1. INTRODUCTION
UNESCO and Sida (The Swedish International Development Cooperation Agency) has embarked on a joint venture to build on the conclusions drawn by international actors and to engage in discussions concerning best practices and the possibility to outline a framework for action in regards to assistance to media. It is the aim of this joint UNESCO/Sida discussion paper to initiate an inter-organizational discussion on assistance to media in tension areas and conflict zones. Examples and lessons learned is drawn from regions where UNESCO and Sida have been active in terms of media support but the paper makes no attempt to evaluate or analyze lessons learned in this field. We refer to professor Monroe Price and Dr. Mark Thompson who provides a broad based overview of the experiences had from international assistance to media in conflict. Based on input from NGOs, research institutions and professional organizations the paper outlines a framework for discussion regarding key issues related to media assistance during different stages of violent conflict.
The experiences had by the UN as well as donors, NGOs and professional organizations active in the field of emergency assistance to media are being documented by respective agency and organization active in this field.[1] It would be superfluous to repeat the efforts by others in terms of presenting experiences had in assisting media in transition countries and violent conflict. The aim is rather to bring to the table a discussion paper on the role of different types of actors active in information interventions and possible impact of different types of objectives and provide one step in what we hope to be a continuous discussion on key issues related to assistance to media on conflict zones.
When addressing tension areas and conflict zones the question concerns that of information management. In this respect the international community has two main objectives in mind. One is peace building and the other is the reconstruction of civil society. The main management issues will inevitable be how to reconcile these to sometimes diverging goals. This will further be accentuating the tools available to the international community in regards to information management – the media.
In relation to the above, we feel that it is important to address the issue of assistance to media in tension areas and violent conflict and open up a discussion on a number of key issues such as freedom of expression, security and post conflict assistance to media. The need for a more conducive approach to the entirety of the conflict circle has been placed on the agenda. Assistance to media in conflict initiatives exists, but is limited to in comparison to the overall humanitarian and reconstruction assistance and there is very often a gap between the quick impact assistance projects and the long-term objectives of promoting freedom of expression and the development of independent and pluralistic media.
The discussion is focused on the part played by actors in international assistance in regards to short term and long terms objectives of assistance to media in violent conflict. The different perspectives of overall conflict management vs. the focus on the function of the media and the role and responsibility of professional journalists in tension and conflict situations are illustrated through concrete examples from experiences had by NGOs, professional organizations[2] and UNESCO. Sections 1 –3 provide a background to the position of UNESCO and Sida in terms of media and conflict management, a description of the role of media in conflict provided by the Department for Peace and Conflict Research, Uppsala University. Section 4 provides a some concrete examples of the lessons learned on a a number of key issues, such as media for reconciliation, local media capacity and coordination. The section is mainly based on the outcomes of the UNESCO Round Table in Geneva in 2000 on Media in Conflict Areas[3], and Professor Monroe Price and Dr. Mark Thompson[4] article “Intervention, Media and Human Rights”. The contributions from NGOs are selected based on their mutual cooperation with both Sida and UNESCO in this field. The professional perspective is provided by International Federation of Journalists (IFJ) and a concrete example of UN coordination in the field is provided by the UNESCO Kabul Office. Section 5 presents a global overview and discussion on key issues for post conflict media reconstruction and is provided by Article XIX. We have decided to label the final section (6) proposed Conclusions/Recommendations of the study as “under construction” as the aim is to follow up on the questions and issues placed on the agenda during the seminar in Stockholm 25-27 May 2003.
What started out as an idea of Sida and UNESCO sharing their experiences in this field, naturally led to the involvement of a number of NGOs, which both organizations cooperate with. Along the way, UNESCO and Sida decided to use the opportunity to put the discussion at the international level by allowing this process of inter-organizational discussion to be part of the planning of World Press Freedom Day 2004. As the process evolved, we have come to the conclusions that the shared experiences will be put in a discussion paper to serve as a framework of debate on key issues during a working seminar in Stockholm, where a selected number of key actors would be invited to share and further contribute to this discussion. Contact have also been extended to the rest of the UN system as there seem to be a need for UN Interagency discussions on these issues.
As a final remark, we would like to thank all those that have contributed with their experiences, knowledge and active input into this discussion paper and to the meeting in Stockholm. We look forward to gaining further input into this discussion during the Stockholm seminar and our aim is to conclude this paper based on the outcome of the seminar.
2. MANDATES AND STRATEGIES
- UNESCO AND Sida PERSPECTIVES.
The following provides a brief overview of the mandate of UNESCO in regards to media assistance in conflict areas and the framework guiding Sida in terms of conflict management and assistance to media.
