Most tools and performance indicators is also importantly the ownership to this initiative necessary to maintain transparency and legi- is solely African. It is endorsed by the African timacy with stakeholders at both ends of the Union and many national African govern- aid chain. ments, but not least by the African Media Owners Association itself. Finally, our aim is that donors should adhere to a common framework of norms and stan- In our view, working through partnership dards for media support, set forward by the with professional media organisations is a Windhoek Declaration in 1991, and in subse- more sustainable strategy than direct donor quent statements, declarations and conven- Ivar Evensmo: Norwegian media assistance 29

tions on media and freedom of expression. how journalists can better protect them- Donor governments have a special responsi- selves. Several regional organisations such bility to include media freedom and freedom as the Media Institute in Southern Africa, the of expression in their policy dialogue with Sri Lanka Press Institute and the South Asian host governments, and raise cases of intimi- Freedom of Media Association also receive dation, harassment and prosecution of media support, in order to do media monitoring, practitioners, who simply carry out their pro- research or strengthen the knowledge and fession. public support for cross border operations and peace agreements. Although they do not form a big part of the INGO budget line, Norad’s old global commu- Major challenges in media assistance nication partners, such as Inter Press Service (IPS) and Panos, are equally important in Media interventions are based either on a this overall communication picture, which, in theory of democratic participation or on a recent years has been supplemented by other theory of social change, or sometimes on a partners like BBC World Service Trust and combination of the two. But building per- International Media Support, the latter spe- manent media capacity always takes place cialising in support to media in crisis states. under different circumstances. Consequently, a political/economic analysis of the local Other strategic media actors have come into situation should always provide the basis for the picture in recent years through partner- such media intervention strategies, inclu- ship with the MFA, and carry out projects at ding assumptions of whether there will be country level. Organisations such as Article continuous flows of philanthropic grants and 19 and IREX promote freedom of expression public subsidies to local media, just market issues, while the Institute for Peace and War revenues, or both. Other factors that should Reporting focuses on conflict journalism. be examined in a media system perspective The International Federation of Journalists are the levels of political and economic con- (IFJ) carries out capacity building of media trol over news production and distribution associations, and International News Safety motivated by elite or class interests, and Institute (INSI) provides security training in social and cultural factors that inhibit or pro- conflict areas, and practical education on mote violent conflicts. 30 The Fourth Estate in Democracy Assistance − National Media development policies and beyond

A free and professional media sector needs a media audiences, so ideally it should be in regulatory framework to ensure equal condi- the media’s self interest to cover important tions for all, and mechanisms with penalties health issues, attracting larger audiences, to deal with disputes within the industry and and thereby gaining the ability to diversify with the various audiences. There is no histo- funding sources and earn higher advertising rical evidence that the market alone can do revenues, rather than being paid to do so. this. The challenge is to find the right inter- play between a free media market and the Journalists may also be showered with scat- necessary regulatory authorities. A golden tered, on-off trainings, reducing their interest rule or a magic bullet cannot be casted in in participating in such trainings. For inde- general terms but must be based on specific pendent media to be sustainable, journalism context analysis. training is not enough, particularly where media are barely economically self-sustai- In Norad’s view building permanent media ning and unable to pay appropriate salaries capacity must take place in three areas: (i) to the “trained” journalists. In contrast, the in international support organisations, (ii) in good impact of training in development- national media outlets and media associa- related reporting combined with other media tions and (iii) in government communication sector related issues is well documented. capacity. Donors who only sponsor development mes- Donors should collaborate with information sages sent via state-owned media may actu- intermediaries – such as media NGOs and ally hinder the development of more inde- think tanks – to establish knowledge-sha- pendent media. ring platforms that can gather and synthesise the best evidence of media capacity built to There is also a pressing need for indicators foster permanent communication for deve- that can assess the effectiveness of this lopment outcomes. spending. Diagnostic tools must be used to identify needs and performance indicators They strengthen media systems themselves, to assess the impact of specific interventions. from print and broadcast media to ICTs, and UNESCO has done a pioneering job in this support infrastructure development that will area. Although the work is still at an early bolster government communication capacity stage, Norway supports it the best we can to engage in two-way communication with from our limited capacity. citizens, and increases the legitimacy and the effectiveness of the state. Finally, I will emphasise that building permanent media capacity takes place under Possible dangers very different national and sub-national contexts. Consequently, understanding the Media in a country can get accustomed to local situation should always provide the receiving grants when covering develop- basis for media intervention strategies, ment-related messaging efforts. As a conse- including assumptions of whether there will quence, media outlets become dependent be continuous flows of philanthropic grants on donor grants, instead of covering these and public subsidies to local media, market important development stories on an eco- revenues, or both. A free and professional nomically self-sustained basis. For exam- media sector also needs a regulatory frame- ple, health is a topic that should interest all work that can ensure equal conditions for all, Ivar Evensmo: Norwegian media assistance 31

and mechanisms with penalties to deal with tions: to increase impact. Donor coordination disputes within the industry and with the provides synergy and cost-effectiveness, pre- various audiences. Whether media exist in vents duplication, and allows for a division of pre-conflict, conflict or post-conflict societies labor according to capacities. But successful should also be decisive for how donors set coordination depends on common under- priorities when it comes to using local social standing of situations, agreement on strate- capital for bridging, bonding, and technical gies, transparency, willingness and time to capacity building. The level of commercial cooperate. and political control over news production and consumption is yet another issue that 2. Identify and work with good local should be taken into account when designing partners in order to understand local pro- media assistance policy through a media sys- blems and implement relevant programmes. tem lens, perspective or model. Choosing effective partners is essential. Mistakes are unavoidable and costs can be A good media donor policy: reduced if the selection process is well pre- 10 principles pared.

1. Enhance donor coordination is a con- 3. Be flexible in project planning and ditio sine qua non of media aid, which also design since media environments and other establishes a common ideal in difficult situa- conditions change over time. Moreover, pri- 32 The „Fourth Estate“ in Democracy Assistance − National media development policies and beyond

orities and methods are not uniform, and without problems support journalists’ organi- choices and decisions must remain open as sations, branch associations, media research social and political situations evolve. and NGOs to avoid contradictions inherent to choosing recipients for direct support. 4. Protect the credibility of local media, by showing respect to editorial independence, 9. Promote conducive legislative/regu- and ensure that funding is not awarded on latory frameworks so as to work towards a the basis of ideology or political favours. “stable, fair, media-supportive environment of law, courts and regulators”. This is a time 5. Develop capacity, not dependency, consuming process, where commitment from because the two processes tend to follow one domestic authorities, and technical expertise another. To build capacity allows for sustaina- from abroad are needed. bility. Emphasis should be on local initiatives, and on refraining from imposing ideas, mani- 10. Build sustainable media support pulating or crippling bureaucratic demands. institutions that can work long-term or function to support intense training in a 6. Plan for long-term donor commit- transition period. Such alternative training ment, because media development is institutions are often necessary in view of generally effective only after many years of the inability of universities to provide media sustained engagement; it cannot be known training, but the sustainability of such alter- in advance how much time will be needed natives must be considered with great care to achieve results, or what obstacles might from the very beginning. emerge. My conclusion is that these are good norms 7. Have exit plans ready because media aid for practice of media donorship and much is in effect a form of “social engineering”. This needed if donors shall be able to foster media requires local knowledge and careful plan- with a wide mouth and sharp teeth that can ning. To have a strategy is most important contribute to effective development commu- in long-term media development efforts, in nication, public access to information and contrast to providing emergency aid in times participatory democracy. of conflict. Failures are always attributed to incorrect strategies or the lack of a strategy I am sure that growing consensus will soon at all. arise around these principles and tremend- ously improve results. Media donor perfor- 8. Diversify funding instruments in mance is of as much public interest as donor order not to destroy the local media market. contributions to social and economic deve- Donors should refrain from giving grants to lopment, but is so far much less reflected in individual media outlets, although there are public discussions. Together we can change many exceptions where such assistance will this situation. be necessary for political reasons. If available, 1 Communication 220; policy 10; telecommunication soft loans from banks and other investment 30; radio, TV and print 40; information technology 40; institutions are generally a better option to governance and civil society 151, human rights 62; and develop the media market. But donors can free flow of information 63. James Deane: The UK perspective and beyond 33

The UK perspective and beyond Growing faultlines in media development

By James Deane

James Deane has been Head of Policy at BBC World Service Trust in London, UK, since 2007. The Trust is the BBC's international charity. It uses the creative power of media and communications to reduce poverty and promote human What are the problems, from the perspec- In my experience, and based on our own rights, thereby enabling people to build better lives. James is also a member of tive of a development agency, media can be research, very few development agencies the steering committee of the Global expected to solve? For some media develop- question that a free, plural and professional Forum for Media Development, whose ment practitioners, this is an uncomfortable media provides these critical functions in mission it is to make media development question since it immediately dilutes the society. At the same time, they tend to con- an integral part of overall development intrinsic role of a free, plural media as a cri- sider media support quite low on their list of strategies, just like education or health. Before, he was Executive tical component of a functioning democracy development priorities. It is a source of con- Director at Panos London, an NGO that and society. It positions media as an instru- siderable frustration to media development promotes the participation of poor and ment of policy, not a good in its own right. I actors that the value that media at its best marginalised people in national and share this concern, but I also understand that provides to democracy and society is gene- international development debates, any professional of any development agency rally acknowledged by development agen- through media and communication projects. He has more than 20 years’ being asked to prioritise either time or money cies, but the issue is so poorly considered experience in writing on development for an issue needs to be very clear about how when it comes to actually allocating money issues, with a specific focus on media that issue relates to their own development or time. and communication in development. objectives, and how it delivers results.1 His current focus is on media and Media as guarantor of accountability democracy, especially in fragile states. The list is a long and familiar one. Media – at least the kind of media that media deve- How does the United Kingdom (UK) Depart- lopment seeks to support – underpins good ment for International Development (DFID) governance and accountability, ensures consider the issue of media within develop- political freedom and democratic inclusion, ment? On the basis of its rhetoric and policy enhances dialogue and inhibits conflict, pronouncements, it could be said to be quite helps avoid famines, supports more effective a significant priority. The media has been markets, informs and provides a voice to mar- highlighted in recent “White Papers” – key ginalised groups; readers of this article could policy papers issued by government depart- continue the list in multiple ways. ments in 2006 and 2009 – particularly with 34 The Fourth Estate in Democracy Assistance − National Media development policies and beyond

