Ghana Broadcasting Study

A Report for the Government of Ghana and the World Bank

November 17 !""#

Ghana Broadcasting Study

$%N&'N&S Glossary((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((( ((((((((((((((((((((((iv )ore*ord((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((( ((((((((((((((((((((((v Ackno*ledgements((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((( ((((((((((((((((((vi '+ecutive Summary((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((( (((((1 1( An overvie* of broadcasting in Ghana(((((((((((((((((((((((((((((((((((((((((((((((((( (((((((((((((# 1(1 Background((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((( ((((((((((((# 1.1.1 Introduction...................................................................................... .........5 1.1.2 Early political context................................................................ ................5 1.1.3 The 1992 Constitution.......................................................................... ..... 1.1.! Ghana in the in"or#ation age.................................................................. ..$ 1(! ,olicy frame*ork((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((( (((((((((((((((((((((7 1.2.1 The Ghana ICT "or %ccelerated &e'elop#ent (olicy................................$ 1.2.2 )ational Teleco##unications (olicy................................................ .........* 1.2.3 )ational +edia (olicy......................................................... ......................9 1.2.! &igital S,itcho'er............................................................... ....................11(- Broadcasting landscape((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((( ((1" 1.3.1 Ghana Broadcasting Corporation............................. ..............................11.3.2 Co##ercial .roadcasting............................................ ...........................11 1.3.3 Co##unity .roadcasting.............................................. ..........................11 1.3.! Institutional radio..................................................................................... 12 1(. /egal frame*ork(((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((( (((((((((((((((((((((((((((1! 1.!.1 Constitution.......................................................................................... ...12 1.!.2 )ational +edia Co##ission %ct 1993......................... ...........................13 1.!.3 )ational Co##unications %uthority %ct 199 .........................................13 1.!.! International la, and standards.............................................. ................1! 1(# Best practice assessment((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((( (((((((((((((((1. 1.5.1 Introduction.................................................................................... .........1! 1.5.2 Guarantees o" /reedo# o" Expression ............................ ......................15 1.5.3 Broadcast Content.................................................................... ..............1* 1.5.! Broadcast 0egulation................................................. ............................21 1.5.5 (u.lic Ser'ice Broadcasting.............................................. .....................2! 1.5. Co##unity Broadcasting.................................................................. ......2 1.5.$ Co##ercial Broadcasting................................................................. ......2* 1.5.* 0adio /re1uency Spectru#................................................ ....................3!( 0nstitutional analysis of N1$ and N$A(((((((((((((((((((((((((((((((((((((((((((((( (((((((((((((((-!

!(1 National 1edia $ommission(((((((((((((((((((((((((((((((((((((((((((((((((((( ((((((((((((((((((((((((-! 2.1.1 Introduction.................................................................................... .........32 2.1.2 Go'ernance............................................................................ ................33 2.1.3 0egulatory and other operations......................................................... ....3! 2.1.! /unding and hu#an resources......................................... ......................3! 2.1.5 External relations and accounta.ility...................................................... .35 !(! National $ommunications Authority((((((((((((((((((((((((((((((((((((((((( ((((((((((((((((((((((-# 2.2.1 Introduction.................................................................................... .........35 2.2.2 Go'ernance............................................................................ ................3 2.2.3 0egulatory and other operations......................................................... ....3$ 2.2.! /unding and hu#an resources......................................... ......................3* 2.2.5 External relations and accounta.ility...................................................... .3* !(- $omparative Assessment of N1$ and N$A((((((((((((((((((((((((((((((((((( (((((((((((((((." 2.3.1 2egal and Constitutional "ra#e,or3................................................. .......!2.3.1 2egal and Constitutional "ra#e,or3 4continued5...................... ...............!1 2.3.2 Go'erning Body.......................................................................... ............!1 2.3.3 2icensing "ra#e,or3...................................................................... .........!2 2.3.! Content 0egulation................................................................... ..............!2 2.3.5 6ther regulatory po,ers................................................. ........................!2 2.3.5 6ther regulatory po,ers 4continued5...................................................... .!3 2.3. 0adio "re1uency spectru#......................................................... .............!3 2.3.$ (u.lic consultati'e procedures......................................... ......................!3 2.3.* /inancial arrange#ents................................................... .......................!3 2.3.9 6perational arrange#ents................................................... ...................!! 2.3.1- 6ther #atters................................................................................... .....!! -( Recommendations((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((( (((((((.# -(1 &he $onstitution and broadcasting policy(((((((((((((((((((((((((((((((((((((((((((((((((( ((((.# 3.1.1 Introduction.................................................................................... .........!5 3.1.2 Constitutional "ra#e,or3................................................ ........................!5 3.1.3 )ational +edia (olicy....................................................... ......................! -(! &o*ards a ne* legal frame*ork(((((((((((((((((((((((((((((((((((((((((( ((((((((((((((((((((((((((((.7 3.2.1 Constitutional .asis "or .roadcasting regulation.................................... ..!$ 3.2.2 Broadcasting ser'ice authorisation...................................... ...................!$ -(- Regulatory po*ers and responsibilities((((((((((((((((((((((((((((((( ((((((((((((((((((((((((((.2 3.3.1 %dditional regulatory po,ers o" the )+C...................................... ..........!* 3.3.2 %dditional )+C po,ers o" sanction............................... .........................!9 3.3.3 +aintaining e""ecti'e spectru# #anage#ent.................................. ........!9 3.3.! Studio technical re1uire#ents.............................................................. ...53.3.5 /uture spectru# planning..................................................... ..................5-(. Governance of the regulatory bodies((((((((((((((((((((((((((((((((((((((((((((((((((((((((( (((((#1 3.!.1 Go'ernance o" the )+C....................................................... ..................51 3.!.2 Go'ernance o" the )C%..................................................................... .....52 -(# ,lanning for future broadcasting development((((((((((((((((((((((((((((((((((((((( (((((((#! 3.5.1 &e'elop#ent o" sound .roadcasting...................................................... .52 3.5.2 (lanning "or digital .roadcasting.................................................. ...........53 3.5.3 /uture o" pu.lic ser'ice .roadcasting........................... ..........................5!

ii

-(3 Resource re4uirements(((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((( ((((((((((((((#. 3. .1 Building )+C capacity....................................................................... .....5! 3. .2 Building )C% capacity............................................... .............................55 3. .3 /unding o" the )+C............................................................................. ...55 3. .! /unding o" GBC.......................................................................... ............5 3. .5 )+C and GBC sta"" re#uneration...................................... ....................5 .( 0mplementation(((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((( (((((((((((((((((((((((#7 .(1 0mplementation strategy((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((( ((#7 !.1.1 Ensuring engage#ent o" all sta3eholders............................... ................5$ !.1.2 7or3ing ,ith the e8legislation process......................................... ...........5$ !.1.3 Building hu#an and institutional capacity........................ .......................5* !.1.! /inancing arrange#ents....................................................... ..................59 .(! 0ndicative &imetable((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((( (((((((3" !.2.1 (reparatory phase.............................................................. .................... !.2.2 /irst8year i#ple#entation.............................................. ......................... !.2.3 /uture considerations....................................................... ...................... 1 .(- Risks((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((( (((((((((((((((((((31 !.3.1 (olitical "actors......................................................... .............................. 1 !.3.2 6perational "actors...................................................... ........................... 1 .(. $onclusions((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((( (((((((((((((((((((((((((3! !.!.1 Su##ary and next steps...................................................... .................. 2 !.!.2 Concluding re#ar3s....................................................................... ......... 2 Anne+es((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((( ((((3%nnex 1. (roposed Content "or Broadcasting 2egislation.................... ........... ! %nnex 2. Co#parati'e %nalysis o" Broadcast 0egulation in %"rica..................$$omparative Analysis of Broadcast Regulation in the Africa Region Anne+ !(((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((( ((((((71 (((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((((( ((((((((((((((71 %nnex 3. (ersons and 6rganisations Consulted............................................9%nnex !. 0e"erences................................................................... ...................91

iii

Glossary
%C0%) 9 0I%0C %C:(0 %< BBC CSI CSC C)E%+E :%%C /+ GBC GC0) GIB% G/0CB GI/TE2 IB% IC%S% ICC(0 ICT ICT!%& IG/ IT< +CTs )C% )+C )T( 60T+ 0/I 00C 0)B S%BC TC0% <&:0 <)EC% Ao% %"rican Co##unication 0egulatory %uthorities )et,or3 %"rican Co##ission on :u#an and (eoples; 0ights %"rican <nion British Broadcasting Corporation Conseil Sup=rieur de l;In"or#ation 4Bur3ina /aso5 Conseil Sup=rieur de la Co##unication 4+ali5 Co#it> )ational de l;Egal %cc=s aux +>dias d;Etat 4+ali5 :aute %uthorit> de l;%udio'isuel et de la Co##unication 4Benin5 /re1uency +odulation Ghana Broadcasting Corporation Ghana Co##unity 0adio )et,or3 Ghana Independent Broadcasters; %ssociation Ghana /re1uency 0egistration and Control Board Ghana In'est#ent /und "or Teleco##unications Independent Broadcasting %uthority Independent Co##unications %uthority o" South %"rica International Co'enant on Ci'il and (olitical 0ights In"or#ation and co##unication technology In"or#ation and Co##unication Technology "or %ccelerated &e'elop#ent (olicy Internally Generated /unding International Teleco##unications <nion +ulti8purpose Co##unity Telecentres )ational Co##unications %uthority )ational +edia Co##ission )ational Teleco##unications (olicy 6""ice de 0adio Tele'ision du +ali 0adio /rance Internationale 0adio Co##unications Con"erence 0adio )ational du Bur3ina South %"rican Broadcasting Corporation 4(T?5 2i#ited Tan@ania Co##unications 0egulatory %uthority <ni'ersal &eclaration o" :u#an 0ights <nited )ations Econo#ic Co##ission "or %"rica Aoice o" %#erica

iv

)ore*ord
The )ational Teleco##unications (olicy adopted .y the Ca.inet and pu.lished in BanuaryC 2--5 points out the Go'ern#ent intent to de'elop an appropriate legal and regulatory "ra#e,or3 "or .roadcastingC in particularC "or a three8tier syste# o" pu.lic ser'iceC co##unity and co##ercial radio and tele'ision stations. The (olicy also expresses the Go'ern#ent;s intention to underta3e a co#prehensi'e re'ie, o" current .roadcasting policy and legislation in GhanaC ,ith the o.Decti'e o" "urther expanding access to .roadcast radio and tele'ision #edia "or all citi@ensC pro'iding "or the greatest di'ersity o" 'oice and languages and "or the preser'ation and ongoing creation o" indigenous content. It descri.es co##unity .roadcasting as a priority ,hich should .eco#e a ne, area "or de'elop#ent. This priority is also re"lected in the Ghana (o'erty 0eduction Strategy II. In %ugust 2--5C ,ith the assistance o" the 7orld Ban3C I co##issioned a #ission o" experts to analy@e the policyC legal and regulatory en'iron#ent "or .roadcasting in Ghana and to produce reco##endations "or us to consider and #o'e "or,ard. %t the end o" 6cto.erC the #ain "indings and reco##endations o" the #ission ,ere discussed and con"ir#ed at a ,or3shop ,ith di'erse sta3eholdersC including representati'es "ro# interested #inistriesC "ro# GBCC co##ercial .roadcastersC co##unity .roadcastersC and ci'il society organi@ationsC de'elop#ent partners and others. The preparation o" the e8Ghana (roDect presents an opportunity to gain ground in de'eloping #uch needed .roadcasting legislation to co#ple#ent our planned teleco##unications legislation. 0ationalisation o" the regulatory syste#s "or .oth teleco##unications and .roadcasting and strengthening o" the institutional capacities needed to expand the accessi.ility and di'ersi"ication o" .roadcasting can assist the air,a'es to .eco#e a 'i.rant 'ehicle "or de'elop#entC "or ci'ic participation and 'oice and "or production and disse#ination o" ne,sC in"or#ati'e progra#sC and entertain#ent. I" ,e grasp the opportunityC and ,or3 concertedly and consultati'elyC ,e can ta3e great strides in the next "e, #onths to put the #uch8 needed ena.ling "ra#e,or3 in place.

The :onora.le Ean8&apaah +inister o" Co##unications )o'e#.er 21C 2--5 88888888888888888888888888888888888888888888888888888888888888888888888888888888888888888888888888888888888888888 FFThe "indings and reco##endations in this report are those o" the authors in consultation ,ith the 7orld Ban3 and Ghanaian sta3eholdersC "or the consideration o" the go'ern#ent.

Ackno*ledgements
This report has .een prepared "or the Go'ern#ent o" Ghana and the 7orld Ban3 .y a tea# o" experts consisting o" Ste'e Buc3ley 4tea# leader5C Beri"i %pentengC %ly Bathily and 2u#3o +ti#de. The tea# has .een supported .y sta"" o" the 7orld Ban3 andC in particularC Eo"i Tsi3ata at the 7orld Ban3 Ghana o""ice and Tia &uerC Car#en +onico and Craig :a##er in 7ashington. The study .ene"ited greatly "ro# the assistance o" the Ghana %d'ocacy Steering Co##ittee "or a )e, Broadcasting 2a, andC in particularC 7ilna Guar#yne and 0u.y %#a.le. The ,or3 ,ould not ha'e .een possi.le ,ithout the ,illingness o" #any other people to gi'e o" their ti#e at short notice and to share their 3no,ledge and insights. 7e are especially grate"ul to the sta"" o" the )ational Co##unications %uthorityC sta"" and co##issioners o" the )ational +edia Co##issionC the +inisters and sta"" o" .oth the +inistry o" In"or#ation and the +inistry o" Co##unicationsC #e#.ers o" Ghana Independent Broadcasters %ssociation and Ghana Co##unity 0adio )et,or3C and sta"" o" Ghana Broadcasting Corporation. In addition ,e ha'e had the .ene"it o" input "ro# a nu#.er o" pro#inent scholars and experts together ,ith the sti#ulation and "eed.ac3 o" the participants in the Sta3eholders 7or3shop on a )e, Broadcasting 2a,. 7e hope that this report can #a3e a positi'e contri.ution to the collecti'e e""orts o" #any people to .ring a.out ne, de'elop#ents in .roadcasting "or the .ene"it o" Ghana.

vi

'+ecutive Summary
0ntroduction
There is a recognised and pressing need to update and rationali@e the legal and regulatory en'iron#ent "or .roadcasting in Ghana. &e'elop#ent o" the co##unity radio su.8sector is considered a high priorityC as ,ell as de'elop#ent o" a coherent legal and regulatory "ra#e,or3 "or .roadcasting as a ,hole. The purpose o" this Study is to pro'ide a "ra#e,or3 to guide in the dra"ting o" ne, .roadcasting legislation together ,ith associated regulations and institutional arrange#ents "or o'ersight o" the .roadcasting sector. The Study .uilds on and integrates an ongoing consultati'e process "acilitated .y the Ghana %d'ocacy Steering Co##ittee "or a )ational Broadcasting 2a,C and dra,s on international experience and standards. The Study consists o" "our sections. The "irst pro'ides an introductionC o'er'ie, and analysis o" the historical and present context o" .roadcasting in Ghana. The second pro'ides an assess#ent o" the t,o regulatory .odies ,ith responsi.ilities "or .roadcastingC the )ational +edia Co##ission 4)+C5 and )ational Co##unications %uthority 4)C%5. The third sets out conclusions and reco##endations "or the "uture regulation o" .roadcasting in Ghana. The "ourth proposes a plan "or i#ple#entation. %s a supple#ental %nnexC the Study pro'ides co#parati'e analysis o" "our %"rican countriesC three "ro# 7est %"rica 8 BeninC Bur3ina /aso and +ali 8 plus South %"rica. The initial "indings and reco##endations o" the Study ,ere presented to a ,or3shop o" di'erse sta3eholders ,hich ga'e .road 'alidation and constructi'e "eed.ac3C on the .asis o" ,hich the reco##endations ha'e .een re"ined and co#pleted.

