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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 5 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 6 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 7 8 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. 9 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. 10

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PUBLIC SERVICE MEDIA ACCORDING TO. CONSTITUTIONAL JURISPRUDENCE. —. THE HUMAN RIGHTS AND CONSTITUTIONAL. LAW DIMENSION OF THE ROLE,REMIT AND. INDEPENDENCE. Study Based on Reports and Comparative Analysis. (Europe (Council of Europe & European Union)
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