public service media according to constitutional jurisprudence the human rights and constitutional

226 Pages·2012·1.4 MB·English

P S M A
UBLIC ERVICE EDIA CCORDING TO
C J
ONSTITUTIONAL URISPRUDENCE
—
T H R C
HE UMAN IGHTS AND ONSTITUTIONAL
L D R , R
AW IMENSION OF THE OLE EMIT AND
I
NDEPENDENCE

Study Based on Reports and Comparative Analysis
(Europe (Council of Europe & European Union), France,
Germany, Hungary, Italy, Poland and Spain)

Saarbrücken, 2 July 2009
2nd edition 2012

F I N A L R E P O R T

PUBLIC SERVICE MEDIA ACCORDING TO
CONSTITUTIONAL JURISPRUDENCE
—
THE HUMAN RIGHTS AND CONSTITUTIONAL LAW
DIMENSION OF THE ROLE, REMIT AND INDEPENDENCE

Study

prepared by the
Institut für Europäisches Medienrecht (EMR), Saarbrücken/Brüssel
with the assistance of
Karol Jakubowicz (with Krzysztof Wojciechowski); Pascal Kamina;
Mark Lengyel; Roberto Mastroianni & Amedeo Arena; and Julián
Rodríguez-Pardo
on behalf of the
European Broadcasting Union/Union Européenne de Radio-Télévision
Institut für Europäisches Medienrecht e.V. (EMR)
Franz-Mai-Straße 6
D-66121 Saarbrücken
T. +49 (0) 681/9927511
F. +49 (0) 681/9927512
W. http://www.emr-sb.de
eM. [email protected]
Preface/Disclaimer/Acknowledgements
The Institute of European Media Law (EMR), Saarbrücken/Brussels, has been
commissioned by the European Broadcasting Union (EBU) to prepare a study, based on
the collection of information at the European level and from a number of countries, on
“Public Service Media According to Constitutional Jurisprudence”, including an
analytical summary.
The contractor has opted for the preparation of six country reports covering France,
Germany, Hungary, Italy, Poland and Spain in order to be able to provide information
on systems having different traditions as regards public service media, representing
different stages in the implementation and development of public service media, and
being characterised by a variety of legal approaches vis-à-vis the remit. Furthermore, a
report on the relevant case-law and additional instruments both of the Council of Europe
and the European Union has been included.
Whereas this short study is designed to provide accurate and authoritative information
in regard to the subject matter covered, the EMR assumes no legal responsibility for the
personal views of the authors of the respective country reports. Nor can the EMR
guarantee the accuracy of the data included in this study, or accept responsibility for any
use made thereof. Although every effort has been made to ensure the accuracy of the
material and the integrity of the analysis presented herein, EMR cannot accept liability
for any action taken on the basis of the information.

The Institute of European Media Law wishes to express its gratitude to the national
experts who have offered their assistance in the preparation of the present study.

The original version of the present study was finalised in summer 2009 and did
therefore not cover important recent case-law, and in particular the Manole decision of
the European Court of Human Rights. Accordingly, the present 2nd edition contains
updated versions of the chapters on Europe and also on Poland, incorporating more
recent developments in legislation and jurisprudence.

Saarbrücken, 2 July 2009 and 4 September 2012
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Table of Contents