Analysis
The analysis o" the ena.ling en'iron#ent "or .roadcasting in Ghana de#onstrates that the country has the "unda#entals in place. It has Constitutional guarantees o" "reedo# o" expression and pluralis# in the #edia since 1995C including a pu.lic .roadcasterC co##ercial radio and tele'ision and the .eginnings o" co##unity radio. :o,e'erC the regulatory "ra#e,or3 "or .roadcasting is only partially in place and responsi.ilities are di'ided across t,o regulatory .odies. The relationship .et,een Constitutional pro'isions and guarantees and actual regulatory practice is not o.'ious. There is a need to rationalise present arrange#ents and to introduce ne, regulatory "unctions not currently pro'ided "or or not ade1uately pro'ided. There is no dou.t that Ghana has #ade considera.le progress in ena.ling de'elop#ent o" .roadcasting .ut there are also clear signs that the present syste# is reaching its li#its and that the pu.lic interest in .roadcasting re1uires an updated regulatory "ra#e,or3. The Study #aps out the strengths and ,ea3nesses o" the present syste# including the capacities and "unctioning o" the t,o regulatory .odies. The #ain conclusion o" the analysis and o" the institutional assess#ent is that pri#ary responsi.ility "or .roadcasting regulation should .e 'ested in the )+CC the regulatory .ody ,ith a Constitutional #andate to guarantee the "reedo# and independence o" the #edia and to assure high 1uality #edia content. The respecti'e "uture roles o" )+C and the )C% ,ould need to .e clearly articulatedH and in its reco##endationsC the Study stri'es to do soC and pro'ides a guide to changes that ,ould i#pro'e the ena.ling en'iron#ent "or .roadcasting in Ghana.

Recommendations
1. )o Constitutional change is necessary in the short to #ediu# ter#C and the existing Constitutional "ra#e,or3 should .e assu#ed to .e the .asis "or .roadcasting policy and ne, .roadcasting legislation. 2. It is appropriate "or the )ational +edia (olicy to .e used .y all sta3eholders as a 3ey policy re"erence docu#ent "or the "uture de'elop#ent and the regulation o" .roadcasting in Ghana. 3. The )ational +edia Co##ission 4)+C5 should .e e#po,ered through appropriate legislation to assu#e its Constitutional #andate as the pri#ary .ody ,ith responsi.ility "or the regulation o" .roadcasting. !. The current procedures o" the )ational Co##unications %uthority 4)C%5 "or I"re1uency authorisationJ 4set out in the )ational Co##unications 0egulations 2--35 should .e replaced .y a ne, procedure "or I.roadcasting ser'ice authorisationJ under the regulatory responsi.ility o" the )+C. This ne, procedure should pro'ide "or the inclusion o" content in the criteria "or decision. 5. (ro'ision should .e #ade in la, "or the )ational +edia Co##ission to carry out the "ollo,ing additional regulatory "unctionsK authorisation o" .roadcasting ser'icesC including setting o" ter#s and conditions "or such ser'ices and ensuring co#plianceH regulation o" o,nership and control o" .roadcasting ser'icesH and regulation o" Ipro#ises o" per"or#ance.J . %#end#ents should .e #ade to the )ational +edia Co##ission %ct to strengthen its po,ers o" sanction and to pro'ide "or a "or#al appeals process in relation to )+C rulings on co#plaints. $. The )C% should continue to hold responsi.ility "or setting the technical para#eters "or .roadcast "re1uency assign#ent to ensure that .roadcast signals do not inter"ere ,ith one another or ,ith other users. *. The )C% should continue to hold responsi.ility "or the negotiation o" international "re1uency clearance "or .roadcast "re1uency assign#entsC as ,ith other radio "re1uency assign#ents. 9. The )C% should continue to hold the responsi.ility "or #onitoring technical in"ringe#ents ,ith respect to the technical para#eters o" "re1uency assign#ents "or .roadcasting ser'ices. 1-. Sanctions ,ith respect to technical in"ringe#ents o" a .roadcasting ser'ice authorisation should .e i#ple#ented only ,ith the prior authorisation o" the )+C except in the case o" serious inter"erence causing i##ediate har# to other usersC in ,hich case the )C% should .e a.le to act to suspend the ser'ice pending a decision o" the )+C. 11. Technical standards "or .roadcasters that are not connected to the use o" radio "re1uenciesC including standards "or studio and other recording e1uip#entC should ceaseC ,ith i##ediate e""ectC "ro# .eing part o" the regulatory re1uire#ents "or .roadcasting ser'ices.

12. The )+C should de'elopC through a pu.lic participatory process and in consultation ,ith the )C%C a plan "or the use and de'elop#ent o" that part o" the radio "re1uency spectru# that is assigned to .roadcasting in the Ghana )ational /re1uency (lanC including a "uture plan "or digital .roadcasting. 13. Consultation on .roadcast spectru# planning and assign#ent should .e institutionalised in the "or# o" a Boint /re1uency (lanning Group consisting o" representati'es "ro# .oth agencies. 1!. The )+C should underta3e a Doint re'ie, ,ith its constituencies into the criteria and procedures "or recruit#ent o" Co##issioners ,ith a 'ie, to esta.lishing a co##on set o" guidelines "or selection to i#pro'e transparency and to .etter ensure a Co##ission that is .road8.ased and includes rele'ant legalC #ediaC regulatory and other expertise. 15. The existing )+C %ct should .e a#ended to .ring greater clarity to the co##ittee structure and to strengthen )+C go'ernance including an Executi'e Board to dri'e policy and per"or#ance. 1 . The )+C should conduct and a re'ie, o" internal policies and procedures ,ith respect to rolesC responsi.ilities and code o" conduct o" Co##issionersC including handling o" con"licts o" interest. 1$. The )C% %ct should .e re"or#ed including changes to the go'ernance o" the )C% to guarantee its independence "ro# go'ern#ent and to esta.lish a principal purpose o" ser'ing the pu.lic interest. 1*. The )+C should co##ence a pu.lic consultation process on the de'elop#ent o" sound .roadcasting ser'ices leading to a plan "or the "uture de'elop#ent o" pu.licC co##ercial and co##unity ser'ices. 19. (ending legislati'e change and a "uture plan "or sound .roadcasting ser'icesC the )C% should gi'e an i##ediate priority to the authorisation o" ne, co##unity radio ser'ices .ased on and guided .y the criteria de'eloped .y the Ghana Co##unity 0adio )et,or3. 2-. The de'elop#ent o" co##unity radio should per#it trans#ission co'erage appropriate to the co##unity intended to .e ser'ed and ta3ing account o" the di""erent needs o" ur.an and rural ser'ices. 21. The )+C should re'ie, existing studies and co##ission additional social and econo#ic research into digital terrestrial tele'ision .roadcastingC including "easi.ility assess#ent and cost .ene"it analysis o" introducing the s,itcho'er "ro# analogue to digital distri.ution. This should .e carried out in consultation ,ith .roadcasters and the )C%. 22. /or the purpose o" #ediu#8ter# planning o" the de'elop#ent o" /+ sound .roadcastingC the i#pact o" ne, digital distri.ution syste#s should .e discounted andC insteadC a I,ait and seeJ approach should .e ta3en to the e#ergence o" digital sound .roadcasting. 23. The )+C should co##ence a pu.lic consultation into the "uture o" the Ghana Broadcasting Corporation 4GBC5 ,ith the ai# o" de'eloping a ne, statute "or GBC ,ith a clear and #ore detailed pu.lic ser'ice .roadcasting #andate. The

consultation should ha'e particular regard to consulting on GBC;s pu.lic ser'ice responsi.ilities and per"or#anceC its co##ercial acti'itiesC the de'elop#ent o" GBC online and digital ser'icesC and its "uture "unding. 2!. The )+C ,ill need to recruit a Technical &irector ,ith 3no,8ho, in the area o" radio "re1uency engineeringC a 2egal %d'isor ,ith 3no,8ho, in the #edia industry and additional pro"essional and ad#inistrati'e sta"" su""icient to operate an increased regulatory ,or3load. 25. 6ptions should .e explored "or recruiting and "unding the short ter# second#ent to the )+C o" a high le'el pro"essional ,ith experience in regulatory syste#s and institutional de'elop#ent 2 . )C% sta"" ,or3ing on .roadcast "re1uency assign#ent should recei'e orientation and training to .etter understand the policy goals and "unctions o" pu.lic interest .roadcasting regulation. 2$. There should .e an increase in go'ern#ent "unding to the )+CC to .e #atched .y internally generated "unding through ser'ice authorisation "ees paid .y .roadcasters 4currently paid to the )C% "or "re1uency authorisation5C and .y additional donor support "or short8ter# proDectsC including de'elop#ent o" the )+C;s institutional capacity. 2*. (arlia#ent should ta3e i##ediate steps to update the licence "ee to a 'ia.le le'el ,ith a .uilt8in protection against in"lation. 29. There should .e a re'ie, o" ter#s o" re#uneration o" senior sta"" in )+C and GBC to ensure they are co#petiti'e ,ith industry standards and su""icient to recruit 1uali"ied pro"essionals.

0mplementation
In the "inal section o" the Study a plan "or i#ple#entation is pro'ided. It stresses the i#portance o" engage#ent o" all sta3eholders and assu#es that "urther detailed consultation ,ill .e re1uired in the process o" preparing dra"t legislation. It sets out a ti#eta.le "or i#ple#entation .ased on .ringing ne, .roadcasting legislation into Ghana;s .roader e8legislation strategy and it pro'ides outline "inancial costs and an assess#ent o" the capacity .uilding and other #easures that ,ill .e re1uired. The study concludes thatC ,ith the co##it#ent o" all sta3eholders and ,ith clear political and institutional leadershipC legislati'e change and institutional re"or# can contri.ute to supporting the gro,th o" a di'erse .roadcasting landscape that ,ill sustain Ghana;s cultural heritage and contri.ute to its "uture de'elop#ent priorities.

1(
1.1

An overvie* of broadcasting in Ghana

Background
Ghana is a country o" rich ethnic and linguistic di'ersity a#ong its population o" 19 #illion inha.itants. It has o'er "i"ty languagesC hundreds o" dialects and a cultural heritage that dates .ac3 hundreds o" years. Ghana;s econo#ic potential and its strong social capital .ase ha'e set it apart "ro# #any other countries in the su.8region. In recent years it has experienced accelerated econo#ic expansion and it is one o" the "e, countries in su.8Saharan %"rica that is expected to achie'e so#eC i" not allC o" the +illenniu# &e'elop#ent Goals. In"or#ation and co##unication technology 4ICT5 has .een identi"ied as one o" the 3ey dri'ers "or "urther gro,th and de'elop#ent in Ghana. In co##on ,ith #ost %"rican countriesC Ghana has a long8esta.lished pu.licly8o,ned and "inanced .roadcasterC Ghana Broadcasting Corporation 4GBC5 ,hich pro'ides national and regional radio ser'ices and a national tele'ision ser'ice. GBC has played a #aDor role in engendering national identity and national de'elop#ent throughout the country;s late colonial and post8colonial history. 6'er the last ten years Ghana;s cultural heritage has .egun to "ind ne, "or#s o" expression in the #edia through the gro,th o" pri'ate co##ercial and co##unity radio .roadcasting. The li.eralisation o" .roadcasting has .rought a ne, pluralis# in the #edia ena.ling di""erent 'oices to .e heard and opinions to .e aired ho,e'er it has not produced a corresponding di'ersity or 1uality o" ser'ice. :o,e'erC the potential "or co##unity .roadcastingC in particularC a sector that can play a crucial role in gi'ing 'oice to poor and #arginalised groupsC is "ar "ro# realised ,ith still only a hand"ul o" ser'ices on the air. The policy context "or .roadcasting in GhanaC since the da,n o" independent .roadcastingC has .een rather unclear and this has contri.uted to the ,ea3nesses currently seen in the pro'ision o" .roadcasting ser'ices. There has .een no explicit legislati'e and regulatory "ra#e,or3 "or the de'elop#ent o" .roadcasting and tensions a#ong di""erent pu.lic agencies on their percei'ed role ha'e led to an o.'ious gap in policy #a3ing. There are ,idespread concerns that the present regulatory arrange#ents are not a su""icient guarantee o" Constitutional co##it#ents to "reedo# o" expression and to the independence o" the #ediaC nor do they ena.le the e""ecti'e de'elop#ent o" .roadcasting in the pu.lic interest.

1(1(1 0ntroduction

1(1(! 'arly political conte+t

Broadcasting and .roadcast regulation in Ghana #ust "irst .e understood in the context o" the colonial and post8colonial political history o" the country. <ntil the 1992 ConstitutionC the #ass #ediaC .roadcast and printC ,ere do#inated .y the State. BroadcastingC controlled through the Ghana Broadcasting Corporation 4GBC5C operated as a state #onopoly. State .roadcasting co##enced in Ghana in 1935C ,ith 0adio L6?C and later Gold Coast Broadcasting Ser'iceC under the political control o" the colonial regi#e and as an instru#ent o" colonial policy. %"ter independenceC in 195$C the

ser'ice ,as rena#ed GBCC .ut re#ained under go'ern#ent control and its progra##ing policies continued to .e closely lin3ed to the priorities o" the State. &uring its long history GBC has .een a tool o" nation .uilding and education .ut it has also ser'ed as an instru#ent o" propaganda and control. In 195$C under the leadership o" E,a#e )3ru#ahC Ghana .eca#e the "irst #odern %"rican country to achie'e independence "ro# colonial rule. By 19 !C ho,e'erC Ghana ,as legally a one8party state. (u.lic gatherings ,ere strictly controlledC press censorship ,as extensi'e and the state .roadcaster ,as reduced to little #ore than a go'ern#ent #outhpiece. The 19 coupC that o'erthre, )3ru#ah;s post8independence go'ern#entC placed the country under #ilitary rule until 19 9. It ,as during this "irst period o" #ilitary ruleC in 19 *C that the Ghana Broadcasting Corporation &ecree ,as adopted. The &ecree pro'ided GBC ,ith so#e independence .ut a""ir#ed go'ern#ent po,ers to appoint and to re#o'e the Board. The &ecree still pro'idesC todayC the statutory .asis "or the go'ernance o" GBC although the po,ers to appoint and re#o'e the Board no, reside ,ith the )ational +edia Co##ission. %lthough there ,ere "urther short episodes o" post8independence de#ocracyC "ro# 19 9 to 19$2C and again "ro# 19$9 to 19*1C "or the re#ainder o" the period .et,een 19 and 1993C Ghana ,as under #ilitary rule.