reference to the crucial role of media in ment, media development will become a ensuring governance and accountability. The higher priority in development policy. last government’s White Paper promised to spend five percent of all budget support on Whatever happens with the UK Conservative- measures designed to enhance domestic Liberal Democratic Coalition Government for- accountability, including media. A new coa- med in 2009, the framework for considering lition government has reaffirmed this com- the media can be expected to change, just as mitment. media development as an issue shifts in pro- minence and objective in most development Despite this, DFID has had no focal point on agencies. Different agencies have different media as an issue for many years, and while reasons at different times for being intere- it spends significant funding on it through sted or disinterested in the role of media and project support through organisations, such more widely of communication processes in as the BBC World Service Trust, acknowledges society. These can shift suddenly or gradually. that the issue does not feature prominently Ten years ago, the World Bank became more on its list of policy priorities, even within interested in the role of media and commu- the governance portfolio. It is not clear yet nication, in part because it had published whether, under the new coalition govern- the 1999 World Development Report, Know- James Deane: The UK perspective and beyond 35

ledge for Development, which considered the flow of information in society to be central to economic development. Today, they are more interested in media’s role as an accountability mechanism. The two interests are compatible and consistent, and there are multiple other factors at work, but the issue is that the development policy framework substantially sha- pes how an institution approaches an issue.

Greater focus on media likely

In the case of the UK, the dominant development paradigm over the last 13 years has been to invest in the state as the mechanism for delivering development, and an ever greater proportion of development aid has taken the form of direct budget support to governments. Support to media has, as a citizen initiative, action and engagement consequence, been principally of interest in society, business and politics would logi- as a mechanism for making the state more cally lead to a substantially greater focus on accountable, more responsive or more capa- media development, and more broadly in ble. While issues of supporting democracy the role of information and communication and citizen engagement in society have also technologies – another area, strangely, that featured as significant, the focus has been on few development agencies have prioritised in improving the performance of the state first their thinking or action. and foremost. DFID has been among the more influential actors in shaping the international Media and fragile states aid effectiveness agenda, which also focuses heavily on building the capacity of the state There are complications to this, however, to deliver development. preeminent of which is DFID’s focus on supporting countries which are most fragile The emphasis may shift under a new govern- and where development is most difficult. ment which, domestically, has a strong focus Media development organisations have been on enabling greater citizen agency and action accused in recent years of adopting an overly under the label of the “Big Society”. It is not simplistic, template approach to media, wit- entirely clear how much the new government hout understanding the political complexity will see development policy continuing to of the countries in which they work. This cri- move towards supporting the developmen- ticism has been particularly levelled against tal state, or whether it will see its domestic media support interventions in fragile states, political agenda of the Big Society being where DFID is increasingly concentrating its reflected internationally. If this domestic poli- efforts. This is what one influential report on tical agenda does become better reflected in media support in fragile states concluded, international development policy, then the published by the DFID funded London School key importance of media, not only as a gua- of Economics (LSE) Crisis States Research Cen- rantor of accountability but as an enabler of tre in 2005: 36 The Fourth Estate in Democracy Assistance − National Media development policies and beyond

“In situations where the state is fragile and there is insufficient obvious evidence that where the political process is unstable and media is playing a key role in underpinning de-legitimated, the primary objective of sustainable political settlements to make it a donor assistance should be supporting the development priority. formation of a functioning state. In such a scenario, unsophisticated liberalisation of Indeed, many researchers are, as the LSE the media can potentially undermine the report suggests, expressing great caution state building project. The creation and about the benefits that media bring in fragile sustaining of independent media is central political contexts, a caution that has a long to theories of democratisation. However, pedigree reaching back at least to the role in the case of fragile states, it may also of Radio Milles Collines and other extremist be misguided and potentially dangerous media in the 1994 Rwanda genocide. The con- to assume that encouraging the crea- clusion drawn by some development policy tion of free and independent media will makers is that, for all the critical advantages automatically strengthen civil society, or of media as a guarantor of democratic rights, help establish a democratic system that accountability and political inclusion, making will hold governments accountable. This it a key plank of development strategy is too approach underestimates the complexity often too political, messy and difficult when of the contexts of fragile states.”2 political conditions are unstable and fragile. The growing incidences of hate media – the DFID has focused increasingly heavily in best documented recent example of which recent years on developing a more sophisti- was around the Kenya 2007/8 elections, has cated understanding of the political com- fuelled such concerns. plexities and realities of the fragile contexts in which they work. Without understanding Make media support a priority politics and how sustainable political settlements can be achieved, DFID has stressed, Media development organisations find such lasting development impact can too rapidly conclusions baffling. We make several argu- be derailed by conflict and instability. The role ments, some of them old, and some of them of media in fragile states is poorly researched, new. We argue that the advantages of media but for many within agencies such as DFID, greatly outweigh the disadvantages, and that James Deane: The UK perspective and beyond 37

the whole point of media development is to and society – including in fragile states – it is help bring about a free, plural and professio- curious that the issue remains so poorly prio- nal media, capable of playing a positive demo- ritised among development agencies. cratic role in society, rather than a destructive one. We deny too that media development Agencies expected to refocus organisations do take a “template” approach, and that media development organisations There are signs that the attitudes to media often have a more sophisticated understan- development are changing within develop- ding of the political realities and complexi- ment agencies, and some of this is as much ties of the countries in which they work than an acknowledgement of the harm that media many other mainstream development actors. can do, as well as And we point to considerable success in some the good. Agencies fragile countries, such as Afghanistan, where are beginning to media support has been considered to be one focus more heavily of the more successful areas of development on media, not sim- intervention. ply as guarantor of good governance The ever more pressing need for ensuring and accountability, that the citizens of aid recipient countries but also an issue – especially fragile states – have greater that needs to be avenues to demand accountability for deve- incorporated in risk lopment expenditures designed to benefit assessments. The them adds to these arguments further. And, realisation that the perhaps most undeniably, new technologies damage that media and especially the increasingly ubiquitous can do when it is access to mobile telephony, is making access not supported, and particularly the horrific to information increasingly pervasive. Libe- consequences of hate media – seen recently ralisation of information is remorseless and in the Kenya 2007/8 elections – are a major increasingly universal including in many of reason why media needs to be supported, not the most fragile states. (as has tended to be concluded in the past) a reason why they should not. Media is increa- For most media development organisations singly being incorporated in the risk analysis this is a cause of celebration, but even if there carried out by development agencies wor- is an acknowledgement that increasingly king in fragile states, and in electoral cycle fragmented communication environments approaches. can fuel tension in fragile states, it is very difficult to sustain a policy position which seeks For all these reasons, both positive – the to turn back the tide of access to information, growing need to ensure that funds chan- particularly enabled by new technologies. Our nelled through government are subjected role is to support media and communication to increased domestic accountability – and processes and capacities that act in the public negative – to offset the risks that more interest, to support the good that media and extreme media elements may increasingly communication can do and to mitigate the fuel conflict and hate –we can probably bad. At a time of such huge change where expect development agencies, such as DFID, media and communication are playing such to increase rather than decrease the attention a central role in redefining politics, business they accord to media development. 38 The Fourth Estate in Democracy Assistance − National Media development policies and beyond

Political trends and media development are principally focused on how support: key issues citizens can access information and how they can articulate their own concerns and make If media development is to live up to the chal- them heard. lenges of such attention, however, it has as a sector to confront major challenges. The sec- The focus will inevitably move from the insti- tor has always been varied but there are seve- tution to the citizen. Independent media ral “faultlines” which are increasingly shaping institutions will continue to be critical, provi- the environment within which media deve- ding the kind of institutional muscle capable lopment organisations operate. Rather than of standing up to overbearing government go into any great detail, I will just flag a few authority and making sense of the vast sea of of these. information increasingly available to citizens. However, it is near inevitable that media Shift from institution to citizen development strategies will increasingly shift from meeting the professional, business and Historically, the principal focus of media regulatory needs of media institutions to development has been focused on strengthe- meeting the information and communication ning media as a set of institutions – making needs of citizens. newspapers and broadcast media more professional, more independent and more There are dangers in such an approach – not sustainable, and creating the legal and regu- least that this may lead to a more instrumen- latory conditions in which they can survive as tal use of media support organisations which a dynamic fourth estate. could simply focus on feeding people with information that development agencies feel The much analysed financial crisis facing is important. Media development organisa- mainstream media in the industrialised tions – who are in any case already becoming world is not generally reflected in developing more focused on media and communication countries, where media continues to boom – will need to be increasingly imaginative as it expands into new markets. However, and proactive about how they manage this from the perspective of ordinary citizens, transformational change. their capacity to access information is being transformed and is no longer dependent on Linking to civil society movements a limited number of media insti- Media development in almost all cases has tutions, but essentially journalistic roots. The reasons it on an infinite has grown have been part of broader efforts number of indi- to support or promote democracy, particu- viduals and net- larly in the great democratic wave that follo- works accessible wed the fall of the Berlin Wall. It was largely through new designed to create the conditions in which citi- technology. zens of former one party or developing states could have access to the same high quality, The concerns independent plural media that existed in large of those wor- parts of the industrialised world. Journalists king to support and media organisations were the principal governance or drivers and hosts of media development. James Deane: The UK perspective and beyond 39

