A Term Paper On Ensuring Good Governance: A Critical Study on the Role of Media in Bangladesh Course Name: Development and Governance Course No: 306 Submitted to Niloy Ranjan Biswas Lecturer Dept. of International Relations, University of Dhaka Submitted by Tohura Moriom Misti (SN 19) 3rd year, 6th semester, Dept. of International Relations, University of Dhaka. DATE OF SUBMISSION: 15 NOVEMBER, 2012. Contents of the paper: 1. INTRODUCTION 2. CONCEPTUAL ASPECTS 3. RELEVANCE OF THE STUDY 4. METHODOLOGY 5. IDEAL FUNCTIONS OF MASS MEDIA 6. ROLE OF MEDIA IN GOOD GOVERNANCE IN BANGLADESH 7. CHALLENGES FOR MEDIA IN ENSURING GOOD GOVERNANCE 8. EXPECTED MEASURES 9. CONCLUSION 1. INTRODUCTION While people of Bangladesh are enjoying every national events sitting on their sofa and can comment on it and can take action over any injustice then the whole praise must go the media. This scenario also indicates the existence of good governance. The terms “governance” and “good governance” are not new concepts. In fact the idea of good governance has been practicing since the Aristotle period. But they have recently come to occupy an important place in development literature, and in the concerns and considerations of major international donors. Now the concept of good governance has become a donor driven idea. Indeed, more and more importance is attached to the notion of good governance. Good governance has some characteristics and these characteristics are adopting new factors with the changing world. At present context mass media can play an important role in ensuring good governance, especially, in developing countries where alternative sources of information are scarce. In this assignment I will first explain the ideal functions of mass media in ensuring good governance, then I’ll try to analyze the actual role that mass media is playing to ensure good governance in Bangladesh. I will also try to find out the challenges for mass media in Bangladesh in this regard. Finally, I will try to find measures that may make mass media more effective in Bangladesh. 2. CONCEPTUAL ASPECTS The concept of "governance" simply means the process through which decisions are implemented (or not implemented).1 According to World Bank booklet reports in 1992, governance is the "manner in which power is exercised in the management of a country’s economic and social resources for development".2 Since 1978, the super state, World Bank has proposed a political term called good governance. In general sense good governance means an “ideal governing system” of a country. According to International Monetary Fund (IMF) Good governance is- “ensuring the rule of law, improving the efficiency accountability of the public sector, and tackling corruption.”3 Good governance is a form of governance that represents eight 1 http://www.unescap.org/huset/gg/governance.htm Khan, M.M., "Urban local Governance in Bangladesh: An overview", Journal of Administration and Diplomacy, Vol.4, No.1 Jan-Jun, p.2, 1996. 3 Merilee S. Grindle, ‘Good Enough Governance Revisited’ A Report for DFID with reference to the Governance Target Strategy Paper-2001, Harvard University, February 2005. 2 specific characteristics, and can be seen as an ideal of governance. According to V. K. Chopra, Good governance embodies processes that are “participatory, consensus oriented, accountable, transparent, responsive, effective and efficient, equitable and inclusive, and [which follow] the rule of law”.4 CHARACTERISTICS OF GOOD GOVERNANCE participatory equitable and inclusivenes s responsiven ess consencus oriented Good Governance follows rule of law effectiveness and efficiency transparent accountabl e 4 Chopra, V.K., "The mirage of good governance", Towards good governance, eds; chopra, S.K., Konark publishers Pvt. ltd. Delhi-110092, p.32, 1997. Mass media is especially crucial for ensuring good governance at present context. Generally, "media" refers to various means of communication.5 Nowadays, mass media has become increasingly popular. It consists of radio, television, magazines, newspapers, and of course, the Internet.6 In this term paper I will focus on the role of print media (newspapers) and electronic media (TV and Radio channels) of Bangladesh. 