1(1(- &he 155! $onstitution

/ollo,ing #ulti8party elections in 1992 a de#ocratic go'ern#ent ,as inaugurated in Banuary 1993 under the 1992 Constitution. The Constitution pro'ides the present day guarantee o" the right to "reedo# o" speechC including "reedo# o" the press and other #edia. The Constitution sets out a su.stanti'e "ra#e,or3 "or the "reedo# and independence o" the #edia ,ith i#portant protections against state inter"erence. It includes the esta.lish#ent o" a )ational +edia Co##ission ,ith responsi.ility to pro#ote and ensure the independence o" the #edia "or #ass co##unication and in"or#ation. %t the ti#e the Constitution ,as ,rittenC the e#ergence and gro,th o" independent radio and tele'isionC and the need "or radio spectru#C a scarce pu.lic resourceC to .e regulated in the pu.lic interestC appears not to ha'e .een "ully considered as an essential aspect "or a "ree and independent #edia. It ,as only a"ter a test case .y 0adio EyeC ,hich too3 to the air,a'es ,ithout authorisation in 199!C that the need ,as accepted "or radio "re1uencies to .e assigned "or independent use. This responsi.ility ,as assu#ed not .y the ne,ly esta.lished )ational +edia Co##ission .ut .y the Ghana /re1uency 0egistration and Control BoardC a go'ern#ent institution esta.lished in 19$$ ,hen Ghana ,as under #ilitary rule. In 1995 the Ghana /re1uency 0egistration and Control Board 4G/0CB5 put out the "irst call "or applicants to operate .roadcasting ser'ices independent o" GBC. The "irst "re1uencies ,ere assigned in Buly 1995 "or ten co##ercial radio ser'ices to operate in %ccraC Eu#asi and Se3ondi8Ta3oradiC though no co##unity radio applications ,ere accepted at that ti#e. % "urther ten "re1uencies ,ere assigned in +ay 199 "or rural areas including three co##unity radio ser'ices. The G/0CB ,as supercededC in 199 C .y the )ational Co##unications %uthorityC ,hich has continued to assign "re1uencies to pri'ate co##ercial .roadcasting ser'ices. There are no, "our co##ercial tele'ision stations and o'er 1-- pri'ate co##ercial radio ser'ices despite a "ree@e in "re1uency assign#ents that lasted "ro# 1999 until

2--1. There ha'e .een no ne, co##unity radio "re1uency assign#ents since 199 although proposals ha'e .een su.#itted and the Go'ern#ent;s o,n )ational Teleco##unications (olicy descri.es co##unity .roadcasting as a priority ,hich should .eco#e a ne, area "or de'elop#ent. The )ational Co##unications %uthority ,as esta.lished .y %ct o" (arlia#ent ,ith the #andate to #anage the radio "re1uency spectru# including that "or .roadcasting. The allocation o" .roadcasting "re1uencies as ,ell as the associated regulatory "unctions and responsi.ilities "or .roadcasting ha'e since .een the su.Dect o" contentionC particularly ,ith respect to the di""erent roles and responsi.ilities o" the )ational +edia Co##ission and the )ational Co##unications %uthority. The )ational +edia Co##ission has argued that "re1uency allocation criteria should include co#prehensi'e guidelines on progra##ing and that conse1uently the Co##ission should ha'e pri#ary or at least co8decision #a3ing responsi.ility in .roadcast "re1uency allocation.

1(1(. Ghana in the information age

In recent years Ghana has experienced accelerated econo#ic expansion. The increasing use o" in"or#ation and co##unication technologies 4ICT5 has .een identi"ied as a 3ey dri'er "or gro,th. In response to the gro,ing social and econo#ic i#portance o" in"or#ation and co##unication technologiesC and in co##on ,ith #any go'ern#ents ,orld,ideC Ghana has engaged in co#prehensi'e policy re'ie, o" the in"or#ation and co##unications sector. The scope "or ne, approaches to harnessing co##unications "or de'elop#ent has also .een highlighted in ,or3 on the Ghana (o'erty 0eduction Strategy. The challenges arising "ro# con'ergence o" teleco##unications and .roadcasting technologies has .rought a ne, urgency to address the need "or a legislati'e "ra#e,or3 "or .roadcasting. Today this i#perati'e needs to .e considered ,ithin the "ra#e,or3 o" ,ider co##it#ents to in'est#ent in ICT and re"or# o" the ena.ling en'iron#ent "or teleco##unications. Co#ple#entary and concurrent attention to the ena.ling en'iron#ent "or .oth .roadcasting and teleco##unications is no, .oth "easi.le and ad'antageousC to "acilitate policy and regulatory coherence.

1.2

Policy framework
The )ational ICT (olicy and (lan &e'elop#ent Co##ittee ,as set up .y Go'ern#ent in 2--2C ,ith (ro"essor Cle#ent &@idonu as ChairC and tas3ed ,ith the preparation o" an ICT led socio8econo#ic de'elop#ent policy. The ,or3 included extensi'e nation8,ide consultation and ,as supported .y an in depth study co##issioned .y <)EC%1. (resident Bohn Eu"uor has descri.ed the policy in the "ollo,ing ter#sK IGo'ern#ent has de'eloped the MGhana ICT "or %ccelerated &e'elop#ent (olicy; to ser'e as a road#ap "or the de'elop#ent o" Ghana;s in"or#ation society and econo#y. The policy is to .e integrated ,ithin go'ern#ent;s three8pronged de'elop#ent strategy "or its second ter#C ,hich re'ol'es around the de'elop#ent and enhance#ent o" the nation;s hu#an resource .aseC the continued reDu'enation o" the (ri'ate SectorC and the entrench#ent o" Good Go'ernance.J2

1(!(1 &he Ghana 0$& for Accelerated 6evelopment ,olicy

1 2

UNECA (2003) Rt Hon President John Ku uor (2005)

The ICT "or %ccelerated &e'elop#ent (olicy 4ICT!%&53 sets out proposals "or the de'elop#entC deploy#ent and exploitation o" ICTs to address Ghana;s de'elop#ent challengesC to accelerate socio8econo#ic de'elop#ent and to i#pro'e the ,ell8.eing o" the people. The policy is pre#ised on the assess#ent that Ghana;s de'elop#ent can .e accelerated through the de'elop#ent and deploy#ent o" ICTs and responds to international calls to harness ICTs in the ser'ice o" de'elop#ent "or all. It sets the o'erall o.Decti'e "or Ghana to .eco#e a #iddle inco#eC in"or#ation8richC 3no,ledge8.ased and technology dri'en econo#y and society. The ICT!%& pro'ides a 3ey "ocal point "or policy re"or#C planning and in'est#ent in in"or#ation and co##unications capacity and is directly lin3ed to the Go'ern#ent;s core second ter# o.Decti'es and the pillars o" the Ghana (o'erty 0eduction Strategy. In the era o" con'ergence o" .roadcasting and teleco##unications the ICT!%& also "or#s a strategic policy "ra#e,or3 ,ithin ,hich the "uture de'elop#ent o" .roadcasting in Ghana #ust .e addressed. %#ong its speci"ic o.Decti'es the ICT!%& calls "or the creation o" the necessary ena.ling en'iron#entC the de'elop#ent o" the national hu#an resource capacity and the de'elop#ent and i#ple#entation o" the necessary legalC institutional and regulatory "ra#e,or3 and structure. The ICT!%& is to .e i#ple#ented through a nu#.er o" "our year rolling plans andC as a ,or3ing "ra#e,or3 it is en'isaged to ha'e an operational li"e o" "i"teen to t,enty years.

1(!(! National &elecommunications ,olicy

/ollo,ing the de'elop#ent o" ICT!%&C the Go'ern#ent o" GhanaC through the +inistry o" Co##unications prepared the )ational Teleco##unications (olicy! in 2--!C ,hich ,as adopted .y the Ca.inet and pu.lished in Banuary 2--5. The (olicy has .een de'eloped in consultation ,ith industry and ci'il society sta3eholders and includes proposals "or "urther policy and legislati'e re'ie, including legislation on .roadcasting. The .asic o.Decti'e set out is that e'ery citi@en and resident o" the 0epu.lic should ha'e a'aila.leC high 1ualityC and a""orda.le access to in"or#ation and co##unication ser'icesC in order to help trans"or# Ghana into a 3no,ledge8.ased society and technology8dri'en econo#y. %#ongst the speci"ic o.Decti'es o" the )ational Teleco##unications (olicyC is the pro#otion o" uni'ersal access "or all co##unities and population groups in Ghana to telephoneC internetC and #ulti#edia ser'ices .y the year 2-1-. 7ith respect to .roadcasting the )ational Teleco##unications (olicyC echoing the )ational +edia (olicy o" 2---C pro'ides "or a three8tier syste# o" pu.licC co##unity and co##ercial radio and tele'ision stationsK
,ublic Radio and &elevision StationsC i.e. those operated .y a pu.licly8o,ned statutory .odyC ,hich #ay .e ,holly or partially state8"undedC and ,hich are in all cases accounta.le to all strata o" the people as represented .y an independent .oardC and that ser'e the o'erall pu.lic interestC a'oiding one8sided reporting and progra##ing in regard to religionC political .elie"C cultureC race and gender. $ommunity Radio and &elevision StationsC i.e. those that are a.outC "orC .y and o" a speci"ic #arginali@ed co##unityC ,hose
3 4

Re"u#$i% o &h'n' (2004) (inistr) o Co**uni%'tions (2005)

o,nership and #anage#ent is representati'e o" the co##unityC ,hich pursues a participatory social de'elop#ent agendaC and ,hich is non8pro"itC non8sectarian and non8partisan. $ommercial Radio and &elevision StationsC i.e. those that are pri'ately o,ned and operated "or pro"it and controlled pri'ately .y independent co##ercial groups or indi'iduals.

The )ational Teleco##unications (olicy "urther expressly pro'ides the Go'ern#ent intention to underta3e a co#prehensi'e re'ie, o" current .roadcasting policy and legislation in GhanaC ,ith the o.Decti'e o" "urther expanding access to .roadcast radio and tele'ision #edia "or all citi@ensC pro'iding "or the greatest di'ersity o" 'oicesC languages and pro#oting the preser'ation and ongoing creation o" indigenous content. It co##its the )C%C ,ithin six #onths o" the adoption o" the policyC to speedily re'ie, all outstanding applications "or co##unity radio station "re1uency authorisationsC ,ith a presu#ption that such applications .e granted in the pu.lic interest. In addition to proposing policy and legislati'e re'ie,sC the )ational Teleco##unications (olicy notes the esta.lish#ent o" the Ghana In'est#ent /und "or Teleco##unications 4GIT/E25 as an in'est#ent "und "or collecting "inancial contri.utions "ro# teleco##unications sector licenseesC and distri.uting resources to pro#ote uni'ersal ser'ice and access. The (olicy states that the "und can .e used to de'elop local contentC esta.lish +ulti8 purpose Co##unity Telecentres 4+CTs5C and as a #atter o" particular priorityC to esta.lish Co##unity +edia Centres co#.ining co##unity .roadcasting ,ith internet ser'ices in under8ser'ed areas.

1(!(- National 1edia ,olicy

In1999 the )ational +edia Co##ission de'eloped a )ational +edia (olicy ,ith a group o" #edia operators and experts. The policy pro'ides a guide "or the operation and de'elop#ent o" all the 'arious #ass #edia as ,ell as "il# and the ,ire ser'ice. The pri#ary o.Decti'e o" the policy is to set standards and pro'ide .ench#ar3s "or #easuring #edia per"or#ance. %part "ro# a 'ision and a #issionC the policy sets out issues and principles that should guide the de'elop#ent o" the #edia in the country. It also pro'ides guidelines "or progra##e content and "or the operations o" the #edia. % "unda#ental goal o" the policy is that the #edia Ishall ser'e the ,ell8.eing o" all GhanaiansC especially the disad'antaged.J It regards all #edia and #edia ser'ices as a pu.lic trust and there"ore holds that the pu.lic interest shall .e para#ount in the operation o" all #edia. It also ai#s at pro#oting and ensuring a "reeC independentC dyna#ic and pu.lic spirited #edia that ,ill pro'ide access "or allC and not only so#eC o" our people to participate "reelyC "ully and creati'ely at the co##unityC national and glo.al le'els....J The policy places all #edia 8 printC .roadcastingC "il# and ,ire ser'ice 8 into three ,or3ing categoriesH pu.licC co##ercial and co##unity ,ith si#ilar de"initions as in the )ational Teleco##unication (olicy. The policy sets out general guidelines "or all the #edia as ,ell as #edia speci"ic guides. The general guidelines states a#ong others that a range o" #edia representing a di'erse plurality o" socialC culturalC and econo#ic interest and perspecti'es shall .e encouraged and pro#oted. %nd that these interests shall .e care"ully .alanced to preclude do#inance .yC or neglect o"C

any one sector. %lso the #edia shall proacti'ely pro#ote the gro,th o" local culture and pro'ide support "or the national education e""ort. The #edia speci"ic pro'isions on .roadcasting call "or transparent processes "or the registration o" o,nership and "or "re1uency allocation. The criteria "or "re1uency allocation should .e una#.iguous and include co#prehensi'e guidelines on progra##ing. The guidelines on progra##e content should set clear targets "or local content and "or pu.lic a""airs progra##es "or all radio and tele'ision stations. In addition progra##e content should re"lect and ad'ance Ghanaian cultural aspirations and 'alues.

1(!(. 6igital S*itchover

6n 5 Septe#.er 2--5 the )ational Co##unications %uthority placed a ne,spaper ad'ertise#ent announcing thatK Ithe issuance o" "re1uencies to operate (ri'ate Co##ercial TA and /+ 0adio Broadcasting Ser'ices has .een suspended. The a.o'e action has .eco#e necessary as a result o" the current exercise on the s,itch o'er "ro# analogue to digital syste#s as directed .y the IT< to all #e#.er states. The )C% ,ould ho,e'er consider applications "or "re1uencies to operate co##unity /+ .roadcasting ser'ices.J 7hile there are 'alid reasons "or suspension o" tele'ision licensing in the context o" a 'ia.le s,itcho'er plan "or digital tele'isionC it is not apparent that such plans are in place in Ghana. There is no international directi'e "ro# the IT< to s,itch o"" analogue /+ radio stations and "uture pro'ision "or digital sound .roadcasting is uncertain in the "ace o" co#peting technical syste#s. 7hereas countries are expected to de'elop their national strategy and policy "or digital .roadcastingC decisions are still to .e ta3en ,ithin the IT< at the 0adioco##unications Con"erence 2-- ,hich ai#s to har#onise the approach that all countries in the region ta3e regarding digital .roadcasting.

