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Resolution 2179 (2017)
Political influence over independent media and journalists
1. The Parliamentary Assembly considers
the right to freedom of expression and information and the freedom
and diversity of the media as fundamental elements of a true democracy;
no system can claim to be democratic if it does not effectively
ensure pluralism and independence of the media.
2. There is no independence when journalists and their families
are exposed to physical threats or are subject to arbitrary detention,
or when the media outlets which employ them run the risk of simply
being put out of business. The Assembly is also deeply concerned
about the many forms of psychological violence, intimidation and
harassment, including through the internet and social media, and
about the range of tactics used to erode media freedom, force journalists
into self-censorship or take control of media outlets and subjugate
them to vested interests.
3. National authorities must not only guarantee journalists’
security and media freedom by preventing and unconditionally condemning
blatant violations, but they must also recognise and oppose the
threat that more insidious methods pose to the independence and
genuine pluralism of the media, to the interest of the public in
receiving unbiased, critical information and hence to our democratic
systems.
4. The digital environment is prompting profound changes in the
media business model, which endanger the financial viability of
many media operators. This intensifies the risk of financial screws
being tightened on the media to tame them. Public funding has greater
importance than in the past, in particular – but not only – for
public service media (PSM). However, media which are financially
dependent on public funding become more vulnerable to political
influence. Such influence can also derive from exploitation of the
procedures for appointing senior PSM managers.
5. The Assembly denounces all practices which are aimed at fuelling
public distrust of the media. Regrettably, some political forces
are using this strategy to silence criticism and dissenting views
voiced by independent media. However, mistrust could also derive
from misusing the media – and in particular new media – as a weapon
against political antagonists and from the increasing risk of manipulation
of public opinion though the media.
6. As political (but also social and economic) actors have moved
from traditional media to the internet and social media for their
communication with the public, journalism’s role in the way the
public acquires, values and exchanges information is diminishing,
and with it the possibility of independent media to initiate and
uphold quality public debate. This makes them less attractive, less
competitive and eventually less viable and thus more vulnerable
to political influence.
7. The Assembly therefore calls for greater commitment to safeguard
journalists’ security and freedom and to uphold media pluralism
and independence. It recommends that the Council of Europe member
States:
7.1. implement effectively
Recommendation CM/Rec(2016)4 on the protection of journalism and safety
of journalists and other media actors, by focusing on four areas:
prevention; protection; the prosecution of all threats against journalists
and media freedom; and the promotion of information, education and
awareness raising;
7.2. ask for independent reviews of their laws and practices
which have, or could have, a chilling effect on media freedom, such
as those on national security, terrorism and defamation, and entrust
human rights commissions or ombudspersons with monitoring the implementation
of these laws and practices to avoid their being misused to stifle
media freedom;
7.3. improve the legal provisions concerning transparency of
formal and beneficial ownership, as well as of funding mechanisms
and organisational and managerial structures of the media, including
online media and considering their specific nature, to allow for
identification of possible sources of control and influence and
to strengthen accountability. In this respect, the Assembly recalls
in particular its Resolution
2065 (2015) on increasing transparency of media ownership;
7.4. review PSM governance mechanisms, keeping in mind the
basic standards set by the “Guiding principles for public service
media governance” in the appendix to Recommendation CM/Rec(2012)1
on public service media governance, and aiming at the genuine independence
of PSM, including in editorial terms, while preserving the oversight
role of national authorities and, in particular, parliaments;
7.5. ensure transparency of the operation of regulatory bodies;
the provisions for their appointment, mandate and powers must secure
their independence from any influence, especially from governments;
7.6. ensure that appointment procedures for PSM managers and
staff, for which an intervention by the public authorities is required:
7.6.1. respect the role of the opposition and, when parliaments
are involved, provide for appointment decisions to be taken by a
qualified majority;
7.6.2. are not used to exert influence over PSM programmes or
editorial policy;
7.6.3. fulfil clear, merit-based criteria, strictly related to
the role and remit of PSM and are neutral with regard to political
views;
7.6.4. are made for a specified term, which can only be shortened
in a limited number of legally defined circumstances;
7.6.5. are respectful of gender balance;
7.7. review their (national, regional and local) funding systems
for PSM and private media outlets in order to:
7.7.1. avoid
mechanisms being used (directly or indirectly) to exercise editorial
influence or to threaten the beneficiaries’ institutional autonomy;
7.7.2. ensure that financing schemes are based on fair and objective
criteria and are operated in a non-discriminatory manner;
7.7.3. guarantee full transparency of the funding systems’ operation,
and in particular of the level of public funding, grants and sponsorship,
and provide the public with easy access to this information;
7.8. design PSM funding systems so that they:
7.8.1. guarantee
a level of funding coherent with the agreed role and remit of PSM,
thus enabling them to properly fulfil their mission in a fast-changing
media environment;
7.8.2. provide for an independent body to determine – and regularly
review – the level of funding, following consultation with the PSM
concerned, with tight limits on the room for manoeuvre of policy
makers (parliaments and governments) to amend any proposals from
this independent body;
7.8.3. ensure predictable and sufficiently stable revenues, but
also the buoyancy of the funding schemes; in this respect, national
authorities should consider the possibility of combining different sources
of funding (including advertising), while giving preference to licence
fees (paid by all households irrespective of the device) and/or
earmarked taxes, the level of which should be indexed to guarantee
financial stability in real terms;
7.8.4. provide for a mechanism to recover excess income from
beneficiaries and reinvest it in the system;
7.9. design public support schemes for private media and non-profit
media so that these schemes:
7.9.1. reinforce pluralism,
also paying attention to non-commercial media outlets, such as free radio
stations, as well as to media which are the expression of local
perspectives of societal challenges, or of cultural diversity;
7.9.2. favour investments which are necessary for the media to
keep pace with technical developments.
8. The Assembly urges all political forces and political leaders
to firmly condemn psychological violence, harassment and cyberbullying
against journalists and to join efforts to counter the growing distrust
of journalism and journalists. Political actors certainly have the
right to respond to critical views and dissent expressed by the
media, but such reactions must respect freedom of expression, and
any behaviour inciting their followers to target journalists and
media outlets is to be proscribed.
9. The Assembly calls on media associations to be more active
in identifying and denouncing abuses by unprofessional individuals
who misuse the title of “journalist” or unscrupulous media outlets
which seek to manipulate public opinion by disseminating false information.
Political lynchings staged by deceitful media operators must be
opposed.