Communication of SAA: The role and impact of media in shaping the public opinion

Transcription

1 Communication of SAA: The role and impact of media in shaping the public opinion

2 This paper is the concluding part of the project entitled Promoting the Stabilization and Association Agreement and launching a public discourse for Kosovo' European Future, financed by the Embassy of the Kingdom of the Netherlands in Kosovo and implemented by Prishtina Institute for Political Studies and Group for Legal and Political Studies. Prishtina Institute for Political Studies, October, 2017 The opinions expressed in this paper do not necessarily reflect those of the Prishtina Institute for Political Studies' donors, its sta, associates or Board's. No part of this publication may be reproduced or transmitted in any form without prior PIPS' prior authorization. All rights reserved. Author: Dardan Bekaj

3 Introduction 3 Almost eighteen years has passed since the war ended and Kosovo still seems to face di culties in terms of politics and economy. Various factors have contributed to this unsatisfactory situation impeding Kosovo to move forward. One of these factors is also isolation from the EU. Kosovo has been eagerly trying to advance in its EU accession road, but has stagnated due to various issues combined all together. It is hardly believable that anyone had thought that Kosovo would only enter contractual relations with the EU after 15 years. The SAA is an initial step towards accession to the EU. It has, otherwise, as a contractual tool, played a key reform-driving role in the long process of Europeanization of Balkans' economies, politics and societies since early 2000s on. On a background note, SAA is a tailor-made international arrangement between the EU and individual accession countries in the framework of the Stabilization and Association Process (SAP). From a formal, international public law point of view, the SAA regulates political and economic relations including by stipulating duties and obligations of mainly the accession country, compliance timeframes and institutional framework and mechanisms between the signatory parties prior to the membership negotiations (aka at the 'potential candidate' stage of the country concerned). Politically speaking, it is a tool used by the EU to recognize the European perspective. Thus, in order for a 'potential candidate country' to conclude an SAA with the EU, they need to demonstrate plausible progress in fulfilling the Copenhagen accession

4 4 Criteria. In broader aspect, they need to demonstrate a credible engagement to undertake democratic reforms, respect and protect human rights, minorities and freedom of expression, and free and regular elections, as well as take an ensure the implementation of the first economic reforms, readmission from Members States and commitment 1 to the regional cooperation. In the interest of advancing and improving cooperation between Kosovo and the EU towards full membership, the SAA (with Kosovo being the last Western Balkans country to have concluded it), was signed on 27 October 2015 in Brussels by Federica Mogherini, High Representative for Foreign A airs and Prime Minister Isa Mustafa. On November 2nd, 2015, the Kosovo Parliament ratified the agreement, and it was then adopted by the European Parliament, on 21 January Finally, it entered into force on 1 April It is evident that the SAA is not an easy task for Kosovo's Institutions to cope with, for its implementation requires qualified experts of each acquis chapter. If it remains di cult to understand by experts, what about civil servant and those less engaged in this issue, let alone the ordinary citizens. It is quite palpable that Kosovo's Government lacks good communication strategy when it comes to promoting SAA and in general joining the EU. If we look elsewhere in the region, we notice that neighborhood countries have already established very advanced communication strategies in regard to the SAA and the EU membership. On the other hand, Kosovo has just started to think in this direction, initiating the process of drafting a communication strategy in compliance with the EU requirements. The problem that arises here is that 1 Communication from the Commission to the European Parliament and the Council on Feasibility Study for Stabilization and Association Agreement between the European Union and Kosovo*, Brussels, 10/10/2012, COM (2012) 602 final, at 2 [hereinafter referred to as Kosovo Feasibility Study ] 2 Council of the European Union press release, 27/10/2015, available at: (accessed 24/08/2017)