3. RELEVANCE OF THE STUDY Many often say, ‘there is nothing worth called “good governance’ as the governance should be meant to be good’ is. But the reality is that the governance in countries like Bangladesh has not been almost never up to the mark to the extent that we can call it ‘good’(up-to the mark and good made redundancy and hasn’t been and never; 2 negative words is wrong for one negative meaning. For example this line can be easier like ‘has never reached such a position where we can name it good governance’). Besides that, there should always be room for development or progress. In Bangladesh mass media has flourished more rapidly than many other countries of the world. Private media sector have flourished since 1990’s. At present there are 15 privately owned TV channels and 5 privately owned FM radio channels with 3 state owned TV channels (BTV, BTV World and Shangshad TV) and 1 state owned radio channel (Bangladesh Betar). Declaration had been given to 496 dailies, of which 298 are being published. Of the news agencies, state-run Bangladesh Sangbad Sangstha (BSS) and privately owned United News of Bangladesh (UNB) are in the mainstream. In one sense, this is a very good sign as mass media is often called the Oxygen for democracy. But, there is a flaming question that is media functioning for the sake of giving people voice (as the reflection of public voice), right to participate (to ensure right to participate) and for the sake of good governance or they have emerged as a tool of selling news and goods of the West and serve the interest of the Donor countries in the name of good governance? This is the high time 5 http://www.iwebtool.com/computer_glossary. 6 Civil Society - Global Issues - TakingITGlobal issues.tigweb.org/civilsociety. to think about it. Therefore, I think that, this study is very much relevant for the present context (the study is considerably relevant with the present context). 4. METHODOLOGY For this term paper I have followed two methods: Literature reviews and Qualitative interviews. I have reviewed journals, books, reports of UNESCO and CPJ (Committee to Protect Journalists), browsed websites and interviewed Dr. A J M Shafiul Islam7 and Mahmudul Haque Moni8. (Better if you could explain the methodology more elaborately) 5. IDEAL FUNCTIONS OF MASS MEDIA Mass media has some ideal functions that can ensure good governance in a state, although the functions are not visible in every country but more or less these are similar in the democratic countries. (Practiced and maintained). 7 Dr. A J M Shafiul Islam is an associate professor of Dept. of Mass Communication and Journalism at University of Dhaka. 8 Mahmudul Haque Moni was a lecturer of Journalism at University of Liberal Arts Bangladesh (ULAB) and he is also an Assistant Commissioner and Executive Magistrate of Government of the People’s Republic of Bangladesh. Media is the Fourth Estate Mass Media is to Inform and to Educate Watch-dog Role of Mass Media 5.1 MEDIA IS THE FOURTH ESTATE Media is called the fourth estate. Liberal theories stress the importance of an independent fourth estate as a check on the abuse of power. Media systems strengthen good governance and promote positive development outcomes most effectively under two conditions: (i) Where channels of mass communications are free and independent of established interests (‘with’ can be more appropriate but ‘of’ sounds wrong) and in addition (ii) Where there is widespread diffusion and public access to these media. (Where there is widespread of diffusion and flexibility of public access in media) The ‘fourth estate’ has traditionally been regarded as one of the classic checks and balances in the division of powers. 5.2 WATCH-DOG ROLE OF MASS MEDIA Mass media plays the watch-dog role of (for) the governing system of a country. Mass media keep an eye on the government and on those involved in governance, highlighting (highlight) policy failures, maladministration, corruption, and scandals.9 5.3 MASS MEDIA IS TO INFORM AND TO EDUCATE Experts say that mass media should inform the mass people about different decisions and governmental functions, and thereby educate them (enhance their knowledge). At the same time mass media play a very significant role to entertain the people. But, the most important thing is that there must be balance among these three functions (the three functions must be kept in balance). A free, accountable and vibrant mass media disseminates information, informs the public and policy maker alike, creates space for diverse views regarding socio-economic and political processes, and increases people’s scope for democratic participation.10 6. THE ROLE OF MASS MEDIA IN GOOD GOVERNANCE When we talk about good governance we in fact refer to the working relation among the three organs of the state and actions of the executive branch of the state. In operational terms this refer to enjoyment (The satisfaction) of fundamental human rights, independent (Independence) of judiciary, transparency, accountability, predictability, effectiveness and efficiency of the government. Media plays a very significant role in promoting these terms for good governance (By supporting in strengthening). The central characteristics which are plays (played) by media for good governance are ensuring transparency, accountability, efficiency and effectiveness, equity and inclusiveness, public participation in governance, consensus orientation, and rule (ruling) of law. 9 Chapter 1 in Pippa Norris. 2001. Digital Divide: Civic Engagement, Information Poverty and the Internet Worldwide. NY: Cambridge University Press. 