1.3

Broadcasting landscape
The national .roadcasting ser'ice co##enced in 1935 as a radio relay ser'ice under the na#e 0adio L6?C later Gold Coast Broadcasting Ser'ice. Through telegraphic connections and local relay trans#itters it sought to pro'ide a single national radio ser'ice co'ering the ,hole o" Ghana. 7ith independence the national .roadcaster ,as rena#ed Ghana Broadcasting Corporation 4GBC5. Tele'ision ,as introduced later .y GBC in 19 5. Today GBC ,holly o,nsC controls and operates three national radio ser'icesC ten regional radio ser'icesC and the national tele'ision channelC GTA. The national radio ser'ices consist o" t,o short ,a'e ser'icesC 0adio 1 and 0adio 2 4at the ti#e o" the study only 0adio 1 ,as operational5 plus %ccra8.asedC <nii1 /+C ,hich co'ers a large part o" the country ,ith a pri#arily English language ser'ice. 0adio 1 .roadcasts in six languages 8 %3anC GaC E,eC )@e#aC &ag.aniC and :ausa. The regional radio ser'ices co'er each o" the ad#inistrati'e regions. They ha'e their o,n progra##es and an e#phasis on local languages .ut all carry GBC national ne,s. The present #andate "or GBC is deri'ed "ro# the Ghana Broadcasting Corporation &ecree 19 *. It includes to .roadcast progra##es in the "ield o" cultureC educationC in"or#ation and entertain#entC to re"lect national progress and aspirationsC and to .roadcast in the #ain Ghanaian languages and in

1(-(1 Ghana Broadcasting $orporation

10

English. GBC held a .roadcasting #onopoly until 199! and is still a do#inant "orce in radio and tele'ision .roadcasting. 7hen the )ational Co##unications %uthority ,as esta.lished GBC ,as o.liged to relin1uish part o" its control o'er the .roadcast radio and tele'ision spectru#. :o,e'erC GBC retained control o'er other "re1uencies ,hich ha'e .een used later "or expansion or to assist the esta.lish#ent o" co##ercial .roadcasting ser'ices. In addition to the ser'ices that it ,holly o,ns and operatesC GBC holds 5- per cent o" the shares and appoints the Chair o" the Board o" +etro TAC the "irst co##ercial tele'ision ser'ice. It also has #inority shareholdings in the +ulti#edia Broadcasting Co#pany ,hich o,ns at t,o local co##ercial radio ser'ices 8 Boy /+ 4%ccra5 and %do# /+ 4Te#a5. In practical ter#s though GBC plays no role in the operations o" the pri'ate co#panies in ,hich it has shares and is yet to recei'e any inco#e "ro# the#. /unding "or GBC is partly pro'ided through direct go'ern#ent support "or salaries and partly internally generated through co##ercial acti'ities. Internally Generated /unding 4IG/5 accounts "or around 5- per cent o" the total re'enues o" GBC. IG/ is generated through ad'erts and "ro# selling airti#e to pri'ate production co#panies. In 2--! the annual go'ern#ent support ,as !2.illion Cedi 4a.out <S N!.5#illion5C ,hich contri.uted to,ards the costs o" a sta"" .ase o" around 15-- e#ployees. This go'ern#ent "unding is negotiated annually ,ith the +inistry o" /inance and (lanning and ad#inistered through the +inistry o" In"or#ation. %lthough there is a licence "ee collecta.le "ro# all tele'ision 'ie,ersC it has not increased "or #any years and is set at Dust 3C--- Cedi per year 4<S N-.3-5. %s a result o" in"lationC the tele'ision licence "ee is no, ,orth less than the costs o" collection.

1(-(! $ommercial broadcasting

There are o'er 1-- co##ercial radio stations and "our co##ercial tele'ision stations. Co##ercial radio stations are concentrated in the #aDor ur.an areas. There are around 25 in %ccra and a "urther 2 in Eu#asi. %lthough there are large nu#.ers o" stations in the #aDor ur.an areas there is not a great deal o" di'ersity in progra##ing. The #aDority o" the ser'ices are #usic .ased ,ith a popular #usic and easy listening "or#at and a predo#inance o" ,esternC #ainly <SC artists. %#ong the IindependentJ ser'ices on air in the capital are the BBC 7orld Ser'iceC 0adio /rance International and Aoice o" %#ericaC ,hich ha'e also .een granted "re1uency authorisation .y the )C%. In addition to +etro TAC a national co##ercial tele'ision ser'ice partially o,ned .y GBCC there are three other pri'ate tele'ision ser'ices 8 TA3C ,hich is a national co##ercial ser'ice under $- per cent +alaysian o,nershipC TA %"ricaC ,hich co'ers the greater %ccra region and pro'ides a distinct pan8 %"ricanist perspecti'e and cultural "or#atC and S3yy TAC a recently opened ser'ice in Ta3oradi. S3yy TA also o,ns co##ercial radio stations in Eu#asi and Ta3oradi.

1(-(- $ommunity broadcasting

The "irst three co##unity radio stations to .e assigned "re1uencies ,ere 0adio %daC 0adio (eace and 0adio (rogressC in +ay 199 . 0adio (rogress ,as the "irst to ta3e to the airC in /e.ruary 199$. %ll are on the air today. :o,e'erC since 199 no ne, "re1uencies ha'e .een assigned "or co##unity radio ser'icesC nor has a rationale "or stoppage .een gi'en. % "ourth radio ser'iceC 0oyals /+ in 7enchiC con'erted "ro# a co##ercial radio

11

assign#ent to a co##unity radio category. The on8air co##unity radio ser'ices are grouped together in the Ghana Co##unity 0adio )et,or3 ,hich is ad'ocating "or additional "re1uency assign#ent and regulatory re"or#.

1(-(. 0nstitutional radio

+ost o" Ghana;s pu.lic uni'ersities and so#e technical colleges ha'e their o,n radio station ser'ing the ca#pus or ,ider co##unity. The uni'ersities ha'e .een assigned /+ "re1uencies .y the )C% as )on8Co##ercialC Institutional Ser'ices. These ser'ices are operated .yC a#ong othersC the <ni'ersity o" Ghana 42egonI <ni'ersityC the E,a#e )3ru#ah <ni'ersity o" Science and Technology 4Eu#asi O 2 stations5C <ni'ersity o" Cape CoastC <ni'ersity o" Education 47inne.a5C <ni'ersity College o" +ining 4Tar3,a5C <ni'ersity o" &e'elop#ent Studies 47a ca#pus5C Cape Coast (olytechnic and :o (olytechnic.

1.4

Legal framework
The 1992 Constitution pro'ides the "unda#ental .asis "or the legal "ra#e,or3 "or .roadcasting in the country. The Constitution asserts in %rticle 214154a5 that all persons shall ha'e the right to I"reedo# o" speech and expressionC ,hich shall include "reedo# o" the press and other #ediaJ. %rticle 214154e5 additional asserts the right to Iin"or#ationC su.Dect to such 1uali"ications and la,s as are necessary in a de#ocratic societyJ. Chapter 12 o" the Constitution #a3es detailed pro'isions "or the "reedo# and independence o" the #edia and #ust "or# the .asis "or any .roadcasting la, in Ghana. Chapter 12 %rticle 1 2 pro'idesC inter aliaC that I"reedo# and independence o" the #edia are guaranteedJC that Isu.Dect to this Constitution and any other la, not inconsistent ,ith this ConstitutionC there shall .e no censorship in GhanaJC and that Ithere shall .e no i#pedi#ents to the esta.lish#ent o" pri'ate press or #ediaJ. %rticle 1 2435 states thatC in particularC Ithere shall .e no la, re1uiring any person to o.tain a license as a prere1uisite to the esta.lish#ent or operation o" a ne,spaperC Dournal or other #edia "or co##unication or in"or#ationJ. %rticle 1 ! o" the ConstitutionC pro'ides "or li#ited restrictions to the pro'isions o" sections 1 2 and 1 3 Ithat are reasona.ly re1uired in the interest o" national securityC pu.lic orderC pu.lic scrutiny and "or the purpose o" protecting the reputationsC rights and "reedo#s o" other personsJ. It has .een arguedC in the case o" 0epu.lic o" Ghana ' Independent +edia Corporation o" Ghana and othersC that %rticle 1 2435 precludes the licensing o" .roadcasters ho,e'er the Supre#e Court ruledC in 199 C that Iit ,as a restriction reasona.ly re1uired "or the protection o" Mnational securityC pu.lic orderC pu.lic #orality; and the MreputationC rights and "reedo# o" others;J ,ithin the #eaning o" %rticle 1 !. The Supre#e Court declined to rule on ,hether or not the Ghana /re1uency 0egistration and Control Board ,as the proper institution to .e designated to regulate "re1uencies "or .roadcasting as it considered that ,as not an issue in this case. %rticle 1 o" the Constitution "urther pro'ides "or the esta.lish#ent o" a )ational +edia Co##ission through an %ct o" (arlia#ent.

1(.(1 $onstitution

12

1(.(! National 1edia $ommission Act 155The )ational +edia Co##ission %ct 1993 4%ct )o. !!95 esta.lishes the )ational +edia Co##ission 4)+C5 pro'ided "or in the 1992 Constitution %ct. The "unctions o" the )ational +edia Co##issionC ,hich are set out .oth in %rticle 1 o" the Constitution and in the )+C %ctC include Ito pro#ote and ensure the "reedo# and independence o" the #edia "or #ass co##unication or in"or#ationJC and Ito ta3e all appropriate #easures to ensure the esta.lish#ent and #aintenance o" the highest Dournalistic standards in the #ass #ediaC including the in'estigationC #ediation and settle#ent o" co#plaints #ade against or .y the press or other #ass #ediaJ. The ConstitutionC and the )+C %ctC pro'ides "or the )+C Ito #a3e regulations .y Constitutional instru#ent "or the registration o" ne,spapers and other pu.licationsC except in ter#s o" any direction and control o'er the pro"essional "unctions o" a person engaged in the production o" ne,spapers or other #eans o" #ass co##unicationJ. It #a3es no speci"ic pro'ision "or the #a3ing o" regulations "or .roadcasting although this #ay .e in"erred "ro# the general "unctions set out in %rticle 1 o" the Constitution. %t the ti#e o" the esta.lish#ent o" the )+C there ,ere no independent .roadcast #edia. The Constitution pro'ides "or )+C to .e co#posed o" eighteen co##issioners. 6" theseC thirteen are no#inated "ro# na#ed constituencies 4Ghana Bournalists %ssociates no#inates t,o5 t,o are appointed directly .y the (resident and three are no#inated .y (arlia#ent.

1(.(- National $ommunications Authority Act 1553

The )ational Co##unications %uthority %ct 199 4%ct )o. 52!5 is esta.lished Ito regulate co##unications .y ,ireC ca.leC radioC tele'isionC satellite and si#ilar #eans o" technology "or the orderly de'elop#ent and operation o" e""icient co##unications ser'ices in Ghana and to pro'ide "or related purposesJ. In the a.sence o" any other pro'ision "or .roadcasting ser'ice authorisation this %ct has .een used to regulate esta.lish#ent o" .roadcasting ser'ices. The %ct esta.lishes the )ational Co##unications %uthority ,hich replaces the pre'ious Ghana /re1uency 0egistration and Control Board. The o.Dects o" the )C%C set out in Section 2 o" the )C% %ct include Ito ensure that throughout the countryC as "ar as practica.leC there are such co##unication ser'ices as are reasona.ly necessary to satis"y de#and "or the ser'icesJC and Ito ensure that co##unications syste# operators achie'e the highest le'el o" e""iciency in the pro'ision o" co##unication ser'ices and are responsi'e to custo#er and co##unity needsJ. Co##unications ser'ices and co##unication syste#s are 'ery .roadly de"ined to include ,ired and ,ireless trans#ission and the con'eyance o" soundsC 'isual i#ages and data. The )C% %ct pro'ides "or the Board o" the )C% to .e appointed .y the (resident and to consist o" a Chair#anC the &irector GeneralC one representati'e o" the )ational Security Council and "our other persons I,ith 3no,ledge in #atters rele'ant to the "unctions o" the %uthorityJ.

13

1(.(. 0nternational la* and standards

In the de'elop#ent o" .roadcasting la, "or Ghana account should .e ta3en o" international legal nor#s and standards in order to in"or# the de"ining principles. In particular this should include the pro'isionsC particularly those ,ith respect to "reedo# o" in"or#ation and expressionC in the <ni'ersal &eclaration o" :u#an 0ights 4<&:05 and the International Co'enant on Ci'il and (olitical 0ights 4ICC(05C e'en though Ghana is not a signatory to the ICC(0. In addition account should .e ta3en o" the Charter o" %"rican <nion and the &eclaration o" (rinciples o" /reedo# o" Expression in %"ricaC produced .y the %"rican Co##ission on :u#an and (eople;s 0ights 4%C:(05. Ghana is a signatory to the protocol esta.lishing the %C:(0. The &eclaration o" (rinciples on /reedo# o" Expression in %"rica o" the %C:(0 sets outC in (rincipal AC an opti#al approach to the regulation o" pri'ate and co##unity .roadcastingK
The .roadcast regulatory syste# shall encourage pri'ate and co##unity .roadcasting in accordance ,ith the "ollo,ing principlesK there shall .e e1uita.le allocation o" "re1uencies .et,een pri'ate .roadcasting usesC .oth co##ercial and co##unityH an independent regulatory .ody shall .e responsi.le "or issuing .roadcasting ser'ice authorisations and "or o.ser'ance o" ser'ice authorisation conditionsH licensing process shall .e "air and transparentC and shall see3 to pro#ote di'ersity in .roadcastingH and co##unity .roadcasting shall .e pro#oted gi'en its potential to .roaden access .y poor and rural co##unities to the air,a'es

1.5

Best practice assessment

1(#(1 0ntroduction
It is use"ul to assess the policyC legal and regulatory "ra#e,or3 "or .roadcasting in Ghana against good practices dra,n "ro# around the ,orld. The 7orld Ban3;s dra"t Guide to Good Practices in the Enabling Environment for Voice and Media pro'ides a co#prehensi'e #ap o" the topics that should .e addressed ,hen considering the ena.ling en'iron#ents "or 'oice and #edia. 7ithin each topicC the Guide distils the attri.utes o" good practices "ro# di'erse countries and illustrates the# ,ith country exa#ples. The current section o" this study co#pares rele'ant attri.utes o" good practiceC as highlighted in the Guide, ,ith the current practice in Ghana. /or the sa3e o" concisenessC this co#parison is presented in the "or# o" ta.les that sho,case each topic. 6n the le"t are short descriptions o" good practices in the ena.ling en'iron#ent that are rele'ant "or .roadcastingC ta3en "ro# the Guide. These are distillations o" good exa#ples "ro# se'eral countriesC including the <EC CanadaC <S%C /ranceC %ustraliaC South %"ricaC and Benin a#ong others. 6n the right are .rie" state#ents o" Ghana;s practice. These co#parisons can pro'e use"ul to the sta3eholders in GhanaC to help the# to identi"y i#pro'e#ents in the ena.ling en'iron#ent that ,ould encourage the gro,th o" pluralisticC di'erse .roadcasting ser'ices and encourage good 1uality Dournalis#C "reedo# o" expression and participatory co##unication.

14

1(#(! Guarantees of )reedom of '+pression

Attributes of best practice )reedom of '+pression is '+plicitly Guaranteed /reedo# o" expression is a "unda#ental hu#an rightC guaranteed in international la, and practically all national Constitutions. - .ee &ood Pr'%ti%es &uide 't "'/e 130 re eren%in/ Arti%$e 10 o the Euro"e'n Convention o Hu*'n Ri/hts1 "'/e 240 re eren%in/ the United N'tions Ch'rter1 "'/e 260 re eren%in/ Arti%$e 1, o the Univers'$ 2e%$'r'tion o Hu*'n Ri/hts0 the 3ntern'tion'$ Coven'nt on Civi$ 'nd Po$iti%'$ Ri/hts0 the A ri%'n Ch'rter on Hu*'n 'nd Peo"$es4 Ri/hts0 the A*eri%'n Convention on Hu*'n Ri/hts0 the 5irst A*end*ent to the United .t'tes4 Constitution0 'nd the Constitution o 6h'i$'nd1 'nd "'/e 2!0 re eren%in/ the Constitutions o Co$o*#i'0 5r'n%e0 Austr'$i'0 'nd Ni/eri'7 )reedom of 0nformation is '+plicitly Guaranteed The right to access in"or#ation held .y pu.lic authorities is a 3ey aspect o" the right to see3C recei'e and i#part in"or#ation and ideasH although this right is i#plicit in the guarantee o" "reedo# o" expressionC explicit protection re#o'es any dou.t as to this. - .ee &ood Pr'%ti%es &uide 't "'/e 2+0 re eren%in/ the Constitutions o Po$'nd0 .outh A ri%'0 the Phi$i""ines0 'nd Co$o*#i'7 )reedom of the ,ress71edia is '+plicitly Guaranteed %s ,ith "reedo# o" in"or#ationC "reedo# o" the #edia is i#plicitly included in the right to "reedo# o" expression. %t the sa#e ti#eC it is desira.le "or Constitutions to pro'ide explicit guarantees "or "reedo# o" the #ediaC in recognition o" the crucial role o" the #edia in gi'ing practical e""ect to the "ree "lo, o" in"or#ation and ideas in society. - .ee &ood Pr'%ti%es &uide 't "'/es 2+ 'nd 2,0 re eren%in/ .8eden4s 5reedo* o the Press A%t0 ' "'rt o .8eden4s Constitution1 'nd the Constitutions o 6h'i$'nd0 Ar/entin'0 'nd .outh A ri%'. $ommentary /reedo# o" expression is guaranteed .y %rticle 214154a5 o" the 1992 Constitution

The right to in"or#ation is guaranteed under the Constitution %rt. 21 4154"5. :o,e'er there is no legislation in place yet to ena.le its i#ple#entation. % ci'il society sponsored .ill on the 0ight to In"or#ation is currently under discussion.