PREFACE/DISCLAIMER/ACKNOWLEDGEMENTS ........................................................................ 5
EXECUTIVE SUMMARY ........................................................................................................................ 9
INTRODUCTION .................................................................................................................................... 13
EUROPE ................................................................................................................................................... 15
I. INTRODUCTION ............................................................................................................................. 15
II. JURISPRUDENCE OF THE EUROPEAN COURT OF HUMAN RIGHTS ................................................... 16
1. Human rights guarantees’ and public service media .............................................................. 16
2. Case law regarding the freedom of broadcasting ................................................................... 19
3. Right of public service broadcasters to apply to the Court ..................................................... 32
4. Summary .................................................................................................................................. 34
III. CONVENTION, RECOMMENDATIONS, RESOLUTIONS AND DECLARATIONS OF THE
COUNCIL OF EUROPE .................................................................................................................... 34
1. Elaborating on the Art. 10 protection for public service media .............................................. 35
2. Summary .................................................................................................................................. 45
IV. JURISPRUDENCE OF THE COURTS OF THE EUROPEAN UNION ......................................................... 47
1. Introduction ............................................................................................................................. 47
2. Article 10 ECHR and its importance for measures aimed at protecting pluralism ................. 48
3. Admissibility of actions/the direct and individual concern for the purposes of
Article 230 EC ......................................................................................................................... 53
4. Remit and Supervision ............................................................................................................. 53
5. Summary .................................................................................................................................. 57
V. PRIMARY AND SECONDARY LAW OF THE EUROPEAN UNION/COMMUNITY ................................... 59
1. The Amsterdam Protocol on the system of public broadcasting.............................................. 60
2. The Resolutions of the Council and of the Member States of 1999, and of the European
Parliament of 2010 .................................................................................................................. 61
3. The Audiovisual Media Services Directive .............................................................................. 63
4. The Revised Commission Communication on the application of State aid rules to public
service broadcasting............................................................................................................... 63
5. Summary .................................................................................................................................. 64
VI. CONCLUSION AND PERSPECTIVES .................................................................................................. 64
FRANCE ................................................................................................................................................... 67
I. INTRODUCTION ............................................................................................................................. 67
1. Short overview of the (electronic) media market ..................................................................... 67
2. Legal framework for PSM ....................................................................................................... 72
II. JURISPRUDENCE OF THE CONSTITUTIONAL COURT ON THE ROLE, REMIT AND
INDEPENDENCE OF PSM ............................................................................................................... 77
1. General lines of the relevant jurisprudence ............................................................................ 77
2. Mission of PSM in detail ......................................................................................................... 83
III. POINTS FOR FURTHER DISCUSSION/CURRENT DEVELOPMENTS ...................................................... 92
GERMANY ............................................................................................................................................... 95
I. INTRODUCTION ............................................................................................................................. 95
1. Short overview of the (electronic) media market ..................................................................... 95
2. Legal framework for PSM ....................................................................................................... 97
II. JURISPRUDENCE OF THE CONSTITUTIONAL COURT ON THE ROLE, REMIT AND
INDEPENDENCE OF PSM ............................................................................................................. 102
1. General lines of the relevant jurisprudence .......................................................................... 102
2. Mission of PSM in detail ....................................................................................................... 111
III. POINTS FOR FURTHER DISCUSSION/CURRENT DEVELOPMENTS .................................................... 119
1. Constitutional context of the public service online activities ................................................ 119
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2. Conclusions and implementation in the 12th Amending Treaty ............................................. 120
HUNGARY ............................................................................................................................................. 123
I. INTRODUCTION ........................................................................................................................... 123
1. Short overview of the (electronic) media market ................................................................... 123
2. Legal framework for PSM ..................................................................................................... 125
II. JURISPRUDENCE OF THE CONSTITUTIONAL COURT ON THE ROLE, REMIT AND
INDEPENDENCE OF PSM ............................................................................................................. 128
1. General lines of the relevant jurisprudence .......................................................................... 128
2. Mission of PSM in detail ....................................................................................................... 133
III. POINTS FOR FURTHER DISCUSSION/CURRENT DEVELOPMENTS .................................................... 140
ITALY ..................................................................................................................................................... 143
I. INTRODUCTION ........................................................................................................................... 143
1. Short overview of the (electronic) media market ................................................................... 143
2. Legal framework for PSM ..................................................................................................... 146
II. JURISPRUDENCE OF THE CONSTITUTIONAL COURT ON THE ROLE, REMIT AND
INDEPENDENCE OF PSM ............................................................................................................. 150
1. General lines of the relevant jurisprudence .......................................................................... 150
2. Mission of PSM in detail ....................................................................................................... 153
III. POINTS FOR FURTHER DISCUSSION/CURRENT DEVELOPMENTS .................................................... 163
POLAND ................................................................................................................................................. 165
I. INTRODUCTION ........................................................................................................................... 165
1. Short overview of the (electronic) media market ................................................................... 165
2. Legal framework for PSM ..................................................................................................... 167
II. JURISPRUDENCE OF THE CONSTITUTIONAL COURT ON THE ROLE, REMIT AND
INDEPENDENCE OF PSM ............................................................................................................. 170
1. General lines of the relevant jurisprudence .......................................................................... 170