UNESCO
The creation of United Nations system itself aimed at establishing a culture of peace based on universally shared values. The UN mandate to take the lead in assistance to media is given to the UN special agency for Education, Science and Culture (UNESCO). The constitution of UNESCO insists, “ ...since war begins in the minds of men it is in the minds of men that the defence of peace must be constructed”. UNESCO’s Constitution stresses the need for information and communication within and between nations. It links the free flow of ideas to the broader objective of preventing wars and constructing the defences of peace by advancing the mutual knowledge and understanding between peoples.
In order to meet the challenges of globalization and the ever presence of internal and intra state conflicts the United Nations General Assembly, through its resolution 55/47 of 13 November 2000, declared 2001-2210 the International Decade for a Culture of Peace and Non-Violence for the Children of the World. Furthermore, in the framework of the UN Secretary-General’s call to move from a culture of reaction to a culture of prevention during the Millennium Summit, UNESCO ‘s culture of peace mandate is to contribute to peace in zones of chronic tension, latent and armed conflict, by promoting dialogue among communities and by providing assistance to independent media, which would give the local population accessto non-partisan information in order to counter violent propaganda of hate, presented by the media and information channels under the direct or indirect control of the actors of force and confrontation.
Coordination and co-operation
UNESCO, as an international member-state organization, has on a number of occasion played an active role in catering for cooperation between donors, UN system and NGOs. For example, in December 1992, UNESCO in cooperation with professional media organizations launched “SOS MEDIA” campaign in order to sensitize the public to the importance of non-partisan information in times of war and to give financial, material and diplomatic support to independent media in Bosnia-Herzegovina, Croatia and Serbia. In 1995, UNESCO was nominated “lead agency” in the United Nations system for support to independent media in former-Yugoslavia. During this decade the Organization has focussed its efforts in post-conflict areas, contributing towards strengthening the independent press, implementing audio-visual infrastructures, encouraging editorially independent public service broadcasting and developing a legal framework for the media based on democratic principles. It should also be noted that UNESCO has the mandate to coordinate UN assistance to culture and media in Afghanistan.[5]
In 2000 UNESCO held a Round Table in Geneva on Media in Conflict and Post-Conflict Areas where the objective was to identify means and procedures by which the international community could promote freedom of expression and the development of independent and pluralistic media in war zones. A summary of the main findings form the round table can be found in the following section of this text on reflections on experiences had so far As a result of the round table 15 recommendations for future actions were listed as a result of the discussions during the meeting.[6] Among other things it was pointed out that the international community should always promote the fulfillment of Article XIX of the Universal Declaration of Human Rights in all media assistance, regardless of rationale for the intervention. The assistance should also aim at strengthening local independent media and provide support for local journalists, both in terms of professional skills and security. It was also stressed that the international community must increase its preparedness to act swiftly in times of emergency.
Proactive interventions and preparedness
The above is a description of mainly post conflict assistance to media. The United Nations Millennium Goals clearly states that there is a need for much more consolidated prevention approach. This will require UNESCO to develop strategies for planning and coordination from a conflict prevention perspective.
It has been suggested that UNESCO participate in developing mechanisms and strategies for early warning systems in term of media activity during new or chronic stages of tension and latent conflict situations. Furthermore, the Organization has been called upon by the UN system to provide input into discussion on how to address the problematic and sensitive issue of so called “hate media” / incendiary mass media.
Swedish International Development Cooperation Agency (Sida)
Swedish media assistance has developed and expanded as an area of its own since the beginning of the 1990´s and the support is directed towards protecting freedom of speech by supporting the reform of legislation, contributing to research, making freedom of action possible for journalists and the media, and supporting networks between journalists, nationally and regionally. Supporting the media in their critical examination and for their educational potential is seen as an important part ofSwedish development cooperation for the promotion of democracy and human rights. Only a fraction of the media assistance program is targeting media in conflict areas and most of these types of media projects have been integrated into Sida’s development cooperation with south Eastern Europe.
In order to meet the challenges of the new demands in regards to a situation of increasing support to conflict resolution initiatives where information management is an essential component Sida seeks to media assistance as well as including media as an important part of a revised conflict management strategy. It is within the perspectives of humanitarian assistance and conflict management that the issue of media as vital for humanitarian information, reconciliation efforts and structural stability development efforts will be addressed.
The Swedish Development Cooperation Agency (Sida) adopted its first strategy for conflict management and peace building in 1999 and the agency is presently revising its overall strategy. A series of thematic studies, including studies on democracy and violent conflict, poverty and violent conflict and the prevention of recruitment of child soldiers, will form the foundation for this revision. This new strategy will aim at being more in line with the new guidelines from the Swedish government, as well as the guidelines decided upon within the OECD/DAC[7], and will be finalized in 2004.