The "reedo# o" the #edia is explicitly guaranteed .y %rt 1 2 in the Constitution.

15

1(#(!

Guarantees of )reedom of '+pression 8continued9

Attributes of best practice $ertain Specific ,rotections for :ournalists are '+plicitly Guaranteed The right to "reedo# o" expression i#plicitly pro'ides certain special protections "or Dournalists. 7hile these protections "lo, "ro# the right to "reedo# o" expressionC it is use"ul "or the# to .e explicitly guaranteed in the Constitution. - .ee &ood Pr'%ti%es &uide 't "'/e 300 re eren%in/ .8eden4s 5reedo* o the Press A%t0 ' "'rt o .8eden4s Constitution1 'nd Co$o*#i'4s Constitution7 $onstitutionally Authori;ed /imitations on the Right to )reedom of '+pression E'ery syste# o" la,C international and nationalC recogni@es certain restrictions on the right to "reedo# o" expression to protect o'erriding pu.lic and pri'ate interests. Such restrictionsC ho,e'erC #ust .e su.Dect to certain li#its i" the guarantee o" "reedo# o" expression is to .e e""ecti'e. <nder international la,C restrictions #ust #eet a stringent 38 part test ,hich re1uires the# to .e explicitly pro'ided .y la,C to pursue a legiti#ate ai# and to .e no #ore restricti'e than necessary to protect that ai#. - .ee &992 PRAC63CE. &U32E 't "'/e 310 re eren%in/ Arti%$e 1,(3) o the 3ntern'tion'$ Coven'nt on Civi$ 'nd Po$iti%'$ Ri/hts0 'nd the Constitutions o .outh A ri%' 'nd 6h'i$'nd1 'nd "'/e 320 re eren%in/ C'n'd'4s Ch'rter o Ri/hts 'nd 5reedo*s0 C'n'di'n .u"re*e Court :uris"ruden%e0 'nd 3ndi'4s Constitution7 Summary of ,ractice in Ghana %rt 1 2 4!5 o" the Constitution speci"ically protects editors and pu.lishers o" ne,spapers and other institutions o" the #ass #edia "ro# control and inter"erence .y the Go'ern#ent and "ro# harass#ent or .eing penali@ed "or their editorial opinions and 'ie,sC or the content o" their pu.lications.

%rt. 21 4!5 o" the Constitution i#poses li#itations on the right o" "reedo# o" expression and %rt 1 ! pro'ides "or li#itations on the "reedo# o" the #edia ,here it is necessary "or national securityC pu.lic orderC pu.lic #orality and "or protecting the reputationsC rights and "reedo#s o" other persons.

16

1(#(!

Guarantees of )reedom of '+pression 8continued9

Attributes of best practice 0nternational /a* is 6irectly Applicable International la, pro'ides "or strong guarantees o" "reedo# o" expression and these ha'e .een su.Dect to extensi'e and positi'e ela.oration .y 'arious authoritati'e international .odies. I" the national legal syste# directly incorporates these guaranteesC that can help pro'ide a strong #ini#u# .asis o" protection "or this right. - .ee &992 PRAC63CE. &U32E 't "'/e 330 re eren%in/ the Constitutions o Ar/entin'0 5r'n%e0 'nd J'"'n0 'nd the United Kin/do*4s Hu*'n Ri/hts A%t7 :udicial or %ther 1echanisms '+ist to 0nvoke and Apply $onstitutional Guarantees To .e e""ecti'eC there #ust .e ,ays in ,hich Constitutional guarantees can .e applied directly since other,ise they re#ain state#ents o" principle. In #ost countriesC anyone clai#ing a .reach o" his or her rights is a.le to approach a court ,ith the po,er to rule on this. - .ee &992 PRAC63CE. &U32E 't "'/e 340 re eren%in/ the Constitutions o the Unites .t'tes0 .outh A ri%'0 'nd 5r'n%e7 /egislation '+ists Setting out General Guarantees for )reedom of '+pression Constitutional guarantees areC al#ost .y de"initionC relati'ely .rie". %lthough they can .e ela.orated #ore "ully through Dudicial interpretationC it can also help i" their i#plications are spelt out in #ore detail in an ordinary statute. - .ee &992 PRAC63CE. &U32E 't "'/e 350 re eren%in/ &eor/i'4s ;'8 on 5reedo* o ."ee%h 'nd E<"ression)7 Summary of ,ractice in Ghana The Constitution does not explicitly incorporate International 2a,.

%rticle 33 o" the Constitution pro'ides "or persons ,ho allege that their rights and "reedo#s under the Constitution ha'e .een in"ringed to apply to the :igh Court "or redress.

)o such legislation exists.

1!

1(#(- Broadcast $ontent

Attributes of best practice $odes of $onduct Broadcasting la,s should not i#pose content restrictions o" a ci'il or cri#inal nature on .roadcastersC o'er and a.o'eC or duplicatingC those that apply to all "or#s o" expression. %ny ad#inistrati'e content rules should .e de'eloped in close consultation ,ith .roadcasters and should .e applied either on a sel"8regulatory .asis or .y a .ody ,hich is "ully independent o" go'ern#ent. - .ee &992 PRAC63CE. &U32E 't "'/e ,40re eren%in/ the United Kin/do*4s Co**uni%'tions A%t0 3ndonesi'4s =ro'd%'stin/ A%t0 Austr'$i'4s =ro'd%'stin/ .ervi%es A%t0 'nd :uris"ruden%e ro* ;'tvi'4s Constitution'$ Court1 'nd "'/e ,5 (re eren%in/ .outh A ri%'4s 3nde"endent =ro'd%'stin/ Authorit) A%t 'nd :uris"ruden%e o .outh A ri%'4s Constitution'$ Court7 Sanctions % range o" sanctions should .e a'aila.le "or .reach o" any ad#inistrati'e syste# o" content regulation so that any sanctions i#posed #ay .e proportionate to the har# done. - .ee &992 PRAC63CE. &U32E 't "'/e ,60 re eren%in/ the United Kin/do*4s 9 i%e o Co**uni%'tion (>9 %o*?) 'nd Content .'n%tions Co**ittee0 3ndonesi'4s =ro'd%'stin/ Co**ission (>KP3?)0 'nd Austr'$i'4s =ro'd%'stin/ .ervi%es A%t7 ,ositive $ontent Rules General positi'e content o.ligationsC re1uiring the# to carry certain #aterial or types o" #aterialC #ay .e placed on co##ercial and co##unity .roadcasters .ut only ,here their purpose and e""ect is to pro#ote .roadcast di'ersity .y enhancing the range o" #aterial a'aila.le to the pu.lic. +ore onerous o.ligations #ay .e placed on pu.lic .roadcastersC gi'en their pri#ary o.ligation to pro#ote the pu.lic;s right to 3no, through a di'ersity o" 'oices and perspecti'es in .roadcasting. +any countries i#pose special positi'e content rules in the context o" elections. - .ee &992 PRAC63CE. &U32E 't "'/e ,+0 re eren%in/ the United Kin/do*4s 9 i%e o Co**uni%'tion (>9 %o*?)0 3ndonesi'4s #ro'd%'stin/ $'80 'nd :uris"ruden%e o 3t'$)4s Constitution'$ Court7 Summary of ,ractice in Ghana )o legislation exists speci"ically to regulate or guide .roadcasting content. % docu#ent titled Broadcasting StandardsC ,hich gi'es a guide on progra##e content and ad'ertisingC prepared .y the )ational +edia Co##ission in close consultation ,ith the .roadcasters is not legally .inding. The Ghana Bournalist %ssociation has a Code o" Ethics ,hich pro'ides "or its #e#.ers including those in .roadcasting.

The Co#plaints Settle#ent Co##ittee o" the )ational +edia Co##ission can order the pu.lication o" a retractionC apology or a reDoinder to an earlier pu.lication or can Idirect disciplinary actionJ. )o other sanctions exist "or content regulation.

There are no en"orcea.le positi'e content rules. The la, setting up GBCC the national .roadcasting organisation 4GBC5C )2C &ecree 19$* 4)2C& 22 5 only gi'es the Corporation a general guide under the o.Dects chapter o" the la,.

1+

1(#(-

Broadcast $ontent 8continued9

Attributes of best practice National Security7,ublic %rder 0estrictions #ay .e i#posed on "reedo# o" expression to protect national security9pu.lic orderC .ut these should .e care"ully and narro,ly dra,n so that they only prohi.it expression that poses a serious ris3 o" i##inent and serious har# to a legiti#ate national security9pu.lic order interest. In particularC a close nexus should .e re1uired .et,een the expression and the ris3 o" har# .e"ore the expression #ay .e sanctioned. - .ee &992 PRAC63CE. &U32E 't "'/e !00 re eren%in/ the United N'tions Hu*'n Ri/hts Co**ittee1 "'/e !10 re eren%in/ the Euro"e'n Court o Hu*'n Ri/hts0 the 2e%$'r'tion o Prin%i"$es on 5reedo* o E<"ression in A ri%'0 the 3nter@ A*eri%'n 2e%$'r'tion o Prin%i"$es on 5reedo* o E<"ression0 'nd :uris"ruden%e o the Unites .t'tes4 .u"re*e Court1 'nd "'/e !20 re eren%in/ :uris"ruden%e ro* .outh A ri%'n %ourts 'nd 3sr'e$4s .u"re*e Court0 's 8e$$ 's .outh Kore'4s N'tion'$ .e%urit) A%t7 <ate Speech International la, re1uires States to prohi.it ad'ocacy o" hatred that constitutes incite#ent to discri#inationC hostility or 'iolence 4see ICC(0C %rticle 2-5. :o,e'erC such la,s should .e clearly and narro,ly dra"tedC and should ne'er .e used to penali@e the disse#ination o" true state#ents or state#ents ,hichC ,hile o""ensi'eC do not constitute incite#ent. - .ee &992 PRAC63CE. &U32E 't "'/es !3 'nd !40 re eren%in/ :uris"ruden%e o C'n'd'4s .u"re*e Court1 'nd "'/e !40 re eren%in/ :uris"ruden%e ro* 5r'n%e4s Cour de C'ss'tion 'nd .outh A ri%'4s Constitution'$ Court7 Summary of ,ractice in Ghana The restricti'e pro'isions in the Constitution ha'e not really .een tested except in one caseC the right to go on pu.lic de#onstration. % decision o" the Supre#e Court a""ir#ed that one did not need per#ission "ro# the police or any authority to go on de#onstration .ut that the police need to .e in"or#ed in ad'ance so they could pro'ide protection and ensure pu.lic order. This led to the (u.lic 6rder %ct.

)o speci"ic la,s or sanctions exist on hate speech.

1,

1(#(- Broadcast $ontent 8continued9

Attributes of best practice %bscenity 0estrictions on o.scene #aterials should .e de"ined clearly in la, and apply only to #aterial ,hich either depicts a cri#inal act or ,hich poses a serious and direct ris3 o" har#C "or exa#ple to children. - .ee &992 PRAC63CE. &U32E 't "'/es !5 'nd !60 re eren%in/ :uris"ruden%e o C'n'd'4s .u"re*e Court0 .outh Kore'4s Constitution'$ Court0 'nd 3ndi'4s .u"re*e Court7 ,rotection of the Administration of :ustice 0estrictions on "reedo# o" expression to protect the i#partiality and "airness o" the syste# o" Dustice should .e li#ited to those #easures ,hich are strictly necessary to achie'e these ends. They should not pro'ide protection "or Dudges against legiti#ate criticis# or pre'ent open pu.lic discussion a.out the ad#inistration o" Dustice. - .ee &992 PRAC63CE. &U32E 't "'/es !+ 'nd !,0 re eren%in/ :uris"ruden%e o Ken)'4s Hi/h Court0 the United Kin/do*4s Conte*"t o Court A%t 'nd re$'ted :uris"ruden%e0 'nd :uris"ruden%e o .outh A ri%'4s Constitution'$ Court7 )alse Ne*s Blan3et .ans on the pu.lication o" "alse #aterialC si#ply .ecause it is inaccurateC are illegiti#ate. - .ee &992 PRAC63CE. &U32E 't "'/e !,@+10 re eren%in/ Prin%i"$e ! o the 3nter@ A*eri%'n 2e%$'r'tion o Prin%i"$es on 5reedo* o E<"ression1 :uris"ruden%e o C'n'd'4s .u"re*e Court0 Peru4s Constitution'$ 6ri#un'$0 Anti/u' 'nd ='r#ud'4s Judi%i'$ Co**ittee o the Priv) Coun%i$1 'nd :uris"ruden%e o U/'nd'4s .u"re*e Court7 Summary of ,ractice in Ghana 6.scenity is treated generally under the Cri#inal Code %ct 19 -. It has hardly .een used against any #edia house "or se'eral decades.

The ad#inistration o" Dustice is protected .y the Co##on 2a, rules o" conte#pt o" courtC so is #ainly le"t to the discretion o" the Dudges. The Supre#e Court rules ha'e an added pro'ision o" actions that could Scandalise the Court. This has .een used once to Dail a ,riter ,ho pointed out in an article in a ne,spaper that a #e#.er o" the panel had ,rongly 1uoted a state#ent .y a personality in order to .uttress his argu#ent to reach a decision in the court.

There is a pro'ision "or /alse )e,s in the Cri#inal Code

1(#(- Broadcast $ontent 8continued9

Attributes of best practice ,olitical '+pression7'lections (olitical expression is at the heart o" the guarantee o" "reedo# o" expression and should recei'e particular protection. This is especially true during elections and e""ecti'e #easures should .e ta3en to ensure that the electorate is in"or#ed .oth a.out the technical aspects o" 'oting and the 'arious issues at sta3e in the election. - .ee &992 PRAC63CE. &U32E 't "'/e +20 re eren%in/ :uris"ruden%e o ('$'8i4s Hi/h Court0 3t'$)4s Constitution'$ Court0 'nd the Phi$i""ines4 .u"re*e Court7 %thers %ny other restrictions on content should .e precisely and narro,ly dra,n and li#ited to ,hat is necessary to protect a legiti#ate interest. - .ee &992 PRAC63CE. &U32E 't "'/es +3 'nd +40 re eren%in/ :uris"ruden%e o the Euro"e'n Court o Hu*'n Ri/hts 'nd 3re$'nd4s .u"re*e Court1 ' nu*#er o %'ses in 5r'n%e1 'nd the :uris"ruden%e o .outh Kore'4s Constitution'$ Court7 Summary of ,ractice in Ghana %rticle 55 4115 and 4125 o" the Constitution re1uires that all political parties .e gi'en "air opportunity to present their progra##es to the pu.lic .y ensuring e1ual access to the state8o,ned #edia. %rticle 55 4125 re1uires that Iall presidential candidates are gi'en the sa#e a#ount o" ti#e and space in the state8o,ned #edia to present their progra##es to the peopleJ. The Supre#e court a""ir#ed these pro'isions in a decision in 199!. The )ational +edia Co##ission has also de'eloped Guidelines on (olitical 0eporting "or all the #edia. There are no other restrictions on content.

