Supporting Public Service Broadcasting: Learning from Bosnia and Herzegovina’s Experience

According to the Introduction of this United Nations Development Programme (UNDP) Oslo Governance Centre (OGC) Democratic Governance Group (DGG) paper: "The aim of this paper is to contribute to UNDP practitioners’ understanding of broadcast media sector reform, especially reform concerning Public Service Broadcasting (PSB). The paper highlights some of the key challenges in broadcasting restructuring in trying to meet broader democratic governance and poverty reduction objectives, and is informed by a case study on broadcasting restructuring in Bosnia and Herzegovina (BiH). UNDP has supported two projects in that country which aim to strengthen the broadcasting system in a way that respects diversity and the right of access to information."

As indicated here, media, particularly public broadcast media, can play a role in ensuring the public’s right to receive a wide diversity of independent and non-partisan information and ideas. It can also help to promote a sense of national identity, foster democratic and other important social values, provide quality educational and informational programming, and serve the needs of minority and other specialised interest groups. However, media can also be a powerful tool to feed tensions and discrimination and promote violence. This case study of the use of media in BiH before and after the conflict focuses on importance of an effective PSB system in conflict-prone and post-conflict contexts.

The document cites weaknesses in relying on commercial broadcasting, as opposed to developing a PSB system, including: a loss of minority voices; a decline in programming for specific groups in society; an increasing trend in programme replication (content diversity is not always economically sound); and declining programme quality in favour of entertainment rather than information and education. However, as stated here, “PSB cannot yield results faster than the wider evolution and consolidation of democratic governance in a country. Media reform is only effective when it is part and parcel of broader democratic governance reform and is linked to other governance issues.” In situations such as that in post-conflict BiH, where it was debated whether there would be sufficient audience and economic development for both PBS and commercial broadcasting to grow, "...[i]t could be argued that in post-conflict contexts, with a stagnant economy, a case can be made for prioritizing the establishment of PSB, with its more publicly minded objectives and ‘supervised’ professional standards particularly in ensuring the provision of accurate news and information. Such public broadcasters can end up setting the standards for the emerging commercial broadcasters."

Though local media professionals were concerned that there seemed to be no comprehensive, coordinated, long term strategic plan which the international donor community (as many as 20 organisations after the conflict) supported, a number of media reforms occurred, including: an improved legislative framework; an independent regulatory system; and co-existence of commercial and public service broadcasting. The two primary lessons learned, according to the document, include the following:

• Have a strategic plan:

• Include a needs assessment and a stakeholder analysis developed by credible broadcasting experts.
• Take a comprehensive approach, including institutions, regulations, and human capacities.
• Adopt a long-term approach - key foundations (e.g. legislation, professional cadre of journalists, independent regulatory systems) need to be in place and part of the new culture of openness.

• Focus on the enabling legislative and regulatory framework that will allow for PSB, including: licensing; robust media laws on freedom from government interference; and independent regulators that have a carefully defined remit and mandate giving them real independence and powers to effect change regulations which enshrine public interest and freedom of information and meet internationally agreed standards.

Other lessons include the following:

1. "Ensure better coordination of media sector support, especially where there are many international and national players….
2. Ensure maximum input from local expertise through extensive consultations….
3. Ensure a focus on developing the capacities of local people….
4. Build in financial self sustainability considerations at the outset ….”

UNDP, as stated here, may be able to take advantage of a unique relationship with government to use its coordinating and facilitation role, including drawing on its expertise and experience in democratic governance and human development. This may help facilitate the following roles:

• It could play a part in supporting training and sensitising programmes for political parties and authorities at local and national levels, particularly where governments are reluctant to cede control of media.
• It could facilitate multi-sectoral policy dialogues which connect those knowledgeable about PSB - professional broadcasters from other countries and civil society organisations (CSOs) - with officials to increase understanding of PSB and facilitate dialogue within groups and the international community, particularly donors and local actors, especially around the undertaking of the needs assessment, the development of strategies, and the implementation of specific support.
• It could offer expertise and experience in democratic governance, in conflict prevention, and in economic poverty reduction. As applied to broadcast media this might help structure broadcasters’ own governance systems for effective and democratic governance, management, and processes. It might ensure a focus on vulnerable and marginalised groups and develop a set of common themes and issues relevant to the conditions of media and peace building within the country. And, finally, it could support a strong focus on media support, especially the mass media (radio, TV, and print) in national conflict prevention/peacebuilding strategies of organisations working in the country.