This is on one level obvious, but the rationale The international promotion of free and plu- used by media development organisations is ral media originated in the West – as an idea no longer their lone preserve. The provision and as a strategy. Specific motives have varied of information to citizens, enabling them to between Western countries and between demand greater accountability and take gre- regions. Ask a governance adviser from DFID’s ater control of their lives, is increasingly now Politics and the State Team how she views a central plank of civil society movements. the role of media and you will probably get a slightly different answer to someone in the Access to information social movements, Office of Democracy and Governance within budget monitoring initiatives, aid transpar- USAID. Their ency institutions and a host of other essen- response may tially information based organisations have, differ again from in many respects, moved onto a territory for- that of someone merly solely occupied by media development in the Demo- and communication organisations. They are cracy, Human proving highly successful, not only at raising Rights and Equa- funding and profile, but in demonstrating lity Department impact – using information and communi- of the Swedish cation to improve democracy and accounta- International De- bility. velopment Coo- peration Agency. One of the characteristics of some of the most The objectives successful of these movements has been of different US the effective partnerships they have develo- based or Euro- ped with media organisations. In only a few pean private foundations and philanthropists cases, however, have media development will be different again. Bring such professio- organisations made concrete common cause nals together, in fact, and they often find it with these civil society movements, partly quite difficult to agree on a common course because of the natural journalistic scepticism of action in the context of media develop- of being involved in campaigning or aligning ment, and have subtly different conceptions with specific civil society groups. My hunch of what support to media can best achieve. is that this is changing, and increasingly At root, however, there will be some shared productive linkages and alliances will incre- values that are, to a lesser or greater extent, asingly be formed between civil society and rooted in the Western experience of what media organisations. media brings to society.

The shift of power from West to East Now, however, the idea of “the West” as the principal reference point for international The tectonic plates of international power are relations is, after hundreds of years, in trou- shifting. In the US and Europe, think tanks, ble. The world order that has shaped global governments and academics are busy deba- discourse since the Second World War, exem- ting how to respond to the remorseless rise of plified by the G7 group of richest countries, China and the emergence or re-emergence of has been supplanted by the G8, the G2 and Brazil, India, South Africa, Turkey, Russia and now the G20. The US remains the main refe- others. The implications for media develop- rence point for international relations, but is ment as a field and a sector may be profound. no longer universally dominant in them. 40 The Fourth Estate in Democracy Assistance − National Media development policies and beyond

Western media in crisis be holding themselves up as models for the rest of the world to follow. Economic crisis in the West is matched by economic boom in emerging economies. Concepts of power are also being redefined. Europe, especially preoccupied with eco- The idea that power emanates purely from nomic, currency and debt crises, is weakened military might is being supplanted by ideas of and distracted, and, at least for now, is seen smart power (military power supplemented as losing power and international presence. by commercial, diplomatic and development Much of Europe is entering a new period of efforts) and of soft power(the influence or austerity and, potentially, introspection (this pulling power which nations exert through is not universal – Sweden, one of the cham- their reputation, and the cultural and other pions of media development, is weathering contributions they are seen to be making to the crisis well). The confidence that invigor- the world). ated the Western democratic model for much of the 1990s and beyond, is being supplanted What does this mean for those involved in by a narrative of democratic recession and an media development? acknowledgement that the most effective economic performer on the world stage is 1. Find models beyond democracy antidemocratic. The idea of democracy as a model of govern- If advocates of democracy as “the worst pos- ment around which the international com- sible system of government except for all the munity should organise itself is decreasingly others that have been tried from time to time” discussed. Individual countries will continue are shifting uneasily in their seats, so too are to make democracy assistance a central pillar advocates of exporting western style journal- of their international relations. US Secretary ism around the world. The transformational of State Hillary Clinton’s compelling address3 crisis affecting western media organisa- on internet freedom, in January 2010, made tions, as the traditional business models are it clear that both funding and clear, forward swept aside by the migration of advertising looking strategic thinking will place freedom to online media, is creating a curious rever- of expression at the core of the US’s foreign sal in international media discourse. It is the policy. Organisations like the Commonwealth developing country media – still undergoing will continue to organise themselves around explosive growth a core democratic agenda. The new UK Coa- in media markets lition Government has a mention of support that are far from for media in the international development saturated – that section of the agreement between the two are brimming parties, and the international development with self confi- budget is the only one (alongside health) to dence, vitality be ring fenced from cuts – and indeed is desi- and optimism. gned to grow in the future. The western media organi- However, these are increasingly national sations are in a strategies, rather than exemplars of a global desperate fight international norm. Should democracy assi- for survival and stance find itself on the agenda of the G20, in less fit state to it is likely to be a key source of tension rather James Deane: The UK perspective and beyond 41

than agreement between the powers around article, but at its best it has sought to assist the table. Even for countries, such as the UK, genuinely independent journalism and the prospects of democracy assistance as a media. core component of foreign policy seem much weaker. Conferences on foreign policy and Now, however, China in particular is expan- analyses by foreign policy think tanks about ding its own media assistance efforts5 – and the future of the “UK and the world4” focus while being more open about this support heavily on concepts such as “soft power”. The than in previous eras, there are concerns that term “democracy” features less and less. it is focused on promoting its own interests through media support. Just at the time To the extent that the media development when the international media development field owed its growth to the international field has begun to develop the international effort to support democracy and democratic presence and maturity to support strategies values after the fall of the Berlin wall, that era that are genuinely in the interests of the is undergoing decisive change. It will survive countries concerned, we may be sucked back in individual national assistance strategies, into a game of media development being but as an international organising principle it supported as a pawn of competing power appears to be in decline. interests.

2. Promote true independence 3. Streamline targeted media support efforts We will need to be watchful that media development does not fall back into the bad The capacity of global and multilateral orga- old days of the 1970s. Media development nisations to advance investigative journalism should be focused on advancing the interests and media development is likely to become of the citizens of the countries in which media more limited. The UN considers democracy to development takes place. The Global Forum be one of its “core and indivisible values6”. It for Media Development (GFMD) needs, I has a Democracy Fund, a Democracy Day, and believe, to champion that obvious principle its development programme, UNDP, devotes as never before. a substantial part of its budget to advancing democratic governance around the world. Concepts and strategies of media develop- UNESCO dedicates a department to advan- ment should be driven, as much as possible, cing freedom from within the countries and regions where of expression. media, and meeting citizens’ information and The World Bank communication needs require assistance. places a major However, in the 1960s and 70s, in the days emphasis on pro- of a multipolar world and a cold war, media moting democra- assistance was focused on getting developing tic accountability, country media “on our side”, and echoed the and the free flow broader Western efforts to recruit as many of knowledge client states as possible. The extent to which, and information. since 1989, media development has been If truth be told, focused on encouraging true independence, these organisa- and how much has been supported to expand tions’ support western influence, is beyond the scope of this to media over 42 The Fourth Estate in Democracy Assistance − National Media development policies and beyond

recent years – come from outside of the Western tradition whether as a and sometimes in active resistance to it. The component of community media movements of Latin Ame- advancing demo- rica and beyond, the vitality of private FM cracy or impro- stations over the years, the infinite creativity ving develop- of social media across much of the develo- ment outcomes ping world, have been improving access to – has too often information, enabling democratic freedom of been limited, expression, and creating the information and incoherent and communication environments that enable citizens to take control of their own lives: to build their businesses, protect their health, sage this impro- raise their voice, exercise an informed demo- ving. The BRICS cratic choice at elections, understand the per- powers are increasingly influential and spectives of those with whom they disagree. powerful, and are either hostile or indiffe- These are not Western notions but are being rent to these organisations’ democracy buil- claimed as universal ones. ding efforts or see their focus on “improving governance” as unwarranted interference in Western tradition still has much to offer, and the internal affairs of sovereign countries. organisations such as my own, the BBC World Service Trust, remain more self confident than 4. Manage paradigm shift ever in the relevance of its role of building the capacity and programming that generates Media development is experiencing two greater access to creative, compelling, trusted huge paradigm changing revolutions simul- information, and creates the platforms where taneously. The rapid shift in power relations people from very different political, religious, is being compounded by the even more rapid ethnic or other backgrounds can engage in revolution in new technologies and the fun- informed public debate that can break down damental challenge it poses to media deve- division and generate mutual understanding. lopment efforts that traditionally sought to We operate in increasingly crowded, complex strengthen a series of institutions – news- and fragmented media and communica- papers, radio and television stations, training tion environments, but all those trends are schools, etc. The provision of information and making the values associated with organi- the capacity of people to communicate are sations such as the BBC more, rather than less and less dependent on such institutions. less relevant. The new environment presents immense opportunity and excitement, but Need for universal models those opportunities are rooted in a fundamental respect of other new actors and rea- These huge changes offer as many oppor- lities. tunities as they do challenges. It is true that most funding has come from the West, and These changes make an understanding of some of the best and most innovative media and capacity to support media and commu- support organisations have also been rooted nication effort more, not less, relevant. The in a Western tradition – I include my own in field will need to be more nimble and open to that category. But, for decades, some of the change than ever if it is to seize those oppor- greatest innovation and creativity has also tunities. James Deane: The UK perspective and beyond 43

1 This analysis should not be taken to reflect the views 3 http://www.state.gov/secretary/rm/ of DFID. It is an informed but nevertheless partial, 2010/01/135519.htm limited and individual perspective of an international 4 http://www.chathamhouse.org/uk-and-world observer based in London. 5 http://www.rjr.ru.ac.za/rjrpdf/rjr_no29/China_ 2 Why Templates for Media Development Do Not Work Africa_Mediascape.pdf in Fragile States; London School of Economics Crisis http://www.unis.unvienna.org/pdf/Democracy_ States Research Centre, 2005 UN_2008.pdf 44 The „Fourth Estate“ in Democracy Assistance / African insights – International cooperation – Measuring impact

Media development and social transformation Message and the power of media in Africa By Eric Chinje