5 5 there are existing assumptions that Kosovo is thinking to hand out the process of drafting strategy to one of the neighboring countries. We believe that it is needless to outsource this project to one of the neighboring countries considering the fact that Kosovo has qualified experts who can do an extraordinary job adding the fact that they live here and know better the situation than anyone from abroad. Moreover, knowing the fact that Kosovo is the last country to initiate such a strategy, Kosovo can learn a lot from the best and worst practices from other countries who have already established and worked on their communication strategies when it comes to the EU perspective. Nonetheless, the whole point of this paper is not to focus on the communication strategy as whole process but only in one aspect the role and impact of media in properly informing and shaping public opinion when it comes to the SAA and the EU membership as a whole package. Moreover, this paper attempts to better illustrate the role and impact of media regarding the SAA in two forms, by properly informing and shaping the public opinion regarding the SAA, as well as by reporting and increasing transparency and e ciency of relevant public institutions in successfully implementing the SAA and monitoring its implementation. This paper will also touch upon the importance of media's impartiality and independence, especially when it comes to coverage of the SAA process and EU integration in general. Importance of media involvement 5 Before beginning to elaborate the three aforementioned points, it is important to briefly discuss the importance of media involvement in this

6 6 process. Media plays a decisive role in analyzing and narrowing the already existing gap between SAA requirements, on one hand, and institutional and public awareness, on the other. Even more so, they also need to play such a role in exploring what works and what does not, and why! It is therefore vital that media not only report headlines, repeat or amplify political reactions, but also analyze, explain and inform. Media have an important role to play in explaining the technical side, interpreting EU requirements in a language that is more objective and easier to follow by the general public, as well as by investigating political response and progress. More importantly, media should look beyond politics, give di erent views, and create space in the public realm for independent debate and discourse led by experts. EU enlargement is an extraordinary strategic opportunity for Kosovo, for the region and for the EU itself as the highest governance institution in Europe. It is a chance to enhance our common security and prosperity. This can only be achieved if we adopt common systems and standards. The SAA process is designed to achieve this. The SAA is a highly complex, technical and comprehensive project. European integration is an important project - it cannot be done just for the sake of doing it or getting votes. It works best only if all the institutions and factors are committed and are pushing for progress and reform; when the agenda is internal and the reform is not done just for the sake of making the EU happy, but rather to improve the lives of ordinary citizens. Media in Kosovo have a fundamental role to make the public understand better this process and achieve a broader engagement.

7 Component I: 7 Media as multiplier actor: Properly shaping and informing public opinion regarding the SAA As a non-governmental institution mainly focused on education, we as PIPS have conducted a research on Citizens' general knowledge and perception on SAA, which showed a significant gap of knowledge of citizens regarding the SAA. Findings showed that Only a small percentage (3%) claim that they know about the SAA fully. Almost 10% claim that they don't have any information on the SAA. The majority of citizens 69.4% claimed that they know 10-50% about the SAA, while only 20.8% claimed that they have % knowledge on the SAA. Knowledge on SAA 15 % 10 % 5 % 0 % Figure 1. Citizens' self-declared general 4 knowledge on SAA 3 Research Report conducted by Prishtina Institute for Political Studies (PIPS) on Citizens' general knoëledge and perception on SAA. Place: Prishtina, September pg.6 4 Research Report conducted by Prishtina Institute for Political Studies (PIPS) on Citizens' general knoëledge and perception on SAA. Place: Prishtina, September pg.7

8 8 Furthermore, this study also has found that regardless of the fact that people claim that they know about the SAA, the mean of knowledge index on it is.53, which is less than 50% on the scale of knowledge and it's relatively low. The results indicate that in general, people are unaware what the SAA 5 entails. The study further elaborates on the lack of knowledge of citizens regarding SAA; nevertheless, the main theme of this paper is not to focus much on that, but rather to illustrate the significant gap and mainly how this gap can be filled and who can be the best agent in this case. The final part of our Promotion of Stabilization and Association Agreement project, funded by the Embassy of the Kingdom of Netherlands, mainly focuses on the role and professionalism of media regarding the importance of informing properly the citizens and bringing transparency to the table. Media are among the key opinion-makers and will be one of the most important channels through which the achievements in the European integration process will be presented to the target audiences and stakeholders interested in the process. A good analysis of target audiences in itself suggests the channels and communication tools for meeting the key objectives. This section of the paper has to do with proper informing and shaping public opinion which is one of the most important facet in spreading properly the knowledge regarding the SAA and its importance for paving the Kosovo's path towards the EU. In the Media e ects on Public Opinion about the 6 Enlargement of European Union, Claes and Boomgarden have confirmed the causal relationship between media and citizens' opinion. They hold that media role in shaping public opinion is conditional. They conclude that when European Integration 5 Research Report conducted by Prishtina Institute for Political Studies (PIPS) on Citizens' general knoëledge and perception on SAA. Place: Prishtina, September pg.7 6 Claes, Hubert, Boomgaarden, Hajo Media E ects on Public Opinion About the Enlargement of the European Union. ects_on_public_opinion_about_the_enlargement_of_the_european_union