2. Mission of PSM in detail ....................................................................................................... 172
III. POINTS FOR FURTHER DISCUSSION/CURRENT DEVELOPMENTS .................................................... 180
SPAIN ...................................................................................................................................................... 181
I. INTRODUCTION ........................................................................................................................... 181
1. Short overview of the (electronic) media market. .................................................................. 181
2. Legal framework for PSM ..................................................................................................... 185
II. JURISPRUDENCE OF THE CONSTITUTIONAL COURT ON THE ROLE, REMIT AND
INDEPENDENCE OF PSM ............................................................................................................. 193
1. General lines of the relevant jurisprudence .......................................................................... 193
2. Mission of PSM in detail ....................................................................................................... 194
III. POINTS FOR FURTHER DISCUSSION/CURRENT DEVELOPMENTS .................................................... 201
COMPARATIVE ANALYSIS/CONCLUSION .................................................................................. 203
I. INTRODUCTION ........................................................................................................................... 203
1. The (electronic) media market ............................................................................................... 203
2. The legal framework for PSM ............................................................................................... 203
II. JURISPRUDENCE OF THE EUROPEAN AND NATIONAL COURTS ON THE ROLE, REMIT AND
INDEPENDENCE OF PSM ............................................................................................................. 205
1. Remit ..................................................................................................................................... 205
2. Scope of protection ................................................................................................................ 209
3. Requirements made for, and limits set on, the implementing legislation .............................. 211
4. Supervision (limits)................................................................................................................ 215
5. Summary ................................................................................................................................ 217
III. POINTS FOR FURTHER DISCUSSION/CURRENT DEVELOPMENTS .................................................... 218
IV. CONCLUSION .............................................................................................................................. 219
AUTHORS .............................................................................................................................................. 223
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Executive Summary
The Institute of European Media Law (EMR), Saarbrücken/Brussels, has been
commissioned by the European Broadcasting Union (EBU) to prepare a study, based on
the collection of information at the European level and from a number of countries, on
“Public Service Media According to Constitutional Jurisprudence”, including an
analytical summary.
The contractor has opted for the preparation of six country reports covering France,
Germany, Hungary, Italy, Poland and Spain in order to be able to provide information
on systems having different traditions and representing different stages in the
implementation and development of public service media (PSM), and being
characterised by a variety of legal approaches vis-à-vis the role, remit and
independence. Furthermore, a report on the relevant case-law and additional instruments
both of the Council of Europe and the European Union has been included.
Public service media are recognised as an important instrument to realise pluralism,
which in turn builds the base of a democratic society. Having this in mind the
jurisprudence is of particular interest because it elaborates on the role and remit of PSM.
It is not only important to provide a picture of the present state-of-the-art in terms of
protecting the freedom of broadcasting, particularly with a view to PSM; it also has to
be taken into account by any legislation on public service media especially against the
background of recent developments in new media services.
The study comes to the following main conclusions:
1. The European Court of Human Rights recognises the importance of the audiovisual
media for pluralism and diversity of opinion and the role of the press and the
audiovisual media as a “public watchdog”. In case a State decides to create a public
broadcasting system, domestic law and practice must guarantee, in particular by
ensuring independence and autonomy, that the system provides a pluralistic service.
2. The Committee of Ministers and the Parliamentary Assembly of the Council of
Europe confirm, on numerous occasions, the role of public service media for
political and cultural pluralism and their contribution to the diversity of opinion and
democracy.
3. The Court of Justice of the European Union acknowledges freedom of expression as
one of the fundamental principles of a democratic society; the Court of First
Instance also underlines the important role of public service broadcasting in view of
its cultural, social and democratic functions and its vital significance for ensuring
democracy, pluralism, social cohesion, and cultural and linguistic diversity.
4. The principle of pluralism and the essential role of public service broadcasting in
this context are also explicitly recognised by primary and secondary law of the
European Union.
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5. The European Court of Human Rights recognises the possibility of the legislator to
take implementation measures which restrict the freedom of broadcasting, but only
insofar as they can be justified by a legitimate aim. By defining and concretising
legitimate aims to restrict the freedom of broadcasting the Court implies a remit of
broadcasting. The State is put in a position to act as a/the ultimate guarantor, having
the obligation to develop the national media order according to these requirements,
to guarantee that the public service broadcasting system provides for a pluralistic
audiovisual service and to protect the whole communication process - not only in
terms of the individual exercise of the freedom but also in terms of a guarantee of
the pluralism of opinions.
6. The ECJ guarantees the protection of the freedom of expression within the
fundamental freedoms of the Treaty on the Functioning of the European Union
(TFEU).1 It derives from the freedom of expression as guaranteed inter alia by
Article 10 ECHR the possibility to justify a restriction on these fundamental
freedoms with the legitimate objective of maintaining pluralism and preserving the
diversity of opinions.
7. In its recent case law and decision-making practice, the Courts of the European
Union and the Commission reiterate the view that public service broadcasting is a
service of general economic interest under the TFEU. The Court highlights the
specificity of public service broadcasting, in particular the need for editorial
independence. Therefore, although public funding - via the licence fee or direct
grants - would in general be considered as State aid under Article 107(1) TFEU, it
benefits from the derogation for services of general economic interest on the basis of
Article 106(2) TFEU in so far as the former prevents public service organizations
from fulfilling their remit. Public funding should remain proportionate to the cost of
discharging the public service remit.
8. The freedom of broadcasting is protected by the constitution in all mentioned
countries. Even though it is sometimes not explicitly mentioned in the relevant
constitutional law, the freedom was developed mostly as a corollary of the freedom
of expression.
9. The countries’ ordinary laws all concretise the remit of public service broadcasting,
the structure and organisation of the broadcasting system and of the public service
broadcasters as well as its funding and supervision.
10. The constitutional courts all assign public service media an essential role for
pluralism and democracy through an offer of balanced diversity and by representing
the current opinions in society to the greatest possible extent. They further stress
their availability to provide comprehensive and objective information. Besides, the
contribution of public service media to culture and linguistic diversity is often

1 In the following, we will consistently refer to the denominations and numberings of the various
treaties of the European Union as amended by the Treaty of Lisbon. However, in the case of direct
quotations from decisions of the European institutions adopted before the Treaty came into effect,
we will provide the current numbering in brackets.
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