1(#(. Broadcast Regulation

Attributes of best practice 0ndependent Regulatory Body The regulation o" .roadcasting should .e the responsi.ility o" an independent regulatory .ody esta.lished on a statutory .asis ,ith po,ers and duties set out explicitly in la, and ,ith "or#al accounta.ility to the pu.lic. The independence and institutional autono#y o" the regulatory .ody should .e ade1uately and explicitly protected "ro# inter"erenceC particularly o" a political or econo#ic nature. - .ee &992 PRAC63CE. &U32E 't "'/e +60 re eren%in/ .outh A ri%'4s Constitution0 5r'n%e4s ;'8 on 5reedo* o Co**uni%'tion0 'nd the United Kin/do*4s Co**uni%'tions A%t7 $ommentary The legal and ad#inistrati'e independence o" the )ational +edia Co##ission is assured .y the Constitution and the )+C %ct 1993 4%ct !!95 ho,e'er dependence on the +inistry o" /inance "or its .udget has ha#pered its de'elop#ent and e""ecti'eness. The )C% ,hich currently authorises the use o" .roadcast "re1uency is a go'ern#ent agency directly under the control o" the +inister o" Co##unications

1(#(.

Broadcast Regulation 8continued9

,o*ers and 6uties %ny independent .ody that exercises regulatory po,ers in .roadcasting should ha'e a principal duty to "urther the pu.lic interest in relation to .roadcasting and should ha'e particular regard to the right to "reedo# o" opinion and expression and to the desira.ility o" "ostering a plurality and di'ersity o" ser'ices. - .ee &992 PRAC63CE. &U32E 't "'/es +! 'nd ++0 re eren%in/ .outh A ri%'4s 3nde"endent Co**uni%'tions Authorit) (3CA.A)0 5r'n%e4s Consei$ .u"erieur de $4Audiovisue$ (C.A)0 'nd the United Kin/do*4s 9 %o*)7 Appointment of 1embers The appoint#ents process "or #e#.ers o" a regulatory .ody ,ith responsi.ility "or .roadcasting should .e "airC openC transparent and set out in la,. It should .e designed to ensure that #e#.ers ha'e rele'ant expertise or experience and carry a di'ersity o" interests and opinions representati'e o" society as a ,hole. The appoint#ents process should not .e do#inated .y any particular political party or co##ercial interest and the #e#.ers appointed should .e re1uired to ser'e in an indi'idual capacity and to exercise their "unctions in the pu.lic interest at all ti#es. - .ee &ood Pr'%ti%es &uide 't "'/es ++ 'nd +,0 re eren%in/ .outh A ri%'4s 3CA.A0 5r'n%e4s C.A0 C'n'd'4s R'dio@te$evision 'nd 6e$e%o**uni%'tions Co**ission (CR6C)0 'nd =enin4s Hi/her Authorit) or Audiovisual and Communications (HACA). The )ational +edia Co##ission is accepted .y all as the .ody to o'ersee content. Its principal "unction is to pro#ote and ensure the "reedo# and independence o" the #edia "or #ass co##unication or in"or#ation .ut it has no po,ers under the )+C %ct to en"orce the Broadcast Standards or to i#ple#ent the )ational +edia (olicy.

%ppoint#ent to the )C% Board is entirely .y go'ern#entC ,ith no pu.lished criteriaC a closed shortlist and decision o" the (resident. /or appoint#ent to the )+CC the Constitution lists di'erse groups in society to .e represented 4including .roadcasters and Dournalists5 plus representati'es o" the (resident and (arlia#entC "or a total o" 1* #e#.ers. +e#.ers "unction in their indi'idual capacity and elect their o,n Chair. Groups na#ed in the Constitution ho,e'er deter#ine their o,n syste# o" selection o" their representati'es and this is not transparent. %lthough the groups are di'erse they o.'iously do not represent all sections o" society. There is no speci"ic pro'ision "or representation o" ,o#enC youthC #arginali@ed co##unities etc.

1(#(.

Broadcast Regulation 8continued9

Attributes of best practice &ransparency and $onsultation In exercising regulatory po,ers o'er .roadcastingC regulatory .odies should .e re1uired .y la, to operate openly and transparently and to "acilitate pu.lic participation in their a""airsC including through pu.lic consultation on their policiesC regulations and procedures. %ll decisions o" regulatory .odies should .e acco#panied .y ,ritten reasons. - .ee &992 PRAC63CE. &U32E 't "'/e ,00 re eren%in/ .outh A ri%'4s 3CA.A 'nd the United Kin/do*4s Co**uni%'tions A%t7 ,ublic Accountability %ny pu.lic .ody that exercises regulatory po,ers in .roadcasting should .e su.Dect to Dudicial o'ersight and should .e "or#ally accounta.le to the pu.lic through a #ulti8party .ody such as the parlia#ent or a parlia#entary co##ittee in ,hich all #aDor parties are represented. The regulatory .ody should .e re1uired .y la, to pu.lish an annual plan o" acti'ities and an annual report. - .ee &992 PRAC63CE. &U32E 't "'/es ,0 'nd ,10 re eren%in/ .outh A ri%'4s 3CA.A 'nd the United Kin/do*4s 9 i%e o Co**uni%'tions A%t7 )unding Arrangements 0egulatory .odies responsi.le "or .roadcasting should .e ensured a relia.le and recurrent inco#e su""icient to carry out their acti'ities e""ecti'ely and ,ithout inter"erence. The "unding "ra#e,or3 should .e set out in la,. - .ee &992 PRAC63CE. &U32E 't "'/e ,10 re eren%in/ .outh A ri%'4s 3CA.A 'nd the United Kin/do*4s 9 i%e o Co**uni%'tions A%t7 Summary of ,ractice in Ghana )either the )+C nor )C% are re1uired .y la, to operate pu.licly. The )+C has in'ol'ed practitioners in de'eloping its policies and guidelines .ut is not re1uired .y la, to do so. The )C% has no o.ligation to do pu.lic consultations in granting or re"using .roadcasting "re1uencies. 7here they re"use to assign a "re1uency to an applicant the )C% is re1uiredC .y section 2$ 425 o" the )C% %ctC to co##unicate the reasons "or their decision to the applicant. In practiceC applications to the )C% #ay also re#ain in a pending state ,ithout ,ritten decision. &ecisions o" the )+C Co#plaints Settle#ent Co##ittee are su.Dect to Dudicial re'ie,. The )+C also su.#its an annual report on its operations to (arlia#ent and this is #ade pu.lic. The )C% is re1uired to report to the +inister o" Co##unications ,ho in turn su.#its a report to (arlia#ent. Its decisions are ulti#ately su.Dect to Dudicial re'ie,.

The )+C depends al#ost entirely on direct central go'ern#ent su.'ention and this is pro'ided "or in the Constitution. It so#eti#es recei'es #inor support "ro# donors. The )C% is "unded .y the "ees it charges "ro# lease o" spectru# and "re1uency authorisation.

1(#(# ,ublic Service Broadcasting

Attributes of best practice Status and 0ndependence )ational .roadcasting ser'ices that are in pu.lic o,nership and control should .e prescri.ed in la, as .odies that are editorially independent o" go'ern#entC ser'e the pu.lic interest and are protected against political and co##ercial inter"erence - .ee &992 PRAC63CE. &U32E 't "'/e 1000 re eren%in/ .outh A ri%'4s =ro'd%'stin/ Cor"or'tion (.A=C) 'nd Austr'$i'4s =ro'd%'stin/ Cor"or'tion (A=C)7 6uties and Responsibilities The duty o" a national pu.lic ser'ice .roadcaster should .e to ser'e the pu.lic interest in .roadcasting throughout the territory and "or the ,hole o" the population o" the country in ,hich they are esta.lished. In particularC the pu.lic ser'ice .roadcaster should pro'ide a ,ide range o" inno'ati'e and high 1uality progra#s designed to educateC in"or# and entertain the general pu.lic ta3ing account o" ethnicC culturalC religious and regional di'ersity. - .ee &992 PRAC63CE. &U32E 't "'/es 100 'nd 1010 re eren%in/ .outh A ri%'4s =ro'd%'stin/ A%t 'nd Austr'$i'4s Ch'rter o the A=C7 Governance The pu.lic ser'ice .roadcaster should .e go'erned .y an independent go'erning .oard ,ith po,ers and duties set out in la, including to #onitor and ensure co#pliance ,ith pu.lic ser'ice duties and responsi.ilitiesC to ensure highest standards o" pro.ity and 'alue "or #oney and to pro'ide "or#al accounta.ility to the general pu.lic. - .ee &992 PRAC63CE. &U32E 't "'/es 101 'nd 1020 re eren%in/ .outh A ri%'4s .A=C 'nd 3CA.A0 'nd Austr'$i'4s A=C 'nd the Austr'$i'n =ro'd%'stin/ Cor"or'tion A%t7 Summary of ,ractice in Ghana The national .roadcasterC Ghana Broadcasting Corporation 4GBC5C is protected "ro# go'ern#ental control and inter"erence .y the Constitution. The Constitution under %rt. 1 * and1 9 gi'es the )ational +edia Co##issionC an independent Constitutional .odyC po,er to appoint the Board and &irector General. :o,e'er GBC relies on direct go'ern#ent support through the +inistry o" In"or#ation "or a.out 5- per cent o" its recurrent .udget and 1-- per cent o" its capital .udget. Chapter 12 o" the Constitution and the o.Dects set "or the corporation in its esta.lish#ent statute pro'ide a "ra#e,or3 "or GBC to operate as a true pu.lic ser'ice .roadcaster. % #ore detailed #andate spelling out its role ,ould ho,e'er help to clari"y its current status. The .igger pro.le# #a3ing it di""icult "or the corporation to ,or3 e""ecti'ely appears to .e due to #anagerialC "inancial and pro"essional shortco#ings and pressure to generate re'enue "ro# co##ercial sel"8"inancing. There also no #echanis#s to ensure GBC #eets its pu.lic ser'ice o.ligations.

The la, esta.lishing GBCC Ghana Broadcasting Corporation &ecree19 * 4)2C& 22 5 has .een a#ended .y %rt. 1 * o" the Constitution regarding appoint#ent o" the Board. The .oard is no, appointed .y the )ational +edia Co##ission in consultation ,ith the (resident. )either the Constitution nor the &ecree set out in detail #onitoring #echanis#s to ensure co#pliance o" the pu.lic ser'ice #andate. There are also no speci"ic rules "or pu.lic accounta.ility.

1(#(# ,ublic Service Broadcasting 4continued5

1embership of the Governing Board The appoint#ents process "or the go'erning .oard should .e "airC openC transparent and set out in la,. It should .e designed to ensure the #e#.ers ha'e rele'ant expertise or experience and carry a di'ersity o" interests and opinions representati'e o" society as a ,hole. The appoint#ents process should not .e do#inated .y any particular political party or co##ercial interest and the #e#.ers appointed should .e re1uired to ser'e in an indi'idual capacity and to exercise their "unctions in the pu.lic interest at all ti#es. - .ee &992 PRAC63CE. &U32E 't "'/es 103 'nd 1040 re eren%in/ .outh A ri%'4s .A=C =o'rd 'nd Austr'$i'4s A=C =o'rd7 6irector General &ay8to8day #anage#ent o" the pu.lic ser'ice .roadcaster should .e the responsi.ility o" a &irector General appointed .y the go'erning .oard "or a "ixed ter#C ,hose tenure #ay .e rene,ed. The &irector GeneralC along ,ith his or her editorial sta""C should ha'e responsi.ility "or setting editorial policy and ta3ing editorial decisions. - .ee &992 PRAC63CE. &U32E 't "'/e 1040 re eren%in/ the 2ire%tor o Austr'$i'4s A=C7 )unding The pu.lic ser'ice .roadcaster should .e predo#inantly "unded "ro# pu.lic "unding through a "unding #echanis# designed to protect its independence. It #ay raise additional re'enues "ro# direct su.sidiesC co##ercial acti'ities and donations. - .ee &992 PRAC63CE. &U32E 't "'/e 1050 re eren%in/ $i%ensin/ ees in 5r'n%e 'nd in the United Kin/do*7 There are no laid do,n criteria "or the appoint#ent o" the go'erning Board. It is done .y the )ational +edia Co##ission in consultation ,ith the (resident.

The day to day #anage#ent o" GBC is .y the &irector General ,ho is appointed .y the )ational +edia Co##ission in consultation ,ith the (resident. :e9she is appointed "or a "ixed ter# o" "i'e years ,hich #ay .e rene,ed .ased on per"or#ance. The Board and the &irector General set policy. Editorial sta"" i#ple#ent policy and ta3e day8to8day decisions.

GBC is "unded through sale o" co##ercial air ti#e on its ser'ices and direct go'ern#ent su.'ention through the +inistry o" In"or#ation. The sale o" air ti#e has i#pacted negati'ely on GBC;s pu.lic ser'ice operations as co##ercial interests in progra##ing has gro,n o'er the years against other progra##es. TA licence "ees collected .y GBC and #eant to cushion the Corporation "ro# direct go'ern#ent "unding has not .een success"ul as the "ee is rather lo,C the e1ui'alent o" <S N-.3per year and (arlia#ent has .een reluctant to ha'e it increased.

1(#(3 $ommunity Broadcasting

Attributes of best practice Recognition and 6ifferentiation Co##unity .roadcasting should .e recogni@ed in la, as a distinct type o" .roadcasting to .e supported and encouraged through speci"ic and explicit licensing arrange#ents that guarantee "air and e1uita.le access to radio spectru# and to econo#ic resources. - .ee &992 PRAC63CE. &U32E 't "'/es 10! 'nd 10+0 re eren%in/ .outh A ri%'4s 3nde"endent =ro'd%'stin/ Authorit) A%t 'nd =ro'd%'stin/ A%t1 'nd re%o/nition o %o**unit) #ro'd%'stin/ in Co$o*#i'0 AeneBue$'0 Austr'$i'0 C'n'd'0 'nd the United Kin/do*)7 6efinition and $haracteristics Co##unity .roadcasting can .e de"ined as independent .roadcasting that is pro'ided "or the good o" #e#.ers o" the pu.lic in a speci"ic location or "or a particular co##unity o" interestC that in'ol'es the co##unity in the operation o" the ser'iceC and ,hose pri#ary purpose is to deli'er social gain rather than to operate on a co##ercial .asis or "or the pri'ate "inancial gain o" indi'iduals lin3ed to the ser'ice. - .ee &992 PRAC63CE. &U32E 't "'/es 110 'nd 1110 re eren%in/ .outh A ri%'4s 3nde"endent =ro'd%'stin/ Authorit) A%t 'nd =ro'd%'stin/ A%t0 's 8e$$ 's Austr'$i'4s =ro'd%'stin/ .ervi%es A%t1 C'n'd'4s R'dio@6e$evision 'nd 6e$e%o**uni%'tions Co**ission1 'nd the United Kin/do*4s Co**unit) R'dio 9rder7 /icensing ,rocess 2icensing processes "or co##unity .roadcasting should .e "airC openC transparent and set out in la,C and should .e the responsi.ility o" an independent licensing .ody. - .ee &992 PRAC63CE. &U32E 't "'/es 113 'nd 1140 re eren%in/ .outh A ri%'4s 3CA.A 'nd Austr'$i'4s =ro'd%'stin/ Authorit))7 Summary of ,ractice in Ghana Co##unity radio is not yet recognised in la, as a distinct type o" .roadcasting although the )C% does so in practice. :o,e'er )C% has no clear criteria and has .een ar.itrary in decisions on co##unity radio. Both the )+C )ational +edia (olicy and )ational Teleco##unications (olicy recognise co##unity radio as a distinct type o" .roadcasting

The policy state#ents descri.ed a.o'e are consistent ,ith this de"inition .ut no de"inition is pro'ided "or in la, or regulation.