9 9 matters make their way to media agenda, they also become important for citizens: Consequently, media becomes important only when citizens are highly exposed to news that takes consistent evaluating approach. Moreover, they add that the contrary happens when messages are less clear and 7 confusing. Media as a multipliers, represent the most important agent in penetrating the information about the SAA. Multipliers are a target audience of key importance for mobilizing other target audiences and for shaping their opinions. Media should focus on four key aspect regarding the SAA: Informing; Educating; Promoting/advocating the EU values; Mobilizing citizens to support the EU. Informing is a continued process of providing precise information on all aspects of the accession process, with a special emphasis on the negotiation process, rights and obligations arising from membership and EU support programmes. Education means that media should be actively involved in organizing qualitative public debates with chosen experts on the topics related to the SAA as the current formal framework of Kosovo's EU accession process. Moreover, panel of discussions, papers,and report analysis regarding the SAA should be an ongoing part of media's agenda. Furthermore, hosting regular and ad-hoc, long and short, and general and specialized education programmes targeting various audiences, on the topics related to the integration process, expected developments, and repercussions on everyday life. 7 Ibid.

10 10 Promotion and advocacy is an immense need in order to keep and boost up citizens' optimism towards the EU. In this aspect, media plays a crucial role in promoting the dialogue and the benefits that await Kosovo on its path towards the EU, but also in creating adequate public expectations and maintaining legitimacy of EU accession as a the most important long-term strategic state-building project for Kosovo. This requires maintaining a positive attitude among citizens and influencing those with soft attitudes (people who support more than oppose membership) and those with no opinion on the matter. This can be quite helpful in promoting the SAA if executed properly by media. Media supported by government and in close cooperation with other actors (civil society, professional associations, academia, etc.) should promote and advocate continuously the EU values and membership benefits, as well as achievements in the accession process. Mobilization is crucial in the process of promoting the SAA and EU membership. Motivating and engaging youngsters, sensitive groups, and others will play a significant role in boosting the process forward. Media should continue, in cooperation with partners, mobilizing the public and encouraging the development of civic responsibility, so the citizens would, in turn, contribute actively to the reform processes and EU standards adoption. Media can also mobilize in a more organized way by engaging with a wide range of stakeholders in the society, with a view to building up constructive pressure on public institutions in charge of implementation to actually deliver on reforms required by the SAA. This is, ultimately, fundamental for greater institutional responsiveness when it comes to delivering reforms.

11 11 Media's tone and language An appropriate tone will contribute to easier and quicker reception of the message by the audience, which at the same time means the content needs to be readily available and understandable to the broader public. The dominant tone in communicating SAA and EU integration in general needs to be serious, moderate, and appropriate, but at the same time also positive and dynamic, emanating an air of reliability and trust. Openness, timeliness, and two-way communication (dialogue) are the guiding principles of the strategy implementation. The language of the message needs to be simple and clear, devoid of technical expressions that are not understandable to the target audiences. The messages should be adjusted accordingly to the development of the accession process, as well as to the sectoral and local needs. For that reason media should actively be involve and close cooperation with main institutional bodies dealing with SAA. They need to be targeted to the appropriate audiences and must not be uniform for all audiences. They also need to be focused on concrete results, in a way that would enable all citizens to recognize their personal interest in EU integration. This approach will be based on realistic foundations, as overly optimistic and unfounded expectations among citizens might have a boomerang e ect when those expectations are largely not fulfilled. The same methodology needs to be applied to unrealistic fears and prejudice.