10 Mohammed Iliyas, The Power of Media to Ensure Good Governance, September 24, 2010, Thinking Youth Blog. 6.1 TRANSPARENCY Transparency is widely recognized as a core principle of good governance. Transparency means sharing information and acting in an open manner. Free access to information is a key element in promoting transparency (of strong). Information, however, must be timely, relevant, accurate and complete for it to be used effectively.11 The mass media, by keeping policy and decision makers under constant inspection, highlighting policy failures and reporting scams of public money can significantly function in ensuring transparency of government and corporate sectors and the judiciary.12 Media ensures transparency through providing information. Media publishes government reports, decisions, and policies on various issues and gives the people chance to raise questions on those issues and thus put pressure on the government to be transparent (more accountable and effective in decision making, not that much important, but I feel ‘through transparency, transparency can be promoted’ sounds a bit wrong) 6.2 ACCOUNTABILITY Accountability refers to "The obligation or willingness to accept responsibility or to account for one's actions." Accountability means that public institutions and functionaries are answerable to (obliged to answer the queries of) people and their institutional stakeholders. Free mass media create an informed polity that is more prepared to hold their elected representatives accountable. Information is vital for the public to be aware of the government’s actions and make political decisions accordingly (Information is helping the public in taking their political decision? Or Govt’s? This sentence sounds like its govt’s. Otherwise could be like ‘take concerned decision accordingly). Without this information, people cannot demand change or accountability from their government and social institutions. Thus, the mass media acts as a catalyst for creating positive governance outcomes as people, and in turn governments, are motivated to enact changes in the institutional structure that enhance democracy. In addition, an effective mass 11 V. K. Parigi, Dr. P. Geeta, Rameesh Kailasam, Ushering in Transparency for Good Governance, Centre for Good Governance, Hyderabad, India. 12 Democratic Governance and the Role of Media in promoting Equitable Development: Bangladesh Perspective, by Governance Advocacy Forum. media also provides policy makers and governments with information which are vital to addressing a nation’s policy and development needs.13 6.3 EFFICIENCY Mass media enable the people to be informed about the government functionaries to operate efficiently and effectively. It aims to put an end to inconsistent government practices and helps in establishing a responsive state. Good governance requires that processes and institutions produce results that meet the needs of society. 6.4 EQUITY AND INCLUSIVENESS Media plays a very remarkable role for a society in promoting (by ensuring) the equal rights for everyone. The well-being of a society depends on ensuring that all its members feel (in such a way) that they have a stake in it and do not feel excluded from the mainstream of society. Mass media can provide voice to those marginalized because of poverty, gender, or ethnic or religious affiliation. By giving these groups a place in the media, their views – and their afflictions – become part of mainstream public debate and hopefully contribute to the injustices against them ought to be redressed. 6.5 PUBLIC PARTICIPATION IN GOVERNANCE Public participation is a key cornerstone of good governance. Participation needs to be informed and organized. This means freedom of association and expression on the one hand and an organized civil society on the other hand. The mass media in Bangladesh, especially the print media, plays a role in informing the public of governance-related concerns such as the government and opposition’s political performance and internal governance, electoral process issues and public corruption. The electronic media provides a discursive space for debate and expression of views to the polity for political actors that are not available within mainstream political institutions.14 13 Irum Shehreen Ali, Governance and the Media, The State of Governance in Bangladesh 2006, Centre for Governance Studies, BRAC University, Dhaka, Bangladesh. 14 Ibid. 6.6 CONSENSUS ORIENTED There are several actors and as many viewpoints in a given society. Good governance requires mediation of the different interests in (of) society to reach a broad consensus in society on what is in the best interest of the whole community and how this can be achieved. It also requires a broad and long-term perspective on what is needed for sustainable human development and how to achieve the goals of such development. This can only result from an understanding of the historical, cultural and social contexts of a given society or community which is promoted by the media. The media can also help (in) build(ing) peace and social consensus, without which democracy is threatened (meaningless). 