Eric Chinje heads the Global Media Program at the World Bank Institute (WBI). He launched the IMAGE (Independent Media for Accountability, Governance and Empowerment) Media and development have often been by social media networks, it became obvious Network and Academy to build a corps of mentioned in the same breadth by develop- to all that traditional and digital media – the development journalists in the Bank’s client ment experts; media development, however, combined set of tools through which modern countries (see: www.image.network.org). has never received the same level of atten- societies communicate – offered our human Prior to that, he was the External Affairs and tion within the development community. The collective its most powerful instrument yet Communications Manager in the Bank’s Africa Region and the institution’s spokesperson result is that, in spite of an apparent ubiquity for structured interaction and social transfor- on Africa. He returned to the Bank after four of development content, media continues mation. years at the African Development Bank in to „exist“ outside the development space, Tunis where he was head of that institution’s in Africa and many other developing regi- What happened in Tunisia and Egypt and External Affairs and Communications Unit. ons. A cursory analysis of media content in increasingly throughout the Middle East and He is on the Board of the African Media Initiative (AMI) which he was instrumental in the region shows a significant gap between parts of Africa, was clearly a testament to establishing, and is a Founding Co-Convenor media content and national development the power of the technologies of communi- of the African Media Leaders Forum (AMLF). agendas, and that gap widens for countries cation. Above all else, it was the validation Eric lectured in the Yaounde University School that lie at the low end of the development of the fact that a powerful idea, unleashed of Mass Communication in Cameroon. He axis. For media to play a role in the economic through appropriate channels of communi- served as Vice Chair of the World Bank/ IMF Africa Club from 1996–2002. He was and social development of nations, develop- cation, could result in truly historic outcomes. Editor in Chief of Cameroon Television. ment experts must focus on issues of media For the Spring Revolution, timing was impor- He is a founding member of the Women’s sustainability, the content of media and tant but it was that combination of idea and Economic Empowerment Network (WEEN), the ability of media professionals to deliver technology – the soft and hardware of media a non-governmental organization in desired messages. – which delivered the decisive punch that his native Cameroon. Mr. Chinje has written and lectured extensively on tumbled regimes and changed the face of Communication and Development in Africa. Powerful instrument for social governance in North Africa. There are lessons transformation here for all of humanity and, more especially, for development experts as they take on the The most recent of history’s great social challenge of development in Africa today. upheavals – the Arab Awakening, as Al Jazeera calls it, or the Spring Revolution – The first, of course, is that media – traditional brought discussion on the power of media and digital – do constitute the most impor- into stark focus. As entrenched dictatorships tant tool available to our human society for fell through coordinated citizen action linked achieving outcomes that could be global Eric Chinje: Message and the power of media in Africa 45

in scale and historic in scope. The second most effective tools of social transformation lesson is that the use of these technologies ever known. The question, however, raises in a consistent and persuasive delivery of important issues of the performance and messages is necessary to achieve maximum sustainability of media; more significantly, it impact. „This season of revolutionary change brings to the fore issues of capacity to support has been deepened, widened and accelera- a necessary public development discourse. ted by the power of social media. It’s never been easier to influence or be influenced,“ Sustained capacity development says Time Magazine Managing Editor Richard Stengel. Yet, and this is the third lesson, there What capacity exists within African media is always need for a compelling message, a to generate and sustain a public discourse „cause celebre“ around which to rally popu- on development topics? Is it possible to have lations, force change and transform society. an informed debate without informed media professionals? Developing capacity within The third of these, the message – the content media in Africa to deal with the critical chal- – of media, is that which ultimately defines lenges of development is integral to any stra- the thrust of change and transformation. It tegy to use these powerful tools to mediate is in content that media finds its transfor- social transformation and regional develop- mational power. How then can media serve ment. It is the absence of this which explains in addressing the larger global develop- the wide gap that continues to exist between ment challenge? What „messages“ could be media content and the development agendas funnelled through these transformative tools of African countries. to achieve desired development outcomes? The perception among media professionals Integral part of broader that „development stories do not sell news- development strategies papers“ has to be dealt with, and the way to do this is by developing and delivering Clearly it will take the strategic use of the focused training on such matters as „finding hardware and software of media to achieve and telling the development story“. But any intended outcomes. For this to happen, training alone will not be sufficient; kee- media, the technology and the message, have ping journalists on the development beat is to be an integral part of any development equally as challenging. To address this, it will strategy. The major challenges that develop- be important to take a more holistic view of ment nations face, from economic integra- the challenges of the media sector. Effective tion to conflict prevention, public financial use of the media tool to support change, management and institutional transpar- therefore, will involve strategic use of the full ency, food security and climate change, are range of communication technologies, sup- issues which will never be fully addressed port for media development, clarity of mes- without an informed public discussion and saging and an appropriately trained corps the strategic use of media to sustain that of media professionals. It will not suffice to conversation. Initiating and sustaining the focus on one to the exclusion of the other, as development dialogue is core to the role of development organisations are wont to do. media in development. The question of how Training journalists to cover development to do this must be asked and addressed by all must be accompanied by other measures to in the development community who seek to ensure the viability of media as a develop- incorporate into development strategies the ment „partner“. 46 The „Fourth Estate“ in Democracy Assistance / African insights – International cooperation – Measuring impact

DRC Media Sector Programme From „coupage“ to self-reliance? By Mary Myers

Mary Myers is a freelance consultant specialising in radio in Africa. She is British and works from home near Salisbury, Wiltshire. She holds a BA from Oxford University and a PhD from Reading University. Since 2001, she has been consultant adviser to Britain's Department for International Britain‘s Department for International Deve- DRC media context Development (DFID) on media-support in lopment (DFID) is currently funding a rela- the Democratic Republic of Congo (DRC). From 2002 to 2003, she was an adviser tively large media support programme in The Democratic Republic of Congo has much on communications and media within the Democratic Republic of Congo (DRC) in in common with the rest of Africa when it DFID’s Social Development Division. partnership with the Swedish International comes to shortcomings in its media sector. With a background in NGO programme Development Agency (SIDA) and the French Here we find a media that is disorganised, management, Mary has travelled and foreign ministry worth approximately 18 worked in more than 20 countries in impoverished, and riddled by institutiona- Africa. Apart from working with DFID, million Euros over 5 years. Begun in 2007, lised patronage and corruption. A lamenta- recent clients have included the World just after the DRC‘s first ever democratic elec- ble lack of trust is present between citizens, Bank, National Endowment for Democracy, tions, it is called ‚Media for Democracy and the state, and the media. According to the International Development Research Accountability Programme‘. Implemented World Bank, strikingly low literacy rates Centre, Carleton University, France by France Expertise Internationale, a French Coopération Internationale, Internews, exist among the general population (65.5 Triple Line Consulting Ltd, Media Support agency delegated by the foreign ministry, percent), and large parts of the country are Solutions and Farm Radio International. it is almost in its final year, ending in 2012. beyond the reach even of FM radio signals, let The aim is to support the development of an alone within reach of newspapers, TV, or the independent, well-regulated and professi- Internet. Media infrastructure (such as power onal media sector, which gives information lines, radio antennas, transmitters, and prin- and voice to the Congolese people, and helps ting presses) has been ruined by years of them hold decision makers to account. I hel- neglect and war. The majority of journalists ped to design this programme, and am cur- have had no formal training, and most media rently advising on how to measure its impact outlets are shoestring operations. Civil soci- among audiences. This article looks at the ety is weak, and, despite 80 percent partici- successes and challenges of supporting inde- pation in presidential elections in 2006, civic pendent media in this vast and fragile state in participation is still in its infancy. Citizens are central Africa. unaware of their basic rights and freedoms, Mary Myers: DRC Media Sector Programme 47

and completely unused to having a say in the viewers). The written media is also diverse running of their country. with at least 228 newspapers appearing on a regular basis nationwide (Frere 2008). And yet, despite this grim background, extra- ordinary creativity and vibrancy are also Despite all the difficulties of recent years, the found in the Congolese media sector. The DRC media has kept Congolese music and culture tops the African charts in terms of numbers alive through the darkest of times – and, of media outlets. Radio is a key source of of course, music is one of the DRC’s great information for most of the population; the exports. press is relatively free by regional standards (though still far from ideal) and media out- A sector-wide approach lets are many and various – even to the point of chaos. Since the peace deal of 2001, the Built on the basis of thorough baseline number of radio stations in the country has research and political analysis, our large boomed to an estimated 450, and TV stations inter-agency media-support programme is are growing quickly: a survey in 2008 coun- already at its half-way point, and has already ted 82 TV channels in the country (51 in the registered some successes. The ‘Media for capital alone, with an estimated 5 million Democracy and Accountability Programme’ 48 The „Fourth Estate“ in Democracy Assistance / African insights – International cooperation – Measuring impact

takes a sector-wide approach to media sup- and behind-the-scenes pressure, lobbying port, and is organised under five themes, as and diplomacy, for example in multi-donor follows: forums and direct access to the presidency via ambassadors. 1. Training and professionalisation of journalists, media managers and others Rather than just doing training or just sup- within the media porting journalists’ rights, some of the 2. Support for the production of content advantages of a large, sector-wide approach promoting peace, democracy and good include: governance – The fact that project implementers from 3. Support for regulation and legisla- all aspects of the media sector come toge- tion of the media sector ther regularly in the same room to keep each 4. Strengthening business manage- other informed and to resolve issues – for ment and promoting economic sustain- example at the 2011 annual review of this ability of media enterprises programme, staff from the regulator (CSAC)1 5. Support to public service broadcast- were in attendance alongside media mana- ing – mainly to Radio Okapi and to com- gers, media researchers, NGOs, human rights munity radios all over the country. activists and international donors. Many mis- conceptions about the role and the perspec- The lion’s share of the funds goes into themes tive of the regulator were resolved as a result, 1, 2 and 5, although 3 and 4 are really the and the CSAC staff, for their part, gained a most strategically important themes and better ‘map’ of the size and extent of the focus of the programme. This illustrates one media sector. of the challenges of media support in a coun- – There is less likelihood of piece-meal sup- try like the DRC – it is often not a question port to small media NGOs and outlets and of money, but more a matter of investing in less chance of duplication of effort, because long-term core support to key organisations the implementing organisation (in this case (such as the national regulator, press uni- France Expertise Internationale) has an over- ons and freedom-of-expression activists), view of almost all stakeholders in the sector. – The government has fewer transaction costs in terms of dealing with donors, as the donor effort is, to some extent, harmonised.