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14 14 Component II: Media's role in increasing transparency and e Media reporting and its role in increasing accessibility, transparency and e ciency of the relevant institutional bodies in the successful monitoring and implementation of the SAA is another immense way of contributing that can successfully push the process forward. The fast evolution of technology has enormously increased the relationship amongst media, politics and the general public. In regard to the European Integration, scholars argue that this triangle enables political communication from which the future direction of European project depends. The increasing interdependence of media and politics made the British scholar Brian McNair conclude that media is 8 politics and politics is media. Politics needs message distribution in order to ensure public support for its ciency objectives, whereas media influences politics through 9 public opinion formation. This interaction takes place within the Public Sphere, where media have outstandingly increased their predominance as a 10 result of informational technology. With freedom of speech as a fundamental value and with media as the main platform for enabling this right (freedom of speech), media becomes 11 irreplaceable in public opinion shaping. Media fulfil their main role, in this regard, by being a 'watchdog' 12 towards political institutions. By continuously informing on institutions' activities and performance, also by accurately mirroring events of high importance in citizens' life; Media influence opinion formation and increase transparency and e ciency of the relevant 8 McNair, Brian (2002) Journalism and democracy, an evaluation of the political public sphere, Taylor & Francis e-library London 9 Claes H, Boomgaarden H (2006) Media E ects on Public Opinion about the Enlargement of the European Union. 44: Kosovo Progress Report Fetoshi, Arben (2017) The Role of Media in European Integration Process: Kosovo Case. Mass Communicat Journalism 7: 338. doi: / Brian MN (2002) Journalism and democracy, an evaluation of the political public sphere.

15 15 institutions involved in the process. In Kosovo is a concerning issue the reluctance of the involved public institutions to cooperate and share information with news agency and journalists in better spreading the knowledge of the SAA amongst the public opinion. This is automatically reflected to the wide public opinion since then media might have a tendency to only report superficially, with no content at all. Knowing the importance of the SAA and its e ect towards the EU membership, Kosovo's institutions must have a pro-cooperative approach (enhanced communication amongst public institutions, media civil society etc.) especially with media channels in continuously feeding and informing regarding the ongoing of the process. A pro-cooperative approach between media and relevant institutions involved in the process of SAA will reflect positively to the wide public opinion. So far, since the agreement has been ratified in both Parliaments, that of Kosovo and the European one, both accessibility and transparency of the process have been impediments towards more e cient way of handling the process. Considering that this process most of times is kept non-transparent by relevant institutions, media should insist more in finding other channels that can make this process more transparent and accessible. Media should exhaust all the necessary means in seeking the needed information from the relevant institutions regarding the process of SAA. Only through this manner, the process can be more e cient and accepted to the wide public opinion. For the sake of making this study more illustrious, it is important to share some important data in regard to media coverage in Kosovo. A study conducted by Arben Fetoshi on The role of Media in European

16 16 13 percentage of 53.0%, respectively 41.5%. The survey's results are further supported by results of media monitoring, with the latter suggesting that European Integration process is not provided with the necessary important space in media. As in regard to mediatisation of European Integration, the table below demonstrates refined data on the process of 'mediatisation', clustered by its interrelated topics: EU facilitated dialogue for normalization of relations with Serbia, visa liberalisation and SAA. Prishtina-Belgrade dialogue Visa liberalization SAA Comments The total of reports RTK % KTV % RADIO KOSOVA % DUK % KOHA DITORE % ZERI % EXPRESS % INDEKS % Table 1: Mediatisation of European Integration 14 (October December 2016) 13 Fetoshi, Arben (2017) The Role of Media in European Integration Process: Kosovo Case. Mass Communicat Journalism 7: 338. doi: / Ibid.

17 17 The results in this table shows which media are more involved in the process of EI. Moreover, we have to be clear that most of the news are only superficial and here arises the problem of improperly and negatively shape of public opinion. The same amount of space is given to mirror reporting of events such as EU o cials visits in Kosovo and those of Kosovo in Brussels, political debates on interrelated issues to European Integration process or its evaluation by several political and non-political factors. Nevertheless, reporting lacks of thematic background and analytical approach on the process. Media impartiality and independence integration in general). In 2016 Kosovo was rated by Freedom House organization as being partly free regarding media freedom; Kosovo scored 49 points in a scale with 0 being the most free and 100 the least 15 free. Kosovo scored same points in 2014 and 2015, while the major aggravation on region was identified in Macedonia that in 2016 was rated not free, scoring points. The data shown in the table below helps better understand the problem that arises in the Kosovan environment especially when discussing about media and its role towards more impartial monitoring and reporting of the European integration process in this case the SAA. It is highly significant to emphasize the immense need of media to be impartial and independent from any possible links with political parties in Kosovo (mainly those in charge of the SSA process and the EU Freedom House, Kosovo, Freedom of the Press 2016, Freedom House, Kosovo, Freedom of the Press 2016,