Co##unity radio is not recognised in the )C% %ct and its "re1uency authorisation process is not essentially di""erent "ro# that o" pri'ate co##ercial radio. 0ules appear to .e largely at the discretion o" the )C% and so#e applications ha'e .een 3ept pending since 1999 despite co##it#ents in the )ational Teleco##unications (olicy to eli#inate the .ac3log ,ithin six #onths o" the adoption o" the policy in Banuary 2--5.

1(#(3 $ommunity Broadcasting 8continued9

/icense &erms and $onditions 2icense ter#s and conditions "or co##unity .roadcasting should .e consistent ,ith the o.Decti'es o" .roadcast regulation and .e designed to ensure that the co##unity .roadcasting ser'ice characteristics are #aintained "or the duration o" the license period. - .ee &992 PRAC63CE. &U32E 't "'/e 1150 re eren%in/ .outh A ri%'4s Co**unit) =ro'd%'stin/ ;i%ense 'nd $i%ensin/ in Austr'$i'7 )unding Arrangements Co##unity .roadcasting ser'ices #ay dra, on a di'ersity o" "unding sources according to local circu#stances. There should .e no restrictions on "unding sources other than ,hat is necessary to #aintain the character o" the ser'ice and to a'oid un"air co#petition. - .ee &992 PRAC63CE. &U32E 't "'/e 1160 re eren%in/ undin/ 'rr'n/e*ents in .outh A ri%'0 C'n'd'0 'nd the Nether$'nds7 ,ublic )unding Co##unity .roadcasting #ay .e supported .y pu.lic "undingC including direct pu.lic su.sidies. 7here there is a regular and guaranteed syste# o" pu.lic "unding this should .e ad#inistered through an independent pu.lic .ody esta.lished "or this purpose. - .ee &992 PRAC63CE. &U32E 't "'/es 11! 'nd 11+0 re eren%in/ Austr'$i'4s Co**unit) =ro'd%'stin/ 5ound'tion0 ;td71 5r'n%e4s Fond de soutien l'expression radiophonique (.u""ort 5und or R'dio E<"ression)1 'nd the Nether$'nds4 R'dio 'nd 6e$evision ;i%ensin/ .ervi%e7 )C% proposed ter#s and conditions "or co##unity radio in %pril 2--5 ,hich are not consistent ,ith the circu#stances and needs o" co##unity radio in Ghana includingC a#ong other constraintsC a proposed #axi#u# 53# radius "or trans#ission. The Ghana Co##unity 0adio )et,or3 has o.Dected to this restriction.

The )C% guidelines #entioned a.o'e restrict areas o" "undingC in particular they are not to ta3e inco#e "ro# ad'ertising or progra##e sponsorship o" any 3ind. The Ghana Co##unity 0adio )et,or3 has also o.Dected to this restriction.

There is no pro'ision "or pu.lic "unding "or co##unity radio and they recei'e no pu.lic "unds. %ccording to the )ational Teleco##unications (olicyC GI/TE2 is to support co##unity #edia de'elop#ent.

1(#(7 $ommercial Broadcasting

Attributes of best practice Regulation 0egulation o" pri'ate co##ercial .roadcasting should .e designed to #eet the pu.lic interest in a range and di'ersity o" ser'ices and to ensure "air co#petition .et,een pri'ate .roadcasters. Co##ercial .roadcasters nor#ally re1uire a license to operate. - .ee &992 PRAC63CE. &U32E 't "'/e 1200 re eren%in/ .outh A ri%'4s 3CA.A1 'nd "'/e 1210 re eren%in/ C'n'd'4s R'dio@te$evision 'nd 6e$e%o**uni%'tions Co**ission7 /icensing ,rocess 2icensing processes "or co##ercial .roadcasting should .e "air and transparentC and should .e o'erseen .y an independent .ody. 2icense conditions should ser'e the o'erall goals o" .roadcast regulation and should not .e ar.itrary or oppressi'e. C- .ee &992 PRAC63CE. &U32E 't "'/e 1220 re eren%in/ "ro%edures o C'n'd'4s R'dio@te$evision 'nd 6e$e%o**uni%'tions Co**ission 7D Rules on $oncentration of %*nership 0ules pre'enting undue concentration o" o,nership in the .roadcast sectorC or .et,een that sector and the print #edia sectorC are legiti#ate as long as their actual purpose and practical e""ect is to pro#ote di'ersity in the pro'ision o" .roadcast ser'ices. - .ee &992 PRAC63CE. &U32E 't "'/es 122 'nd 123 (re eren%in/ .outh A ri%'4s 98nershi" Con%entr'tion $'8s 'nd 3ndonesi'4s =ro'd%'stin/ A%t)7 Summary of ,ractice in Ghana There are no speci"ic regulations "or pri'ate co##ercial .roadcasting. The )C% ,hich grants "re1uencies has no say in progra##ing and the )+C ,hich should .e #onitoring content is not in'ol'ed in the licensing process and does not ha'e the capacity to regulate content. There is 'ery little di'ersity in progra##ing and no rules on "air co#petition.

The )C% ,hich grants "re1uencies to pri'ate co##ercial .roadcasters is a go'ern#ent agency ,hich reports to the +inister o" Co##unications. There are no clear pu.lished criteria "or decisions on applications "or "re1uencies. It is not 3no,n ,hether the )C% has explicitly re"used any applicant a "re1uency to .roadcast .ut so#e applications ha'e .een outstanding "or #ore than "i'e years and the reasons "or the delay ha'e not .een #ade o""icially 3no,n. There are no pu.lished rules "or handling co#peting applications "or ser'ices in the sa#e area and no pro'ision "or pu.lic co##ents on applications. The )C% %ct and )C% 0egulations ha'e no pro'isions on .roadcasting o,nership concentration and cross8#edia o,nership. The )ational +edia (olicy o" the )+C discusses the need "or rules on concentration and cross #edia o,nership. Currently #ost operators are single ser'ice pro'iders .ut there is so#e #ultiple o,nership o" radio .roadcasting ser'ices.

1(#(7 $ommercial Broadcasting 8continued9

Attributes of best practice Rules on )oreign %*nership 0estrictions #ay .e i#posed on the extent o" "oreign o,nership and control o'er .roadcastersC as long as these restrictions ta3e into account the need "or the .roadcasting sector as a ,hole to de'elop and "or .roadcasting ser'ices to .e econo#ically 'ia.le. % total .an on "oreign in'est#ent in the .roadcasting sector is not legiti#ate. C- .ee &992 PRAC63CE. &U32E 't "'/e 1230 re eren%in/ United .t'tes Co**uni%'tions A%t (1,340 's '*ended)7D ,ublic service re4uirements (ri'ate co##ercial .roadcasting #ay .e su.Dect to pu.lic ser'ice re1uire#ents in relation to content and co'erage ,here they can .e expected to hold a do#inant position in the #ar3et. Such re1uire#ents should .e designed only to "urther pu.lic interest o.Decti'es and should not .e disproportionate in scope such that they threaten the 'ia.ility o" the ser'ice. CE<'*"$es 're #ein/ 'dded to &992 PRAC63CE. &U32E7D ,ublic Advertising (u.lic ad'ertising .udgets spent on co##ercial .roadcasting should .e allocated on a strictly non8discri#inatory and co##ercial .asis. C- .ee &992 PRAC63CE. &U32E 't "'/e 1240 re eren%in/ United .t'tes .u"re*e Court ru$in/ in 1,,57D Subsidies (u.lic su.sidies #ay .e o""ered to co##ercial .roadcasters in order to pro#ote a range and di'ersity o" ser'ices. They should .e allocated according to set criteria pursuant to a "air and transparent process o'erseen .y an independent .ody. Summary of practice in Ghana There are no en"orcea.le rules on o,nership .y "oreigners. The )ational +edia (olicy proposes #inority sta3e "or "oreigners in .roadcasting ser'ices. The )C% %ct allo,s any Ghana registered co#pany to o,n a .roadcast ser'iceC regardless o" its co#position. In practice there are "oreigners ,ho "ully o,n or ha'e a #aDority sta3e in .oth radio and tele'ision "ir#s. External ser'ices o" other countriesC including A6%C 0/I and BBC ha'e .een granted /+ .roadcasting "re1uencies in %ccra.

There are no rules re1uiring pri'ate co##ercial stations to co#ply ,ith any pu.lic ser'ice re1uire#ents or o.ligations.

There are no rules regarding such ad'ertising

)o pu.lic su.sidies are gi'en to pri'ate co##ercial stations.

C- .ee &992 PRAC63CE. &U32E 't "'/e 1250 re eren%in/ 'n'$o/ous "r'%ti%e o
indire%t 'nd dire%t su#sidies "rovided to ne8s"'"ers in 5r'n%e0 'nd the %riteri' or these su#sidies7D

1(#(2 Radio )re4uency Spectrum

Attributes of best practice Radio Spectrum The radio spectru# is a li#ited natural resource that should .e #anaged in the pu.lic interest through transparent and accounta.le regulatory "ra#e,or3s. Spectru# planning should .e designed to ensure "air and e""icient use o" this resource. It should respect the need "or e1uita.le distri.ution .et,een di""erent geographical areas and it should al,ays ensure su""icient spectru# is a'aila.le "or educationalC hu#anitarian and other non8co##ercial usesC including pu.lic ser'ice and co##unity .roadcasting. - .ee &992 PRAC63CE. &U32E 't "'/e 12! (re eren%in/ the r'dio s"e%tru* 'nd reEuen%) 'uthoriB'tion in the United Kin/do*)7 Spectrum ,lanning for Broadcast Services Co##ission to #anage that part o" the radio spectru# that has .een speci"ically allocated "or .roadcast use should .e assigned to the regulator responsi.le "or .roadcast licensing in order that it can .e independently #anaged ,ithin the "ra#e,or3 o" .roadcast policy o.Decti'es. Spectru# planning "or .roadcast ser'ices should ensure a "air and e1uita.le distri.ution .et,een pu.lic ser'iceC co##ercial and co##unity .roadcasters. C.ee &992 PRAC63CE. &U32E 't "'/e 12+0 re eren%in/ 5r'n%e4s0 United .t'tes4 'nd 6h'i$'nd4s '$$o%'tion o '#out 20F o the 5( #'nd to non@"ro it $o%'$ 'nd %o**unit) #ro'd%'stin/7D 1ust=carry Rules I+ust carryJ rules are a use"ul regulatory #echanis# to guarantee access to ca.le and satellite net,or3s "or pu.lic interest usesC including pu.lic ser'ice and co##unity .roadcasters. Broadcast la, should ensure that .roadcast regulators ha'e po,ers to #a3e I#ust carryJ rulings and a duty to do so ,here such rulings are in the pu.lic interest. - .ee &992 PRAC63CE. &U32E 't "'/e 12, (re eren%in/ &er*'n)4s 3nter@.t'te A/ree*ent on =ro'd%'stin/ .ervi%es)1 'nd "'/e 130 (re eren%in/ ."'in4s C'#$e 6e$e%o**uni%'tions A%t 'nd Arti%$e 26 o the Ro)'$ 2e%ree)7 Summary of ,ractice in Ghana The )C% has pro'ided a copy o" the )ational /re1uency (lan .ut has not pro'ided detailed spectru# policy and planning in"or#ation "or the .roadcast .ands. It is not 3no,n ,hat plans it has in place or on ,hat policies these #ight .e .ased. The )C% does not ha'e a clear and speci"ic #andate to #anage the radio spectru# in the pu.lic interest.

There is no agree#ent .et,een the )+C and )C% on ,ho should #anage spectru# "or .roadcasting .)C% asserts its responsi.ility and this is currently supported .y la,. The )+C is the Constitutional .ody responsi.le "or the #edia and although it currently has no hand in spectru# planning "or .roadcast ser'icesC international .est practice ,ould lin3 spectru# planning "or .roadcast ,ith .roadcast regulation.

There are no such pro'isions in the )+C or )C% acts and currently no Ghana8.ased satellite operators or #aDor ca.le net,or3s to ,hich this ,ould apply

1(#(2

Radio )re4uency Spectrum 8continued9

,ublic Access $hannels (u.lic access channels are channels on ca.le or satellite net,or3s that ha'e .een set aside "or non8co##ercial pu.lic use such as educationalC co##unity or pu.lic ser'ice progra##ing. Broadcast la, should ensure the regulator is a.le to insist on the inclusion o" pu.lic access channels as a condition o" licensing a ca.le or satellite operator. - .ee &992 PRAC63CE. &U32E 't "'/e 130 (re eren%in/ "u#$i% '%%ess te$evision %h'nne$s in &er*'n))1 'nd "'/e 131 (re eren%in/ "u#$i% '%%ess te$evision %h'nne$s in the United .t'tes)7 There are no such pro'isions in the )+C or )C% acts and currently no Ghana8.ased satellite operators or #aDor ca.le net,or3s to ,hich this ,ould apply

!(
2.1

0nstitutional analysis of N1$ and N$A

National Media ommission
The )ational +edia Co##ission 4)+C5 ,as set up on the $ Buly 1993 .y the )ational +edia Co##ission %ct 1993 4%ct )o. !!95 .ased on the ter#s o" Chapter 12 o" the 1992 Constitution. The "unctions o" the )+C areK
4a5 to pro#ote and ensure the "reedo# and independence o" the #edia "or #ass co##unication or in"or#ationH 4.5 to ta3e all appropriate #easures to ensure the esta.lish#ent and #aintenance o" the highest Dournalistic standards in the #ass #ediaC including the in'estigationC #ediation and settle#ent o" co#plaints #ade against or .y the press or other #ass #ediaH 4c5 to insulate the state8o,ned #edia "ro# go'ern#ental controlH 4d5 to #a3e regulations .y Constitutional instru#ent "or the registration o" ne,spapers and other pu.licationsC except that the regulations shall not pro'ide "or the exercise o" any direction or control o'er the pro"essional "unctions o" a person engaged in the production o" ne,spapers or other #eans o" #ass co##unicationH and 4e5 to per"or# such other "unctions as #ay .e prescri.ed .y la, not inconsistent ,ith this Constitution.

!(1(1 0ntroduction

In its +ission State#entC the )+C states that it exists Ito pro#ote "reeC independent and responsi.le #edia so as to sustain de#ocracy and national de'elop#entJ. In particular it states that it is co##itted to #aintaining its independence "ro# political in"luenceC ensuring that state o,ned #edia are independent "ro# go'ern#ent controlC raising pro"essional standards a#ong #edia practititionersC ensuring "airness to the pu.licC protecting Dournalists "ro# harass#entC and encouraging the #edia to play their role o" holding people in authority to account and protecting the rights o" the indi'idual. The )+C has a Constitutional #andate .ut there are no "urther speci"ic pro'isions in the )+C %ct as to its regulatory po,ers and procedures other than ,ith respect to co#plaints settle#ent 4,hich is also the su.Dect o" a separate 2egislati'e Instru#ent5. %s a result the )+C has sought a regulatory "ra#e,or3 ,hich ,ill ena.le it to exercise the needed super'ision o'er the .roadcasting industry. CurrentlyC the )+C carries out three "unctions ,ith respect to .roadcasting O de'eloping content guidelinesC #onitoringC co#plaints settle#ent and training 8 all .ased on the Constitutional pro'ision "or Dournalistic standards. The guidelines do not ha'e an explicit legal status and the sanctions a'aila.le are li#ited to the pu.lication o" a correctionC an apologyC a reDoinder or Idirect disciplinary actionJ. )e'ertheless they are usedC together ,ith other instru#ents 8including the GB% Code o" Ethics5 and rele'ant Constitutional pro'isions 4e.g. on pri'acy5 8 as the .asis "or rulings o" the Co#plaints Settle#ent Co##ittee. The )C% operates in so#e respects as an ar.itrator rather than a Dudge and generally see3s to settle co#plaints .y negotiation.