Some successes

Some successes of the programme include support for the continuing and courageous work of human rights defenders, Journa- liste en Danger; the country-wide coverage of reliable independent news and debate on Radio Okapi – estimated by the UN to be listened to by a third of the population every day (about 20 million people); various popular and pioneering TV and radio series, and educational soap-operas on governance, rights, voting and women’s issues; the DRC’s Mary Myers: DRC Media Sector Programme 49

first ever political satirical cartoon magazine; in selected provinces. Several of the pilot many different training schemes for journa- schemes that the Programme has financed – lists at all levels from community radio tech- such as solar and other alternative power for nicians to masters degrees for managers of running radio station generators – have been media houses; and support to the national taken up by other funders and supported on media regulator − the Haute Autorité des a larger scale. Many of the media outlets that Médias (HAM)2 – especially during elections. have received management training have There are countless examples of indepen- improved their incomes significantly – in dent radio stations helping to defend rights some cases tripling them3. and services – from exposing cases of mass rape and helping to bring the perpetrators The challenge of “coupage” to justice, to helping to restore electrical power to isolated communities; from raising One of the biggest challenges still facing the people’s awareness of where and how to vote, programme, and which potentially under- to encouraging more girls into school. mines almost the entire drive towards independent and professional standards, is the Many of these radio stations are supported widespread practice of ‘coupage’. This is lite- by the programme – but also by other rally the practice of journalists taking their donors – for instance a big USAID-supported cut (couper = ‘to cut’ in French). ‘Coupage’ is media programme has just been announced another name for brown envelope journalism: 50 The „Fourth Estate“ in Democracy Assistance / African insights – International cooperation – Measuring impact

capital, Kinshasa, despite its population of approximately 8 million, the market is not sufficiently large to sustain newspapers on their cover price alone. This state of affairs, coupled with low pay and lack of job security, has resulted in corruption among journalists and editors and, of course, bias, sensationa- lism, and lies. It is a truism to say that, as long as the press is not financially independent, it cannot be editorially independent – but nowhere is this truer than in the Democratic Republic of Congo.

Promoting viable businesses

Clearly, what is needed to clean up the media journalists and editors being paid to cover sector is to tackle this economic problem at certain stories or people in a favourable light, its base, and to help media outlets become and paid to turn up at press conferences and viable businesses in their own right, so that to cover events, in the guise of being given they are no longer dependent on − or at the money to cover their “transport,” “dinner,” or mercy of − vested interests, and can pay their “per diems.” This practice is perpetuated by staff a living wage. politicians, business interests, and even international donors. For instance, at the launch of The fact that financial security eliminates the Participatory Poverty Assessment in Kins- corruption is proven by Radio Okapi, whose hasa in 2006, the World Bank was expected journalists never accept ‘coupage’, and are to pay the local media to turn up at the press well-known for unbiased reporting and conference. Frère describes ‘coupage’ as so quality journalism as a result. Radio Okapi is normal that there are regular rates that a financially independent because it is a United Congolese journalist can expect to ‘earn’: Nations radio station with a neutral editorial line guaranteed by a Swiss NGO called Fon- “…there are standard rates: $10 to $20 for dation Hirondelle, and funded by a group of a newspaper reporter, $20 to $30 for a radio international donors, of which the biggest journalist (and between $50 to $200 for is currently the programme being descri- coverage by a TV team (to be distributed bet- bed here. Most Radio Okapi journalists have ween the various team members: journalist, been able to withstand physical and political cameraman, sound engineer, technician)“ threats − although there have been two tra- (Frère, forthcoming) gic assassinations of Okapi journalists in the East of the country over the last few years On the one hand, ‘coupage’ has its roots in a – and can raise issues that are much more lack of public purchasing power and invest- risky for their counterparts in the Congolese ment, and, on the other hand, a willingness media, who have no international protection by powerful interest groups – for example and who are not paid a respectable wage. warlords, Pentecostal churches, diamond barons, and politicians – to buy themselves Businesses and investors, such as cell phone, positive publicity in the press. Even in the beer and cosmetics companies, are keen to Mary Myers: DRC Media Sector Programme 51

sponsor and advertise on the mass media – case, a formerly pro-government broadcaster in fact, the advertising sector is growing in has found that it makes more financial sense the DRC by about 35% per year - but are fin- to do balanced reporting than propaganda ding that the sector is too disorganised and because they have higher audiences (and too ill equipped to measure its audiences in consequently higher advertising revenue) a reliable manner. With marketing training when they carry more interviews with the and support for proper audience surveys, this political opposition4. could change the commercial outlook to the advantage of media managers. Another strategy is to produce content of sufficient quality so as to make broadcasters Various paths to self-reliance want to pay for it. One small but significant triumph of our media support programme The programme has been promoting finan- is a TV series we financed, which dramatised cial self-reliance, through, for example, the issues of governance and relations of ordi- Panos Institute and the Ecole Superieur de nary people with the authorities and police in Journalisme de Lille in France, by running in- Kinshasa, called ‘M’pangiami’. This has proved house training courses and masters degrees so popular with audiences that it was actually in business for media managers. The idea is bought by one of the big Congolese commer- that business know-how is imparted in the cial TV channels, rather than being required workplace and not − as so often happens − to pay for air-time. in a foreign environment away from the real- life pressures of the studio or newsroom. The Furthermore, the ‘Media for Democracy and other advantage of in-house training is that it Accountability Programme’ is attempting removes the temptation of attending training to attract more advertisers to the quality- just for the sake of collecting a per diem − a media by getting better audience-surveys practice that is regrettably widespread and done, which give a true picture of audience related to ‘coupage’. As a result, in at least one numbers and profiles. This involves training 52 The „Fourth Estate“ in Democracy Assistance / African insights – International cooperation – Measuring impact

audience-research companies in statistical fulfil the function of fourth estate, and pro- research techniques, and encouraging media mote democracy and accountability. managers to use their data to attract advertisers. References: France Expertise Internationale web-page for more Despite these strategies, making media out- details (in French) of the Programme and an inter- view with the Project Manager, Olivier Lechien: http:// lets financially secure, so that journalists can www.fei.gouv.fr/fr/nos-projets/focus-sur/projet-a. be paid decently and be less tempted to take html ‘coupage’, is a long-term challenge. No doubt, Frere, M.-S. (2008). Le Paysage Mediatique Congolais. it will mean that market forces will squeeze Paris, France Cooperation Internationale. out many of the hundreds of media outfits 1 Conseil Supérieur de l’Audio-Visuel et de la Commu- that have proliferated recently. Meanwhile, nication [High Council for Audio-Visuals and Commu- there is a strong justification – I believe – for nication] international donors not to leave everything 2 The HAM recently changed its status and its name to CSAC (see note 1) to the market, but to subsidise the best qua- 3 Source: FEI Progress report to DFID (UK Aid) March- lity media through programmes such as the August 2011 (unpublished internal report). ‘Media for Democracy and Accountability 4 Yves Renard, ESJ Lille, personal communication, Programme’, to ensure that they continue to October 2011, Kinshasa Jesper Højberg: Cooperation and partnerships 53

Ways forward for international media development Cooperation and partnerships

By Jesper Højberg

Jesper Højberg is Executive Director and founder of International Media Support (IMS), an international media In November 2010, the international media of media assistance, I would argue that “the organisation based in Denmark, working support and press freedom community met chaos of good intentions” has been a signifi- to support local media in 30 countries with national partners at UNESCO in Paris to cant feature. Also – to my knowledge – funds affected by armed conflict, insecurity and political transition. IMS has placed address media cooperation challenges in spe- for media assistance, however well it reflects particular emphasis on developing cific countries, such as the Philippines, Haiti, globally agreed issues around democracy and collaborative partnership approaches to Azerbaijan, Zimbabwe, Uganda and Afgha- good governance, have never been provided media assistance. Working with UNESCO nistan. It was the third meeting of its kind, under the condition that it is implemented and other international NGOs in the following a first meeting in Copenhagen in through effective and cooperative partner- 90s, he developed strategies for media assistance and implemented a number 2009, and a second meeting in New York in ships. of specific media/press freedom projects early 2010. The focus was on how the global around the world. In the late 90s, he media development and freedom of expres- In other aid sectors, donors have closely joined the Peace and Stability Secretariat sion community, through a partnership monitored INGOs and encouraged or even (FRESTA) of the Danish Ministry of Foreign approach, can improve the impact of media made coordination a condition. In the media Affairs as a coordinator for a regional civil society development programme for support efforts in specific countries. field, I would argue that, as international South-Eastern Europe. Jesper is a trained media organisations, we have to some extent journalist and initially gained experience Promoting a partnership approach inverted the approach. We have, in a number in management as director of a UNESCO of cases (Nepal, Sri Lanka, Afghanistan, Zimb- film school in Zimbabwe. He has 20 For the past twenty years, media develop- abwe, etc.), promoted coordination among years’ experience of working within ment has suffered seriously from a lack of the field of journalism, social research, donors, particularly at country level. And this media development, communication proper and effective cooperation, particu- has proven successful – particularly in Zimb- planning, and development of media larly among international media develop- abwe. and conflict management programmes ment partners. We are all familiar with the in Asia, Latin America, Africa, the Arab terrible track records of cooperation in the Lack of concerted action within World and South-Eastern Europe. Balkans, East Timor, Afghanistan and else- the global aid community where. This has negatively influenced the ability and willingness of national partners In various international fora, but principally to seek joint solutions to press freedom and through the Paris Declaration endorsed in media development challenges. In the field 2005 and subsequent platforms for action, 54 The Fourth Estate in Democracy Assistance / African Insights − International Cooperation – Measuring Impact

traditional donor countries have committed The urge for action is in line with the conclusi- themselves to improve aid practices. They ons of the Accra Civil Society Aid Effectiveness have, however, only to some extent succee- Forum of September 2008. The final state- ded, according to the OECD Development ment of the Forum pointed to the unaccep- Assistance Committee (DAC) 2009 report. table gap between the global and universal acceptance of the Paris Declaration Principles While they may have been successful, it is and the translation of these principles into still only a relative success. Aid receiving practice. countries such as Afghanistan, bi-lateral donor countries like the Nordic countries, the OECD DAC’s Chair Eckhard Deutscher, in his UN, European Commission and OECD are not Development Cooperation Report in 2009, impressed by the performance of the global shared these sentiments. “Our view of what is aid community. needed to reach the Paris Declaration targets is clearer than ever”, he said. “At the same They share the view that the aid community time, it is strikingly evident that more of the knows the issues and what needs to be done. same will not get us there.” But now we need to act. We must change our behaviour and ensure that the aid principles Applying the Paris Principles agreed by the international community are to international media support: adhered to. major challenges