18 18 Country Year 2014 Year 2015 Year 2016 Score Rating Score Rating Score Rating Kosovo Albania Maqedonia Montenegro Serbia Bosnia dhe Hercegovina Table 2: Freedom and (in) dependence of media in Kosovo Augustin Palokaj, a Kosovar correspondent on Brussels regarding the EU integration said that Kosovo is far from EU integration and politicians misuse this process for their own promotion and not in purpose of advancing it. Moreover, Mr Palokaj claimed that media often served as a tool for politicians by creating confusion among citizens. Media broadcasted politicians' statements without su ciently verifying the truth and thus conceiving expectations for visa liberalization. However, even six 17 Kosovo Progress Report 2016, p.25,

19 19 years after politicians started to grant that visa 17 liberalization is soon to take place; it did not. On the other hand, the 2016 Progress Report the main EU tool for evaluating Kosovo's progress drafted by European Commission in annual basis, has identified serious stagnations regarding the lack of dependence of RTK. RTK is directly state funded which undermines its independence, weakens its long-term sustainability and leaves it prone to political influence. The Assembly tendency to make state funding a permanent solution contrary to law is a concern. A solution for the premises of the public 18 broadcaster is yet to be found. Moreover, even citizens believe that media is dependent from politics. In the survey conducted for this research purpose, 47.2% of respondents have stated that media is dependent from politics and groups of interest. Free and Independent 16.2% 36.6% Dependent from politics and interest groups 42.7% Figure 2: How do you rate media in Kosovo? Interview with Agustin Palokaj, regular correspondent on Brussels for Koha Group in Prishtina. 18 Kosovo Progress Report 2016, p.25,

20 20 All information provided above are evidence that media is not fully impartial and independent of the state and other political parties. In order to restore the credo of the public opinion towards media, it is necessary that media reporting be just and also content wise. More than ever, we need media to act maturely by monitoring and reporting the process which will ultimately result in transparency and e ciency of the relevant institutions as well as proper shape of the public opinion. Best practices: Croatia Kosovo's road towards the EU and successful completion of SAA can be approached much safely if we take examples from what happened to other regional countries that have already gone through this process. The case of Croatia and its long journey towards EU membership is a great example that can facilitate the Kosovo's path towards EU family. Same as Kosovo, Croatia has experienced war in early 90s but it managed to progressively recover and become member of the EU. Approaches to European Union and NATO were key political priorities which were seen in the e orts for signing the agreement of Stabilization and Association of the Republic of Croatia into European Union. This agreement was preceded by numerous mutual agreements in the region. At the time of European initiatives until 2000, the image of Croatia in the world was not at the level of expectations by internal and international public. That figure changed when the new coalition 19 government came in Based on the Government program from 2000 to 2004, the first Communication Strategy for informing Croatian public about the accession of the Republic of 19 Zoran Tomic, Muhamet Sadiku, Dario Malnar, Comparative Analysis of Communication Strategies for Accession to the EU Lessons for Kosovo 2009,

21 21 Croatia to European integrations was adopted by the Croatian government on 18 October After the change of the government in the elections held in 2003, the Croatian Assembly adopted the second Communication Strategy for informing Croatian public about the EU and preparations for membership 20 for the period from 2003 to In line with the application for the European Union membership, which the Republic of Croatia submitted in February 2003, in April 2004 the European commission issued a positive Opinion about the application of the Republic of Croatia for full EU membership (avis), and therefore in June of the same year Croatia acquired the status of a candidate for EU membership. In March 2005, the European Union Council adopted the Negotiating Framework with the 21 Republic of Croatia. The public communication process of forming the opinion of Croatian public was based on the implementation of the communication strategy, which was mainly executed by the Ministry of Foreign A a i r s a n d E u r o p e a n I n te g r a t i o n s. T h e communication programs, of Croatia in this case, and other analyzed communication strategies were thoroughly planned. The purpose of this short analysis is not to observe the whole communication strategy that was applied by Croatia but rather to briefly examine the manner that media were used as a key factor in properly shaping the public opinion and increasing the transparency and e ciency of the process. If used and analyzed properly, this can facilitate Kosovo's performance in this process. Informing about negotiations of Croatia aimed at making it possible to the public to follow the process on negotiations. Information means and procedures included: 20 pdf ( ) 21 Zoran Tomic, Muhamet Sadiku, Dario Malnar, Comparative Analysis of Communication Strategies for Accession to the EU Lessons for Kosovo 2009,

