IREX Assists Development of the Montenegrin Public Service Broadcaster

Through an unprecedented, transparent and inclusive media law reform process, due in large part to the technical assistance and media expertise provided through the auspices of the Montenegro Independent Media Program (MIMP), the Montenegrin civil society has replaced the government at the helm of Radio and Television of Montenegro (RTCG). The emerging public service broadcaster, which was formerly operated by the government, still has various obstacles to overcome but its achievements to date enable Montenegro to serve as a model for the transformation of state-owned media in the region. The independence of the public broadcaster RTCG goes far beyond what exists in neighboring countries where governments and political parties still have decisive control or influence.

State broadcasting in Montenegro – as in the entire Balkan region – has been little more than a mouthpiece for the government and became “a war propaganda machine, promoting all kinds of hate and racist speech against other nations” during the break-up of Yugoslavia in the 1990’s, according to Ranko Vujovic, the director of the Union of Independent Electronic Media (UNEM). Vujovic and many other civil society activists realized the importance of changing the broadcasting system if they were ever to achieve real democracy in their country. In 2001 they approached IREX and the international community for help and began a process that would eventually astound not only the government of Montenegro, but also the initiators, with its results. For the first time in the history of the Republic, citizens took their fate in their own hands, rather than waiting for the authorities to think and act for them, and began practicing democracy.

Over the course of a number of public roundtable discussions, participants in the reform process quickly agreed upon a few core principles: the state should not run or control any media, and political parties should not have any influence on the media, which serves as the main vehicle for free speech and expression. Consequently in a first policy paper, representatives of private media and civil society demanded an independent council for the regulation of the broadcast industry, as well as a truly public service broadcaster free from political influence.

Within a few months, as the process unfolded, civil society became aware of its strength, while the government learned its limits. Accepting the inevitability of the situation, the government agreed to establish a working group on media legislation (the Working Group), which gave representatives of all stakeholders an equal footing. During the lengthy deliberations, IREX Chief of Party Joe Raffelberg and IREX consultant Hendrik Bussiek, offered members of the Working Group expert advice and guidance based on their significant experience with media reform and legislation in Europe and other parts of the world. The outcome was a set of laws, passed unanimously by parliament at the end of 2002 that secured the best possible safeguards against undue influence from the political sphere.

Civil society representatives in Montenegro are now also in charge of the newly independent industry regulator, the Broadcasting Agency (BA). As the BA announced the first free and fair frequency/license tender in December 2004 - a cornerstone in the development process - the restructuring of RTCG and the adoption of a law on free access to information are the two remaining key elements for a successful transformation.

Current IREX/USAID assistance for the RTCG is focused on crucial organizational restructuring following the completion of the public broadcaster’s normative reform and the election of new RTCG leadership. The ongoing efforts to streamline the workforce are expected to reduce the staff in half, down to 600 from approximately 1,200. To soften the impact of the downsizing, IREX consultants have devised plans for outsourcing RTCG production to new privatively-owned outlets run by former RTCG employees. By fostering development at RTCG, by far the country’s most influential broadcaster, IREX continues to recognize the media’s vital role as an agent for change in the democratization process.

USAID recently extended the IREX-administered Montenegro Independent Media Program until September 2005, an additional 11 months, which will allow staff and consultants to secure additional legislation related to the freedom of speech, improve the professionalism of journalists, strengthen supporting media institutions, and assist with the development of strategic business plans for selected media outlets.