Each of us must work towards joint planning, Harmonisation instead of and establish partnerships between national fragmentation and international actors. Integration must be maximised, we need a comprehensive per- For media organisations, harmonisation spective and our action must be strategic. means adjusting their individual approach to the context in any given country. Specific indicators of success have been stipulated in the Paris Declaration, underlining the importance of establishing common arrangements and procedures within the context of a programme based approach.

Why has this been so difficult to achieve? During the years International Media Support (IMS) has been involved in facilitating joint partnerships, some common critical issues have made it difficult to fulfil the Paris Decla- ration goals within the global media development and press freedom community.

One important and destructive factor is the single-issue approach of many media support and press freedom organisations. OECD DAC refers to it as the fragmentation of efforts – aid coming in too many small slices. Jesper Højberg: Cooperation and partnerships 55

Narrow mandates, such as being solely a Countless international media freedom orga- training provider or a provider of protection, nisations have visited Mexico to highlight, make harmonisation difficult. lobby and advocate the protection of Mexi- can journalists. In several instances, the inter- In 2006, an assessment was carried out in Sri nationals have been more preoccupied with Lanka on what donor funds for media were profiling themselves than respectfully con- allocated for. It revealed that more than 50 sulting with national organisations. Most of percent of funding went into training courses the assessments carried out, and recommen- related to conflict reporting. No assessment of dations made, are similar, become repetitive, impact or relevance was carried out. A similar and lack a clear operational agenda. assessment in post-war Sudan showed that ad-hoc training was offered without a joint Without comprehensive assessments and a strategic objective. sector-wide understanding of key challenges it is, however, very difficult, if not impossible, to make the right strategic choices. Informa- Need for more coordination tion may be shared on certain issues but it is more often the lowest common denominator Behind this reality lies a fact also highlighted that brings organisations together. by OECD DAC and the Paris Declaration: Donors – and in our case the media and press In most cases, only very limited interest, time freedom organisations – hardly ever coordi- or capacity are allocated to jointly identify the nate assessments. Every organisation carries right strategic priorities which could result out its own assessment and its own mission, in an adequate division of labour within a which often results in repeating the same broadly agreed media sector programme. recommendations. Joint assessments could bear the risk of making certain organisations Zimbabwe can serve as a positive example irrelevant. here. The ongoing development of a media strategy for the country, involving both national The World Association of Newspapers (WAN) decided after the International Partnership joint assessment in Nepal in 2005 to disen- gage, since their publisher’s mandate was The Principles not a priority in the country. The assessment Consensus on principles for an Action Framework (Source: OECD) showed that protection issues would need higher priority, and the International Federa- tion of Journalists (IFJ) was therefore seen as a more obvious lead. 1.Ownership Partners (National partners) set the priorities

National partners are overburdened, being 2.Alignment Alignment Use of country (International Media Org./ on partners’ systems requested to answer the same questions over Donors-Partner) priorities and over again. The absence of joint assess- 3.Harmonisation Common Simplify Information (Int. Media Org./Donors-Int. Media arrangements procedures Sharing ments by the international actors does not Org/Donors) encourage national organisations to establish coalitions and alliances, and present joint assessments of media freedom challenges in their respective country. 56 The Fourth Estate in Democracy Assistance / African Insights − International Cooperation – Measuring Impact

this in Iraq and it has also, to some extent, been the case in Haiti.

Alignment – strengthening national alliances and systems

Alignment is understood as adjusting to nationally developed systems and national development strategies. The Paris Declaration has and international partners, has provided a established the existence of reliable country framework for all actors involved, including systems as an indicator of progress. Linked the donors. In regard to training and capacity to this is the importance of strengthening a building, Deutsche Welle projects focus on coordinated approach to capacity building of bringing all actors together to create a cohe- these national institutions. rent approach. In many countries, however, joint national Media organisations are known to be very systems or alliances do not exist, and sup- competitive in terms of accessing finan- porting the set-up of such systems within cial resources. But they are also known for the media sector has not been common prac- attempting to control the media develop- tice. The international organisations have ment and press freedom agenda in any had their “natural” affiliates in each country, given country. There is a lack of motivation to which to some extent is acceptable, because harmonise, and donors, donor politics, mul- various interests do exist. tilateral platforms and tender systems even encourage an extremely – sometimes poli- Only very few countries, such as Nepal, Zimb- tical – competitive approach. We have seen abwe and Colombia, have national alliances

Conceptual model for building Partnerships

Information Local demand / Pre-partnership sharing / relevance for consultation focal point intervention

Commitment for Agree on Define type of follow-up, priorities/objectives mission, donor involvement and indicators ideal size and funding

Select participating partners Jesper Højberg: Cooperation and partnerships 57

that bring together various media actors. national partners to develop useful partner- Though they play an important role, the alli- ships with them. Many national media part- ances remain fragile and are not often actively ners have simply lost trust in international backed by international actors. I would argue media organisations. that only because of the existence of “Pro- yecto Antonio Narinio” in Colombia, which Ownership needs effective is a national alliance, has it been possible to national leadership break the curve of journalists being killed. The quest for national ownership and effec- Strong and convincing national alliances and tive leadership through media development media development strategies are a pre- policies and strategies is closely connected condition for successful alignment. In many to the principle of alignment. Ownership is cases, neither is in place, because it either a basic element, yet difficult to ensure. The has never been encouraged by internati- Accra Agenda for Action took particular notice onal actors, or weak national alliances are of the importance of country ownership. unable to pull national actors together and keep international actors in line. Wherever As mentioned before, some countries, such international actors did not make enough as Zimbabwe, Nepal, Mexico, the Philippines, efforts to adapt adequately to the national Sri Lanka, Haiti and Liberia, have both an context, this has resulted in the application of interest and an agenda setting capacity. Alli- narrowly defined international agendas and ances have been established with or without standards. the interference of international partners. In 2005, during IMS’s partnership engagement The lack of interest or ability of internatio- in Nepal, the Federation of Nepalese Journa- nal partners to consult and ultimately align lists (FNJ) was a collectively agreed counter- makes it even more difficult to convince part to the international organisations. It was 58 The Fourth Estate in Democracy Assistance / African Insights − International Cooperation – Measuring Impact

agenda setting and represented the various The recognition by donors of the importance national actors during the time of crisis. It was of promoting national and international lea- supported by the IFJ, which was accepted by dership in specific countries is important to all international organisations. The FNJ never ensure successful partnerships. depended on the goodwill of international organisations, and requested that interna- Opportunities: International tional lobby and advocacy objectives would Partnership Meetings follow a nationally set agenda. The objective of the global International Part- Many times, however, international media nership meeting in Copenhagen in Septem- and press freedom organisations do not take ber 2009 was partly to initiate a process of the facilitation of local agenda setting seri- ongoing strategic discussions that ultimately ously enough. On the contrary, if an agenda should improve the impact of joint efforts has been established, it is often not respected and partnerships – be it an advocacy, media by international actors, and funding as well development or emergency partnership. as capacity building is limited. The meeting in Copenhagen defined a few Still, we must recognise the difficulty of broad partnership principles and identified exercising ownership in fragile states where the need for a systematic and explicit stra- the mere identification of legitimate owners tegy/manual for partnerships. A document poses a challenge. Ownership needs leader- highlighting the lessons learned, and issues ship at national level. In some cases, this kind that need to be dealt with in the future, was of leadership is absent because media lea- produced. This document was presented and ders and press freedom advocates have been further refined at a second partnership mee- forced into exile or because media organisa- ting in New York in 2010. It will constitute a tions are ripped apart by politics of ethnicity. platform for continued strategic discussions and present guidelines for new partnerships.

The meeting in Paris at UNESCO, in late November 2010, further discussed key strategic issues based on this original document Defining types of Partnerships and based on status reports from partnerships carried out in 2010.

• Rapid and flexible • Lobby and Advocacy support to media in with national and third conflict and natural party governments or disasters. multilateral bodies. The Paris meeting took stock of the part-

•Infra-structure support, •Focused on Freedom of nerships initiated following New York, and conflict mitigation, prof. Expression, press freedom support, hum. inf. etc. and safety issues. •Haiti, Philippines, Indonesia, •Mexico, Sri Lanka, Nepal, reflected on lessons learned based on the key Kenya, Sudan Emergency Advocacy Tunisia, Belarus Partnerships Partnerships issues and considerations identified in Copen- hagen.