22 22 holding regular press conferences when it is important to recognize journalists who will actively monitor the process of negotiations of the EU accession, and report about it. Apart from regular press conferences, it was also necessary to have thematic conferences dedicated to individual chapters of negotiations, as well as some extraordinary conference depending on the dynamics of negotiations. organizing public debates, for example, through the National Forum for the Republic of Croatia's accession to the EU, through television, radio and other public discussions, special Internet websites designed to inform about the negotiations, the establishment of free info-phone/voice portal, issuing publications intended to general public as well as sector publications about certain areas, and chapters of negotiations held for special target groups, media activities (public discussions on TV, thematic TV and radio shows, cooperation with the printed media in the issuance of relevant thematic supplements); in this context, it is particularly important the involvement of the HTV as the public television in production of such programs, preparation of reports of the negotiating group on progress of negotiations that follow its dynamics, with special emphasis on sensitive issues, and inform the public about the results of the negotiations. This report will be available through Internet sites, and in cases where it is relevant in printed publications too. 21 Ibid

23 23 At the national level, the establishment of information centres regarding European issues (including those which are targeted to specific EU programs); publications on European issues (books, brochures, print, magazines and journals, bulletin boards and newsletters and the Internet); special radio and TV shows; meetings and discussions with the representatives of target groups. At the international level, events at the level of o cial institutions and non-governmental organizations at national and regional levels, special events dedicated to Croatia, advertising materials about Croatia and the establishment Croatian information centres. Going back to Kosovo, in the period until now, clear channels of communication within the country with the aim of a better understanding the process of the EU integration have not developed. There remains space to cover information about other segments of society within Kosovo by other programs. Taking into consideration the history and current strong positive feelings of Kosovars towards Europe, as possible channels for spreading of information, the following are suggested: Organizing summer school with clear target groups, Installing a radio station that will spread information about Europe and European integration and values, Encouragement of university institutions for including courses on European studies in their programs,

24 24 Emphasizing via electronic and written media the main messages on a European idea and practice. Organizing studying stays at European institutions for employees of state institutions of Kosovo. Creating space in newspapers and magazines to promote European standards and values. Conclusion In conclusion, it can be said that Kosovo needs a comprehensive communication strategy that will ensure the necessary participation of all classes of society and will enable the continuous, timely and full communication of the Kosovo authorities with the public target. Being witness to the enormous development of technology, we can say without fear that the media have become the most powerful means of communicating political messages. The role and influence of the media is undisputable. They have the power to properly inform, often mislead and abuse the citizen knowing the fact that citizen's level of knowledge and awareness is very poor especially when it comes to the SAA. Even the study conducted by the Pristina Institute demonstrates clearly the gap created between the citizens and their knowledge of the SAA. It is also worth noting that public institutions involved in the European integration process, particularly the SAA, should have a more pro-active cooperation with the media, recognizing their power to convey the

25 25 intended message fairly and successfully. If we look in the Communication Strategies adopted by neighboring countries, we can clearly notice the role and importance of involving media in successfully communicating messages, even comparing with the other target audiences (multipliers) such as government institutions, non-governmental organizations etc, the media emerge to be the most powerful actor in transmitting messages to citizens and the population. As noted above, the media in Kosovo should have a more constructive approach (content, critical message) especially when discussing a sensitive issue such as the SAA, as only in this way we can achieve the desired results towards our path to membership in the European Union. All in all, as mentioned above, the media should focus on two important aspects, that of properly shaping the public opinion and the increase of the transparency and e ciency of the institutions in the monitoring and implementation of the SAA. All this cannot be achieved if media aren't impartial and independent from the governing power. Their impartiality and independence is crucial in the European integration process, in this case the SAA process.

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