Sida’s overall goal is poverty reduction. Conflict management falls within the reasoning that “Poverty may not cause war, but war always causes poverty” – thus to prevent and manage armed conflict and promote sustainable peace and security is also to prevent and reduce poverty.
The guiding principle for Sidas conflict management is “Do No Harm”, which implies the necessity of careful analysis and risk assessment before embarking on an intervention. The analysis must take into account the contextual situation, which includes root causes of the conflict as well as triggers. Examples of root causes are political and socio-economic inequities and inequalities, weak state structures, abuse of human rights, ethnic discrimination and scarcity of shared resources. Interventions are best done through a multidimensional approach whereby the following areas, to mention some of the most important ones, are promoted: eradication of poverty that create grievances, the sustainable use of natural resources as to prevent resource based conflict, good governance, rule of law, respect for human rights, representative political institutions capable of managing change and resolving disputes, the development of a vibrant and democratic civil society, gender equality and efficient security sectors under democratic control. The aim of conflict prevention is to assist conflicting parties to escape the vicious circle of situations of rising tension - eruption phases of open confrontation and armed conflict – fragile transitional and post-conflict situations – situation of submerged tension – situation of rising tension etc.
In all situations, from sub-merged tensions to post-conflict (see figure above), Sida has identified three basic categories of conflict management activities.
-promotion of dialogue
-promotion of security
-promotion of structural stability
These activities can be combined and applied in more than one situation of a conflict, and thus contribute to a broad based/multidimensional approach to conflict management.
- Promotion of dialogue: Special attention should be given to efforts, which promote or create conditions for dialogue, negotiation and de-escalation of conflicts between primary as well as secondary parties involved in conflicts. For example, activities dealing with: culture of violence, education, seminars, reconciliation, mediation at local level and other activities which have the aim of forming opinion and increasing awareness.
- Promotion of security: This includes interventions that can give individuals and groups affected by violent conflicts a greater degree of protection. These are implemented, for example, through: civil peace monitoring, observer functions, monitoring and documentation with the aim of stabilising a conflict situation, disarmament, demobilisation and re-integration (DD&R) of ex-combatants into civil society and measures to decrease the excessive and destabilising accumulation of small arms and light weapons. Activities also include humanitarian assistance to protect the lives and livelihoods of those affected, especially non-combatants and in particular women and children. Interventions with the aim of promoting security can be called for wherever there is an identified need, i.e. not only when there is an apparent risk of open armed conflict but also when there is a high degree of insecurity – e.g. the dangerous accumulation of small arms and the occurrence of small arms related violence.
- Promotion of structural stability – Interventions that consciously target, as a primary or secondary goal, root causes of violent conflict and human insecurity. This definition is to avoid that all types of development co-operation efforts are judged to be conflict prevention or peace building, which is not the case. Any development cooperation or humanitarian assistance in a conflict situation, which does not consciously take a conflict perspective in its design, can in a worst case scenario do more harm than good.
Evaluations show that Sida’s conflict management efforts are most prominent during situations of open confrontation and armed conflict and post-conflict situations. During the years 2000 and 2001 around 80 per cent of all conflict management projects were taking place in a situation of open armed conflict or post-conflict. Consequently the numbers of conflict management projects in situations of submerged or rising tension are comparatively low.
The revision of Sida’s conflict management strategy aims at a holistic approach where good governance and human rights perspectives are integrated into the activities. In this respect, media and the support to media in tension and violent conflict areas are vital components of the new strategy.
3.Violent Conflict and Roles of the Media
Ylva Blondel, Uppsala University, Department of Peace and Conflict Research[8]
Accelerated technological developments and the communications revolution has made various forms of mass media a pervasive part of daily lives in Western, industrialised countries and urban populations all over the world. Furthermore, there is evidence that more independent news media is having a positive influence and promoting democracy even in some of the poorest countries. The realisation that consolidated democracies do not go to war against each other and that a democratic state system has the capacity to regulate shifts in power with the involvement of civil society and public opinion without resorting to violence, has led to the conclusion that promoting democratic governance is the best solution for sustainable prevention of armed conflict in pre-and post open confrontational armed conflict.
Media plays a key and unavoidable role by being responsible for providing a population with relevant and credible information, in order to enable people to make well-informed choices, and make it possible for all parts of civil society to have access to, and participate in, political governance. As such media plays an essential role in ensuring accountable and transparent governance. Media is the public arena for communication, which can be used to promote freedom of expression and interaction between civil society groups and political decision-makers. Together these functions can create more stable and sustainable political structures by promoting constructive communication, by decreasing perceptions of threat and zero-sum politics.