6.7 RULE OF LAW Good governance requires fair legal frameworks that are enforced impartially. It also requires full protection of human rights, particularly those of minorities. Impartial enforcement of laws requires an independent judiciary and an impartial and incorruptible police force. 15 Where the rule of law is weak and the judiciary is unable and unwilling to defend press rights, corruption level is higher in those countries. This is a big challenge to ensure (against) good governance in a country. 6.8 OTHER ROLES: Other roles of media in promoting good governance are something like the followings: - Open democracy and open pluralistic societies. - Strengthening a transparent, accountable, effective and efficient national and local government. - Promotion of respect and for human rights. - Promotion of anti-corruption initiatives.16 - Drawing attention to institutional failings – corruption, fraud, waste, inefficiency, cronyism, nepotism, abuse of power. 15 http://www.unescap.org/pdd/prs/ProjectActivities/Ongoing/gg/governance.asp Hussain Saddat, “Good Governance- A case for training intervention”, proshikkyan, Journal of Bangladesh society for training and development (BSTD), vol. 2, No.1, p.2, Jan-Jun, 1995. 16 - Making people more aware of political issues and options and helping to stimulate debate. - Enabling people to have access to government programs, schemes and benefits. - Making people more aware of their rights and entitlements. - Popular participation in decision making and implementation. - Efficient delivery system of services and goods. - Promote an equalitarian social and economic order. - Highlight citizen grievances.17 Mass media can make full use of their potential to contribute to the consolidation of good governance if their rights are protected. Moreover they need to have the requisite skills for the kind of textured and in-depth reporting that new democracies require. Because mass media are powerful, there should also be mechanisms to ensure (that) they are held accountable to the public and that ethical and professional standards are upheld. 7. CHALLENGES FOR MASS MEDIA IN ENSURING GOOD GOVERNANCE In Bangladesh, mass media face a number of challenges which often move them away from their ideal role that is required to ensure good governance. We have tried to identify some of the major problems: 7.1 LEGAL BARRIERS The article 39(1) of the constitution has guaranteed “freedom of speech and consciousness” and at the same time the guarantee has been subjected to any reasonable restrictions imposed by law in the interest of the security of the state, friendly relations with foreign states, public order, decency or morality, or in relation to contempt of court, defamation or incitement to an offence. It should be mentioned here that the British Penal Code of 1860 and Criminal Procedure of 1898 are still in force without any basic amendment or modification. Though the Right to 17 “The Right to Information Act, 2005 - A Guide for Media” published by Centre for Good Governance (CGG), Hyderabad - 500033, Andhra Pradesh Information(RTI) Act 2009 came into effect with the gazette notification published by the government on 6 April 2009. But, this information overrides inconsistent provisions in other laws, such as the Official Secrets Act of 1923, Evidence Act of 1872, the Rules of Business of 1996, and the Government Servants(Conduct) Rules of 1979. An example about the contempt of court can be given here, on September 16, 2000 daily Manab Zamin published a front-page story on certain reported documents under the title “Ek Rajokio Kelenkarir Khoshra(Notes of a Royal Scandal)”. It was widely believed that the conversation took place between a judge and Ershad(former President). It was recorded in a tape. The tape was sent to then President Justice Shahabuddin Ahmed. After about two months, Attorny General Mahmudul Islam brought it to the notice of Chief Justice. The Chief Justice reffered the matter to a High Court Bench and the Court issued a contempt of court rule against Manab Zamin. The attorney General also moved against Sangbad, Ittefaq, Janakantha and Jugantar for publishing comments of a former judge of the High Court, whose comments were based on alleged judicial corruption. Although the court issued rule against the dailies, it didn’t issue any notice against him. 18 7.2 GOVERNMENT CONTROL The ownership of mass media and content of publication are not subject to direct government restrictions. But, experts say that government control over the mass media still remains through heavy taxation and distribution of government advertisements and subsidy. Mahmudul Hauque finds these both as detrimental for the neutrality of mass media. Because, in both cases mass media try to remain in favor of the government and in such circumstances mass media fail to develop their standard. During the last BNP government, the daily Inquilab topped the list of government advertisements. Among the English dailies, the Independent received the highest amount of government advertisements.19 18 Billah, Masum, “Government and Media Governance in Bangladesh”, 2010. 