• Builds holistic broad- Media Thematic based support for dev. Development Partnerships of the media Partnerships community over longer •Testing UNESCO Media time-frame. Development Indicators • FoE & Networked •Target media policy and Communication institutional building, Environments professionalisation and • ICT security sustainability issues. •Bhutan, Maldives •Zimbabwe, Liberia, Sudan Tara Susman-Peña: The Media Map Project methodology 59

Measuring the impact of media development The Media Map Project methodology By Tara Susman-Peña

Tara Susman-Peña is an applied cultural anthropologist with over a decade of experience leveraging insights on human behaviour, values, and culture for design, implementation, and Most stakeholders in international deve- fill the gap in current research by analysing evaluation of high-impact programmes and policies. Her experience includes lopment would agree that news media are the empirical correlations between data on audience research at NPR (National indispensable to achieving a broad range the media and its enabling environment on Public Radio) and commercial market of development goals. A growing body of the one hand, and data on development on research in the media, technology, and widely accepted evidence suggests that a the other. It also investigates how specific other products and services industries, robust, editorially free and independent media and communications interventions in addition to consulting to the U.S. government at Jefferson Consulting media sector strengthens transparency and have affected development outcomes in dif- Group. Tara is currently the Director public accountability of government. This in ferent geographic locations across key areas of Research of the Media Map Project turn lowers corruption and engenders the such as democracy and governance, econo- at Internews, in Washington, DC. free flow of information that is the oxygen mic growth and poverty reduction, human of democratic governance, commerce, and a rights and gender equality, and health. The market economy. Similarly, most observers Media Map Project is a two-year collabora- agree that when media provide accurate, tion between Internews and The World Bank reliable information on health, food security, Institute, funded by the Bill & Melinda Gates financial services, environmental safety, and Foundation. This article aims to present the other development issues, people are better methodology for The Media Map Project. able to cope with and find effective solutions to these problems on personal and societal Basic assumptions levels. First, I would like to lay out some basic Despite this general recognition, there is little assumptions that are often made about empirically-based analysis to guide poli- media development. This quick overview cymakers and donors on how to make the may appear obvious to those steeped in the most effective use of their resources when world of media development, yet to begin assisting media development, and how best the research process clearly, it is important to measure the benefits of media assistance. to try to concretely define the assump- The Media Map Project was conceived to tions we are testing. For this project, we are 60 The Fourth Estate in Democracy Assistance African Insights — International Cooperation – Measuring Impact

defining media development in a simple way: ded, and we are interested in discovering the process of improving the media’s ability things we didn’t set out to find. to communicate with the public, and the process of improving the public’s ability to com- While we have a lot of questions, and are municate, using media. Media development trying to get at the answers from a number assistance consists of outsiders’ attempts to of different perspectives, we don’t have a help in this process. tidy framework to lay out for you. We are interested, in particular, in a political eco- Media development assistance is meant to nomy perspective (questions such as: what promote, first of all, improvements in journa- is the media’s role in strengthening respon- lism in several areas: the safety and security sible business and governance?), and from a of journalists; the quality of journalism and contrasting angle, a capabilities perspective the ethics of those who practice it; media (e.g., do media help people make decisions outlets’ ability to provide unbiased informa- that impact their own lives and the lives of tion; and increasing training and professional their various communities?). We are also development opportunities for journalists interested in questions that fall beyond these and editors. Media development assistance boundaries. We want to find out what the also works to strengthen the enabling envi- data have to say. The Media Map Project is ronment, promoting media independence, working on these various issues in three pha- supportive government policies, public ses, which overlap chronologically. demand for information, a rich variety of sources of information, and diverse and Part one: Quantitative data transparent media ownership. Lastly, media development activities can help to create and In the first part, we are collecting and exa- support a well-functioning information cul- mining existing data on media and on glo- ture, wherein the public is media literate and bal development, such as: the World Bank’s engages with news sources, uses informa- World Governance Indicators and their disag- tion from the media to make decisions that gregated source data, other global develop- impact their lives, and has a variety of means ment indicators such as the UN Human Deve- to make their voices heard. lopment indicators, media indices such as Freedom House’s Freedom of the Press Index There is little point, of course, in improving and the Media Sustainability Index, sector- the health of the media sector as an end level data such as collected by the World unto itself. In turn, a strong media sector is Association of Newspapers, global opinion considered to promote government accoun- polls, audience research, and other relevant tability and transparency, democracy, human data sources. rights, business accountability and transparency, healthy markets and economic growth, This phase will result in a publicly available better development outcomes, and citizen database that pulls together a number of empowerment. these data sources, so that media development stakeholders have a resource for further No tidy framework analysis. It will also result in a report analysing one or more key aspects of the relati- This is a starting point, but not the end. We onships between media and development, are open to finding out that any of these and outlining other critical topics for further assumptions should be modified or discar- analysis. Tara Susman-Peña: The Media Map Project methodology 61

Key research questions: we are undertaking analysis of this data, and 1. What quantitative data exists that writing analytical econometric and statistical measures various different aspects of media, papers on different issues raised by the data from press freedom to access? (e.g., in Sub-Saharan Africa, how does the 2. How could it be used to analyse the rela- media help support responsible business and tionship between media and development? governance?). Much more analysis can be What does the analysis show? done than we have the capacity to realise at 3. What gaps and limitations does the data this point, and we hope that the accessibility have? of the data, and our own first steps, will facilitate further productive research. Methodology Here’s a glimpse of the media data we are While most quantitative analysis related focusing on for the website and for our ana- to the strength of the media sector heavily lysis. relies on Freedom House’s Freedom of the Press Index, other relevant, publicly-available data on media do exist. However, currently many of these datasets are hard to find, in difficult for- mats to work with, and are scattered about. So first, we are searching for and assembling the data, reviewing it, putting it into an accessible format, and describing the data in a general paper. Next, we are facilitating the ana- Table 1 lysis of this data, by designing a web-based 1. The list in table 1 shows datasets that are tool that will provide easy access to down- quantitative in nature, but based on expert load media data sets in Excel. The website assessment analysis rather than countable will also offer a data visualisation tool that items.1This data is publicly available. will allow users to explore different fundamental questions about media and deve- 2. The data in table 2 (p. 62) represent actual lopment (e.g., how does a specific country numbers of countable items, (e.g., numbers compare to other countries and its region, in of people in a region with access to ICTs; terms of freedom of speech?). No special data dollars going from donors to recipients). The skills will be required to use the tool. Lastly, data is publicly available. 62 The Fourth Estate in Democracy Assistance African Insights — International Cooperation – Measuring Impact

Table 2

3. The final list (table 3, p. 63) shows data Media and economic development sets based on numbers of countable items. They are not publicly available, so while we We are currently at work on the first piece of can use them for our analysis, unfortunately, quantitative analysis, focusing on the rela- we will not be able to make them available tionships between media and responsible to the public. This type of data can be mone- business, and media and responsible gover- tised, and is commonly sold at a significant nance, in Sub-Saharan Africa. Here is a quick price to private sector businesses interested example to give a sense of some of the analy- in investing in media or buying advertising. sis we are doing with this data. We see posi- The absence or scarcity of this type of data tive relationships between freedom of the in some markets – Sub-Saharan Africa is press and both the strength of economies and a key example – can stagnate commercial good governance. For this graph, we have market growth. Without this kind of data, it divided the Sub-Saharan African countries is difficult for the private sector to enter the by Freedom House’s assessments of whether market. On the other hand, without clients to they have a free press or not.2 In the countries purchase this data, companies will not invest without a free press (Figure 1), while foreign in collecting it, creating a vicious cycle. aid has been overall on the rise, foreign direct Tara Susman-Peña: The Media Map Project methodology 63

Table 3 investment has fallen and remained low. By critical contributor to the development of a contrast, in those countries deemed to have country. Is it a catalyst? Is it necessary, but a free press, foreign aid has tapered a bit and not sufficient? The lynchpin? We don’t have then remained steady, while foreign direct a precise understanding of this dynamic yet, investment (generally taken to be a measure and thus, have not yet identified the right of international confidence in the stability metaphor. and growth of the economy) is significantly on the rise. This signals the potential for gre- Additionally, another challenge is gaps in ater economic independence, if these coun- the data. Data we would like to analyse tries continue on the current path. Note that does not exist, or has minimal years, many we are not arguing that the status of the press missing countries, and other deficits. We are causes these economic features; rather, that currently focusing on Sub-Saharan Africa, having a free press is an important characte- ristic of countries that are doing better economically by this measure. Free press countries are more likely to have greater foreign direct investment (FDI), which is an important measure that investors use to determine a country’s economic strength.

Challenges

This example also reflects a key challenge for our analysis: the conundrum of correlation and causation. It is unlikely that we will ever be able to say, for example, that a country with a free press that has a vibrant media business sector will guarantee democratisation. However, we will likely be able to argue, after looking at the question from a number of angles, that a strong media sector is a Figure 1 64 The Fourth Estate in Democracy Assistance African Insights — International Cooperation – Measuring Impact

where this problem is very pronounced, but an overview of the findings, to include an other regions are affected by this problem assessment of which tools and approaches as well. Additionally, we have come across appear to be effective for various develop- some very interesting studies (e.g., the BBC’s ment conditions. The report will also outline study on Trust in the Media; Transparency an agenda for action and next steps. International’s Bribe Payer’s Index), which we will use to the extent possible, but which only Countries chosen for case studies:

cover one or two years and very limited coun- Key research questions: tries. So analysis that can be carried out with 1. What does the media landscape of the this data is limited. country look like? What role did media development interventions play in shaping the Part two: Country case studies landscape? a) What is the state of journalism in the coun- The second part, uses country-level case stu- try? dies to analyse the most effective investments b) In what ways is the political economy / in media development and their outcomes enabling environment of each country sup- from interventions over the last 20 years. We porting or detracting from the development chose Mali, DRC/Congo, Peru, Ukraine, and of the media sector? Indonesia as our five case study countries. c) What is the information culture of the We chose these countries in consultation country? with our international advisory board, and tried to assemble a group of countries with 2. What donor-driven media development a diversity of geography, political situation, assistance was done in each country over the development challenges, donors, implemen- past 20 years? What were the major activities, ters, type of approach to media assistance, and who were the players? and emphasis of the interventions. Through a) What had the most impact? What didn’t collaborations with other organisations, we work? Why? will be adding Bosnia, Cambodia and Kenya. 3. How do these interventions fit into the This phase will result in a brief report giving overall development of the country? Tara Susman-Peña: The Media Map Project methodology 65