19 Ibid. 7.3 CONCENTRATED OWNERSHIP In Bangladesh it has been evident that the license of TV channels and newspapers are given selectively during different political regimes. Dr. Shafiul Islam said that the owners of mass media are very powerful and it becomes quiet impossible for the journalists to act neutrally. We have seen that during the last BNP regime Ekushey TV went off the air in August 2002 after losing an appeal against a High Court decision that its license to broadcast was illegal. 20 But the fact was that the channel got license during the Awami League regime and was believed to have connections with that party. Thus, mass media has become a tool to express the views of their owners not to empower the mass people. 7.4 CORRUPTION Corruption has been, since the last decade a severe problem in Bangladesh. Mass media sector is not out of it. The capitalist owners and stake holders of this sector are political leaders, business magnates including export-import companies. Moreover, one person holds the ownership of more than one TV channel or newspaper. So, this concentrated ownership makes the media sector involved in corruption as the owners have been and are alleged of corruption. (You can add another type of corruption. That is, sometimes corrupted journalists publish false news and blackmail the particular person and as they have full control over their published news, they can change it anyway and make a false representation for any of their concerned interest and no matter govt. sue case next, but the false news is disseminated to the public already) 7.5 MARKET ORIENTED JOURNALISM Mass media has, nowadays become market oriented, that preserve the capitalist-profit-business interest of their respective business group.21 Mass media in Bangladesh are now business companies that need profit, says Dr. Shafiul Islam. It has been seen on 3 September, 2009 that, the NTV news of 10.30 pm had 20 minutes of advertisements within its 47 minutes of news. The channels have sold different parts of their news to different sponsors. Some examples are: Citycell news headline, Eastern Bank advertisement break, Green Delta Insurance Trade news, 20 The State of Governance in Bangladesh: 2006, Civil Society and the Media: Who will Watch the Watchdogs?, Centre for Governance Studies, BRAC University. 21 হক, ফাহমিদু্ ল, অসম্মমি উৎপাদনঃ গণিাধ্যি-মিষয়ক প্রমিভািনা, সংহমি প্রকাশন, ফফব্রুয়ারী ২০১১,পঃ ১৪। National Bank Economics news, Anondo Alo Cultural news etc. In the prominent dailies Prothom Alo and Daily Star, news come with wrappings of advertisements.22 This marked oriented journalism would never be able to give the people voice and participatory right, if they haven’t changed their motive from profit making. 7.6 VIOLENCE AGAINST JOURNALISTS Violence against journalists is a common phenomenon in Bangladesh. The Committee to Protect Journalists (CPJ), in its report of 2004 had identified Bangladesh as one of the most unsafe country for journalists. CPJ shows that since 1992, 12 journalists are killed, 11 are murdered and 8 are murdered with impunity.23 Due to fear of life Journalist cannot work efficiently (not efficiently, it should be effectively) and have to compromise with their professional ethic. 7.7 DIGITAL DIVIDE The Digital Divide is widening every day in developing countries like Bangladesh. Unequal access to technology, economic barriers, literacy barriers, language barriers (in the case of the aborigines’), lack of social environment etc. are main reasons behind this divide. Moreover the gap between rich and poor is rising (increasing) day by day. So, information become segregated and people all over the country lack pertinent information. In fact, many are totally unconscious about what they really want from mass media. 7.8 LACK OF STANDARDS In Bangladesh, the journalists simply assert an event or matter instead of being bothered about the scene behind that. Mass media do not talk about the poor and deprived people, say the experts. Moreover, yellow journalism has always been a trouble. Dr. Shafiul Islam says, mass media in Bangladesh work just as steno typing and do not speak about social inequality in any effective way. He leaves a question that do the mass media in Bangladesh think about a just society? They are just entertaining the people but a few programs are to enlighten them, he concludes. He adds, as the number of channels is increasing, people are getting more and more entertainment. Moreover, we have seen that many newspapers engage in publishing sensational 22 23 Ibid. http://www.cpj.org/asia/bangladesh/ news just to increase circulation. Mahmudul Haque says, there are no written rules or principles in most of the media houses so the journalists don’t even know what he or she should or shouldn’t do. But again some journalists are very much aware about their news. May be it is because they actually want to provide good information or they just want to uphold their carrier. 7.9 LACK OF MASS MEDIA EDUCATION Illiteracy has been always a big challenge for Bangladesh. People here, lack mass media education, that’s why sometimes, mass media loss credibility and acceptance. People switch the urgent programs to entertaining program, as the control of changing program is in their hand. Moreover, many of the mass people don’t realize the gravity of the power that mass media give them through providing information, with which they can participate in the process of governance of the country. Mahmudul Haque says, mass media often state that people don’t want to watch the program that media want to show, on the other hand, mass people state that the media don’t provide them program that they want to watch. Therefore, lack of mass media education also contributes as a challenge for (strong) mass media in Bangladesh. 8. EXPECTED MEASURES Though there are lots of challenges, mass media have definitely widened the space for public debate on various issues. Some measures can be taken to make mass media more effective for ensuring good governance. FIRSTLY, mass media should overcome the barrier of getting information. They should publish or broadcast the issues on which they are incapable of getting information due to legal barriers, but, they consider those issues as important for the people to know. Thus, they can create public pressure on the government so that government cannot hide any important matter in the name of official secrecy or state security.24 SECONDLY, we should think for some alternative to overcome the challenge of concentrated ownership. Dr. Shafiul Islam thinks that public broadcasting is a good alternative; the media may 24 িহাু্ম্মদ জাহাঙ্গীর, মিমিয়া সপ্নু্ , অননযা প্রকাশনী, ফফব্রুয়ারী ২০০৬, পঃ ৪০-৪১। be owned by the government but controlled by the people. It may be more like community media where the consumers are producers; the relationship is both-way. The political parties should also understand and maintain the difference between government and party. THIRDLY, it is very difficult to wipe out corruption. But, mass media themselves can do this. One media house can bring the news of corruption of other houses. Experts say that although this may be called yellow journalism and may seem as individual rivalry, but there may be a little truth. By bringing the news into public account a space for debate will be risen and public will demand the truth. FOURTHLY, excessive market orientation can be resolved by adopting effective policy of broadcasting and publishing of advertisements. Mass media themselves can do this or the government should make such kind of policy and legal actions should be taken against those who do not follow the policy.25 FIFTHLY, government should ensure safety of the journalists by enacting strict laws and implementing them effectively. Moreover, journalists themselves can take nonviolent action. They can abstain from publishing any news of the parties by which they have been tortured.26 SIXTHLY, people may have access to mass media by cooperative activity. Those who cannot afford a television set alone can buy it joining with others and thus have the access to TV channels. Again, newspapers should be available at public places, such as bus stops, railway stations, and school, college and university campuses and of course in libraries. SEVENTHLY, journalists should move to more investigative and embedded journalism. They should not only report about policies made but also investigate the about the implementation or non-implementation of the policies. In many cases too much subjectivity cannot bring any good result. So, mass media should be objective to ensure good governance. 25 26 Ibid, p. 16-17. Ibid, p. 30. FINALLY, media houses should survey about the public choice and their reaction about media contents. They should give participatory scope to the people and speak for the most deprived and disadvantaged. The process should be bottom to top rather than top to bottom. 9. CONCLUSION Mass media is essential for democracy and good governance. The role mass media plays in Bangladesh is not sufficient (and not correct) for the purpose. But, it doesn’t mean that mass media in this country are useless. In fact, mass media have (has been), in spite of their faults and lacking, working as peoples parliament and widened the scope of public debate and discussion. But, this sector needs a massive restructuring and reorganizing (recognition) in order to ensure good governance in Bangladesh.