Methodology • Media landscape overview • Literature review focusing on media deve- The framework draws upon the UNESCO’s lopment Media Development Indicators: a Frame- • Key donor interviews work for Assessing Media Development • Country media expert Delphi Study (2008) to try to get an inclusive perspective • Oral history interviews and/or focus groups of of media’s role in society, help structure the implementing organisations and aid recipients.

sets of questions, and offer some sources for The desk research plan includes quantitative research. The research framework is designed and qualitative research. The graphs above to approach these questions from a variety of map the type of research (top row), and angles. The framework is ambitious, and com- methodology (second row). The third row bines core elements that will be addressed maps the research methodology to the rele- for each case study, and enriching elements vant UNESCO media development indicator, that can be incorporated as time and resour- and any additional questions of interest. ces allow. With this room for expansion, the groundwork is laid for further opportunities The field research plan (p. 66) includes inter- to build upon the research. views and social network analysis of different Core research elements: stakeholders: • Characteristics of country’s development The key challenge is how to get a full picture and historical background of this complex landscape, especially the 66 The Fourth Estate in Democracy Assistance African Insights — International Cooperation – Measuring Impact

story on the ground (i.e., understanding the level) into their decision-making about pro- information culture, how voice operates). The jects, regional strategy, policy, and spending? framework is flexible and the process itera- The research from this phase consists of a tive, so we can adjust and improve it as we review and analysis of available studies that move forward. assess impact at the project and sector level, including available impact evaluations, eva- Part three: Donor decision-making luation guides and evaluation policy briefs. Additionally, we will conduct approximately The third part will investigate the evolution 25 interviews with donors in the home offices of how donors evaluate the impact of media and in country offices. development interventions over the past two decades, focusing on a group of donors Challenges with diverse motivations, strategies, and spending patterns. It will examine how these The challenge for this piece of the research is donors use (or fail to use) impact assess- in donor willingness or ability to cooperate. ments to inform intervention strategy and This section was originally framed as a “fol- budgets. This phase aims to achieve a better low the money” exercise investigating what understanding of how donors make decisi- activities donors were spending money on, ons around their investments in media assi- and how much money they were spending. stance, and what stakeholders consider to be After a literature review, we realised that this the most effective investments. approach had been attempted at least half a dozen times, and researchers kept hitting Key research questions: the same walls. Myers sums up the problem of donor clarity and transparency, “Mapping 1. What are donors’ motivations and deci- the media-support sector will remain a chal- sion-making processes for funding media lenge until assistance to media and infor- development interventions? To what degree mation programmes are defined as such…. are media development interventions ali- [Donors] should start disaggregating media gned with the donor country’s foreign policy? sector support, in their record systems, so that systematic evaluation methods can be 2. How do donors manage the question of established. In this way a better understan- impact? (How) do they incorporate impact ding can be developed of which media inter- assessment (both project-level and macro- ventions work and which do not, and best Tara Susman-Peña: The Media Map Project methodology 67

practice can be identified.”3Because of these lopment organisations, policymakers, and challenges, assessments of the field have other stakeholders with a better understan- resulted in complex, patchwork overviews ding of available data related to media and that include long structured lists of donors, development, analytical tools to evaluate implementers, and recipient countries, and the relationships between media and vari- trace overall geographic, philosophical, and ous development objectives, and empirical historical trends in funding and impact. evidence of why and under what conditions These studies provide rich detail and analysis media development interventions have had for some donor organisations and recipient an impact. countries, but also include quick summaries or even gaping holes in others. Given that Lastly, in addition to filling a gap in current these challenges were precipitated to a great research, The Media Map Project aspires to degree by inconsistent definitions of media bridge a more significant gap. Despite the development, even within organisations, and general recognition of its importance, media not well-defined budget lines, it is quite pos- often plays a tangential role or is forgotten sible that our new approach will be beset by altogether in mainstream discussions and these same challenges. strategy for increasing the impact of general development interventions. Thus, an under- Goals lying goal of this project is to raise awareness – and frankly, the status – of media develop- What do we hope to achieve? Overall, this ment assistance amongst general develop- research aims to provide donors, media deve- ment stakeholders.

Coda, November 2011: Key findings

Currently, we are wrapping up the Media strong connection between a free press and Map Project. The website, www.MediaMa- both economic development and democracy. pResource.org, provides free access to appro- Most of this research has used macro (coun- ximately 30 datasets focusing on the media try-level) data and has looked for correlations sector and ICTs, in addition to four simple rather than causation. In almost all instances, visualisations to aid exploration of the data. Freedom House’s Freedom of the Press Index Fifteen research reports are being published has been used as a proxy for the health of the on the site; the final summary report will be media sector. While there are certainly gaps available in January 2012. in the existing research, taken together as a body of work, it provides clear and compel- Media in governance and ling evidence that freedom of the press is an economic development important ingredient in good governance and economic growth. If not sufficient to There has been extensive econometric and drive either on its own, the evidence shows statistical research done that has found a that a free press is certainly necessary for a 68 The Fourth Estate in Democracy Assistance African Insights — International Cooperation – Measuring Impact

functioning democracy and can strengthen commitment to data collection, impact economic growth. measurement, ongoing organisational learning, and other knowledge-centered prac- Lack of strategic thinking tices would be potentially quite helpful in better detailing the specifics of exactly how However, so far the evidence provided by this dynamic of media’s impact on deve- this research has failed to influence decision- lopment actually works in various country makers in any profound way at the policy contexts. To confirm the existence of such a level for international aid. While most donor relationship is one thing; to understand both governments provide some kind of support what makes it function well, and how best to to local media, this support is fraught with support its development, is quite another. many problems, many of which stem from a lack of strategic thinking about media Overall, the major theme that crosses the support. The key challenge could be sum- three components of the research is that med up as a problem of not connecting the donors’ approaches to media development dots. In part, donors do not incorporate what assistance has lacked explicit and deliberate has been learned in academic studies into diagnostics, learning from and coordination practice of development. In part, donors with other donor initiatives, ongoing data are not taking enough opportunities to collection, capturing learning and sharing it learn from their own experience. A greater throughout a donor organisation on a regular Tara Susman-Peña: The Media Map Project methodology 69

basis, and impact analysis that is then incor- 1 The Wealth of Nations Triangle Index is an aggre- porated into strategy and budgeting. gate index that evenly weighs a combination of different types of data, both expert assessment Media cut across and actual numbers.

Despite these shortcomings, and even as a 2 Free press: Benin, Botswana, Burkina Faso, Cape tiny fraction of all aid given to developing Verde, Comoros, Ghana, Madagascar, Malawi, countries, it is clear that support to media Mali, Mauritius, Mozambique, Namibia, Sao Tome can and has made a positive difference in and Principe, Senegal, South Africa, Uganda. Not many instances. Research clearly shows the free press: Burundi, Cameroon, Chad, Central Afri- can Rep., Dem. Rep. of Congo, Cote d’Ivoire, Ethio- strong relationship between the media sec- pia, Eritrea, Gambia, Guinea, Kenya, Liberia, Mau- tor and both development and governance. ritania, Nigeria, Rwanda, Sierra Leone, Somalia, The media cut across, and thus have the Sudan, Swaziland, Togo, Zimbabwe. potential to impact, all other sectors in society. In this age of heightened emphasis on 3 Mary Myers, “Donor Support for Media aid effectiveness, it is imperative that donors Development: The Demand for Accountability” increase their focus on, and bring rigorous Paper for the Uppsala University Conference: analysis and strategic thinking to, supporting “Whose Voices? Media and Pluralism in the Con- free, independent, and high quality media as text of Democratisation” September 20-21, 2007 an integral component of their development at the Collegium for Development Studies Upp- work. sala University, p. 43 FoME Mission Statement

The German “Forum Media and Development” (Forum Medien und Entwicklung) is a network of institutions and individuals active in the field of media development cooperation. It serves as the German platform for the exchange of experiences, research and further elaboration of concepts. It facilitates the dialogue between media practitioners, development politics and the scientific community. The members of the German “Forum Media and Development” advocate the human right to freedom of speech. They are convinced that free and independent media are essential for the development of liberal democracies. Free and independent media ensure that all groups of society can participate in public opinion forming. At the same time they demand transparency and accountability from political, social and economic players. This is also of particular importance with regard to poverty reduction and the promotion of sustainable development. Therefore, the German “Forum Media and Development” endeavours to strengthen the importance of media aid in the context of development cooperation.

The activities of the Forum include:

● exchange of information and experiences among the members ● exchange with media representatives from Africa, Asia, Latin America and Eastern Europe ● cooperation in carrying out joint projects, research and evaluations ● coordination and representation of the interests of the non-governmental organisations that are concerned with media development cooperation – at national, European and international level ● further elaboration of the political and strategic framework of the German media development cooperation ● advice to the German government and its implementing organisations.

The founding members of the Forum Media and Development: Dr. Christoph Dietz, Catholic Media Council (CAMECO) Evelyn Ehrlinspiel, Friedrich Ebert Foundation (FES) Dr. Hartmut Ihne, Center for Development Research (ZEF) Andrea Sofie Jannusch, CAMECO Jörgen Klußmann, Evangelical Academy of Rhineland Michael Lingenthal, Konrad Adenauer Foundation (KAS) Dr. Helmut Osang, Deutsche Welle Academy Frank Priess, KAS

Berlin/Bonn/Aachen, 2006 FoME Conference Reports

Measuring Change Media on the Move Planning, Monitoring and Evaluation Migrants and Minorities and the Media in Media and Development Cooperation

FoME Wissenschaft / FoME Research

German Community-Radios in Benin Media Rahmenbedingungen – Problemfelder – Potentiale Development Cooperation Von Tilo Grätz A Survey

November 2010

FoME Research No 3 FoME Wissenschaft No. 2