The Ghana Bournalists %ssociation 4199!5

!(1(! Governance
The Constitution pro'ides "or )+C to .e co#posed o" 1* #e#.ers no#inated "ro# 12 na#ed constituencies together ,ith t,o persons appointed .y the (resident and three persons no#inated .y (arlia#ent. %ny change to this co#position ,ould re1uire a#end#ent o" the Constitution. The representationC ,hich includes religious organisationsC #edia sectorsC DournalistsC teachers and la,yersC appears intended to ensure .alance against the do#inance o" any one 'ie, in decision #a3ing although it #ay ha'e the side e""ect o" lo,ering the le'el o" regulatory expertise on the )+C. The nature o" the constituency representation #ay also ha'e the e""ect o" reducing regional representati'eness and gender .alance. +ost o" the representati'es are no#inated .y organisations head1uartered in %ccra. %ll .ut t,o o" the current 1* #e#.ers li'e in %ccra. 6nly three o" the eighteen representati'es are ,o#en. The presence o" #edia sector representati'es ensures a degree o" co8 regulation ,ith the #edia sectorsC "or exa#ple the )+C #a3es use o" the Ghana Bournalists %ssociation Code o" Ethics. 6n the other hand such representation #ay create con"lict o" interest in Dudging cases in'ol'ing co#petitors. I" the )+C ,ere to ac1uire greater po,ersC including those o" deciding ,hich operator #ust .e considered "or .roadcast authorisationC a corporate go'ernance issue could ariseC ,ith respect to con"lict o" interestC in'estor con"idence and industry capture. Section 9 o" the )+C %ctC pro'ides "or declaration o" interest and dis1uali"ication "ro# participation in the related deli.erations .ut such pro'isions #ay .e di""icult to en"orce in practice and there are currently no legislati'e pro'isions on con"identiality in the )+C %ct. It ,ould .e ad'isa.le "or such pro'isions to .e set out in ne, legislation. The Co##ission #eets once a #onth. The Co##ission is responsi.le "or policy "or#ulation and the Secretariat is responsi.le "or i#ple#entation. Co##issioners constitute the highest decision #a3ing .odyC supported .y the Secretariat. The ,or3 o" the Co##ission has .een di'ided into 5 co##itteesK Co#plaints Settle#entC 2egal Co##itteeC +edia Co##itteeC Training and 0elations Co##itteeC and /inance and %d#inistration. % code o" conduct "or Co##issioners has .een de'eloped to go'ern and pro'ide rules and procedures "or their operation. The )+C has a 1- year Strategic (lan 419998 2--95C ho,e'er this does not see# to .e guiding its operations. IndeedC one #e#.er said it #ay not e'en .e 3no,n .y #any o" the current Co##issioners suggesting a possi.le lac3 o" continuity and prioriti@ation. %rticle 1 * o" the Constitution re1uires the )+CC in consultation ,ith the (residentC to appoint the Chairperson and other #e#.ers o" the go'erning .odies o" pu.lic corporations that #anage the state8o,ned #edia. The po,ers o" the )+C to appoint and to re#o'e the Board o" GBCC including the Chie" Executi'eC #eans the )+C #ight .e percei'ed as .eing I.oth a re"eree and a playerJ. 7hile this #ay not .e a priority issue at present it could #erit greater attentionC in the long ter#C i" )+C po,ers o" sanction are enhanced.

!(1(- Regulatory and other operations

The )ational +edia Co##ission (ro"ile descri.es "i'e depart#ents o" the secretariat corresponding to the co##ittee structure o" the )+C and a sixth Technical &epart#ent that appears not currently to .e operational. % separate paper pro'ided on 6rganisational Structures and Bo. &escriptions descri.es three ,or3 di'isionsK Support Ser'icesC (ro"essional Ser'ices and 6perations. 6perationallyC on a day8to8day .asisC the )+C deal ,ith a range o" issues including co#plaints "ro# the #ediaC and "ro# the pu.lic against the #edia. These co#plaints are processed .y the Secretariat. %ccording to the 2--3 %nnual reportC )+C recei'ed !$ co#plaints and 32 reDoinders. Ele'en co#plaints ,ere struc3 out .ecause co#plainants decided to ,ithdra,. It is reported that )+C settled 9- per cent o" the cases that appeared .e"ore it last year ,hich can .e considered a success .y any #easures used. /ro# an analysis o" the %nnual reportsC it ,ould appear that a high priority is placed on the "unctioning o" the Co#plaints Settle#ent Co##ittee. The Co#plaints Settle#ent Co##ittee 4CSC5 is co#prised o" se'en Co##issioners and chaired .y the Chairperson o" the Co##ission. The .ul3 o" the in"ractions concern co#plaints against the #edia "ro# the pu.lic rather than co#plaints "ro# the #edia the#sel'es. The )+C re1uests a copy o" the o""ending article orC i" possi.le a recording o" the trans#ission 4in case o" .roadcasting5. The )C% %ct re1uires radio stations to 3eep progra##es "or a "ixed period o" ti#e. %ccording to the 2--3 )+C %nnual 0eportC the )+C cannot su.8poena ,itnessesC and this has .een con"ir#ed .y court . It has .een suggested that (arlia#ent could a#end the )+C %ct to pro'ide this po,erC on the other hand so#e #e#.ers "eel that this could create too strong a Duridical "unction "or )+CC ,hen the courts should .e the place o" last resort. %s currently constituted the )+C has .een set up in such a ,ay that its orientation is to,ards ar.itration rather than an ad'ersarial approach. In addition to co#plaints handlingC the )+C underta3es selecti'e #onitoring .ut does not #onitor all #edia. It #ight "ocus on a particular #edia outletC presenter or progra##e. The #onitoring unit is descri.ed .y )+C as 'ery ,ea3C consisting o" one &irector o" 0esearch and one assistant. The )+C recruits a nu#.er o" national ser'ice personnel to assist ,ith #onitoring. 6ne Co##issioner argued that #onitoring needs to .e underta3en Iscienti"icallyJ and that e""ecti'e #onitoring should not .e I"ire8"ightingJ in response to co#plaint .ut rather should .e a Ipro8acti'eJ "unction.

!(1(. )unding and human resources

The Co##ission is entirely dependent on re'enue "ro# Go'ern#ent. %ccording to the latest %udited /inancial 0eport$ the total inco#e "or the year 2--3C a#ounted to Cedis 1C115. #illion co#pared ,ith Cedis 92$.- #illion in 2--2C an annual increased o" 19. per cent. Internally Generated /unds a#ounted to only Cedis . #illion. There are no "ees or other "unding paid .y #edia organisations to the )+C "or the ser'ices pro'ided.

Hi/h Court Ru$in/ on the *'tter i$ed '/'inst (essrs K8'Gu =''Go Jnr 'nd K8esi Pr'tt or re usin/ to '""e'r #e ore the Co*"$'ints .ett$e*ent Co**ittee o the Co**ission7 ! Audit .ervi%e (2004)

The )+C Secretariat consists o" the Executi'e Secretary and three senior sta""C &eputy Executi'e Secretaries 46perations5C &eputy Executi'e Secretary 4/inance and %d#inistration5 and &irector 40esearch and +onitoring5 ,ho all report directly to the Executi'e Secretary. %t the ti#e o" the study there ,as no Executi'e Secretary or &eputy Executi'e Secretary 46perations5 in post. The &eputy Executi'e Secretary 4/inance and %d#inistration5 ,as also the %cting Executi'e Secretary. In addition to the senior sta"" tea# there are around 1* ancilliary personnel including researchersC clerical and security sta"". The Co##issioners also play a close role in day8to8day operations o" the )+C.

!(1(# '+ternal relations and accountability

The )+C pu.lishes guidelines and %nnual 0eports and has also pu.lished the )ational +edia (olicy. %s an independent go'ernance institutionC #andated .y the ConstitutionC the )+C is independent o" Go'ern#ent and reports directly to (arlia#ent. :o,e'er the "unding "ro# go'ern#ent is #ade directly through the +inistry o" /inance and Econo#ic (lanning. The )+C has no direct relationship ,ith the )ational Co##unications %uthority 4)C%5 e'en though the )C% is currently responsi.le "or .roadcasting "re1uency spectru# #anage#ent and assign#ent. It appears the pro.le# arose "ro# a perception that the )C% ,as created to usurp so#e o" the po,ers o" the )+C and #aintain go'ern#ent control o'er so#e aspects o" #ass #edia operations. It is ac3no,ledged .y .oth )+C and )C% that the ri'alry relationship is not in the pu.lic interest. Both institutions ac3no,ledge their ,or3 is inter8related and note the need "or co8ordination. The )+C has noted that there is so#e o'erlap o" responsi.ilities ,ith the Co##ission on CultureC a .ody ,hichC a#ong other #atters deals ,ith "il# classi"ication. The )+C notes that 'ie,ers co#plaining a.out a "il# on tele'ision #ay address their co#plaint to the )+C in the "irst instance.

2.2

National ommunications !ut"ority

The )ational Co##unications %uthority 4)C%5 ,as esta.lished .y the )C% %ct 52! o" 199 to regulate co##unications .y ,ireC ca.leC radioC tele'isionC satellite and si#ilar #eans o" technology "or the orderly de'elop#ent and operation o" e""icient co##unication ser'ices. The o.Dects o" the )C%C as set out in the )C% %ctC are as "ollo,sK
4a5 To ensure that there are pro'ided throughout Ghana as "ar as practica.le such co##unication ser'ices as are reasona.ly necessary to satis"y de#and "or the ser'icesH 4.5 To ensure that co##unications syste# operators achie'e the highest le'el o" e""iciency in the pro'ision o" co##unications ser'ices and are responsi.le to custo#er and co##unity needsH 4c5 To pro#ote "air co#petition a#ong persons engaged in the pro'ision o" co##unications ser'icesH 4d5 To protect operators and consu#ers "ro# un"air conduct o" other operators ,ith regard to 1uality o" co##unications ser'ices and pay#ent o" tari""s in respect o" the ser'icesH 4e5 To protect the interests o" consu#ersH 4"5 To "acilitate the a'aila.ility o" 1uality e1uip#ent to consu#ers and operatorsH

!(!(1 0ntroduction

4g5 To pro#ote research into and the de'elop#ent o" technologies and the use o" ne, techni1ues .y pro'iders o" co##unication ser'ices and to de'elop ade1uate hu#an resources in colla.oration ,ith such other go'ern#ent depart#ents and agencies as the %uthority considers appropriate.

The )C% %ct also sets out detailed "unctions "or the )C% ,hich include the "ollo,ing #atters that pertainC or #ay pertain to .roadcastingK
To ad'ise the +inister "or Co##unications and the +inister "or In"or#ation on policy "or#ulation and de'elop#ent strategies "or the co##unications industry To ensure strict co#pliance ,ith this %ct and regulations under it To grant licence "or the operation o" co##unications syste#s as de"ined in Section !! 4the scope includes .roadcasting syste#s5 To assignC allocate and regulate the use o" "re1uencies in con"or#ity ,ith international protocols To prepare and re'ie, the )ational /re1uency %llocation (lan To designate standards o" co##unications e1uip#ent To esta.lish training standards "or co##unications operators and to #onitor the i#ple#entation o" the training standards To pro'ideC ,here reasona.ly practica.leC ad'ice to operators in the co##unications industry in Ghana To #aintain a register o" operators

The licensing po,ers o" the )C% are explicit in the )C% %ct and set out in detail in the )ational Co##unications 0egulations 2--3. They include the licensing o" .roadcasting ser'ices the procedure "or ,hichC is descri.ed in the regulations as I"re1uency authorisationJ.

!(!(! Governance
The )C% Board is co#prised o" se'en #e#.ers. The Board is appointed .y the (resident in consultation ,ith the Council o" State 4)C% %ct Section 55. The co#positionC set out in the )C% %ctC consists o" a ChairC the &irector GeneralC one representati'e o" the )ational Security Council and "our other persons I,ith 3no,ledge in #atters rele'ant to the "unctions o" the %uthorityJ. Though there is no prescri.ed process in the %ct "or the appoint#ent o" #e#.ers o" the BoardC in practice the +inistry o" Co##unicationsC ha'ing in 'ie, the #aDor sta3eholders o" the industryC identi"ies people and presents a shortlist to the (resident;s o""ice. The (resident #a3es the "inal selection a"ter consultations ,ith the Council o" State. There are no other re1uire#ents "or representation o" di""erent interests or "or gender .alance and the present #e#.ers o" the Board are all #en. %tte#pts ha'e .een #ade in recent ti#es to distance the %uthority #ore "ro# direct Go'ern#ent control. <ntil recentlyC the Chair o" the Board ,as also the +inister "or Co##unications thus pro'iding a direct line o" political control o'er the )C%. This has ho,e'er changed and a non8political #e#.er o" the Board is no, the Chair o" the %uthority. <nder the la, Go'ern#ent still #aintains direct control under Section ! o" the )C% %ct ,hich states thatK IThe +inister #ay gi'e to the %uthority such directions o" a general character as appear to hi# to .e re1uired in the pu.lic interest relating to the discharge o" the "unctions o" the %uthorityJ. This lea'es the %uthority open to accusations o" political inter"erence in the a,ard o" operating licences "or

co##unication ser'icesC ,hether "or .roadcasting or other purposes. There ,ere indications gi'en during the ,or3 on the Study that the )C% %ct is currently under re'ie, and that the ne, la, ,ill #a3e the %uthority e'en #ore independent o" Go'ern#ent. Section $ o" the )C% %ct pro'ides a re1uire#ent "or Board #e#.ers to #a3e a ,ritten declaration o" interest disclosure in relation to any contract proposed to .e entered into .y the %uthority. /ailure to disclose an interest renders the #e#.er lia.le to .e re#o'ed "ro# the #e#.ership o" the Board. The Board is responsi.le "or policy "or#ulation and the &irector General is responsi.le "or i#ple#entation. The Board is re1uired .y the %ct to de'elop regulations "or the procedures o" #eetings. The Board #ay appoint co##ittees to discharge they "unctions. These #ay include external ad'isors to assist ,ith the ,or3 o" the co##itteesC except that a co##ittee o" non8 Board #e#.ers #ay only ad'ise the Board. Currently the )C% has a /inance and %udit Co##itteeC a +anage#ent and Technical Co##ittee 4,hich deals ,ith licensing decisions5 and (roDects and 6perations Co##ittee.

!(!(- Regulatory and other operations

7ith respect to the licensing o" .roadcasting ser'icesC the )ational Co##unications 0egulations 2--3 42I 1$195 sets out the procedures 3no,n as I"re1uency authorisationJ through ,hich co##ercial and co##unity .roadcasters #ust apply "or per#ission to .roadcast. %dditional detail on the in"or#ation re1uired to .e su.#itted in an application is pro'ided in the )C% Guidelines "or Su.#ission o" /easi.ility 0eport "or Broadcasting (roDects. %lthough the in"or#ation re1uested includes .usiness plans and progra##ing philosophy the only pu.lished selection criteria are those set out in the )C% %ct 2--3 Section 13415 ,hich statesK IThe %uthority shall grant the licence to an applicant ,here it is satis"ied that the co##unication syste# in respect o" ,hich the application is #ade is technically suita.le "or the ser'ice intended to .e renderedC and a licence "or the operation o" such syste# has not .een granted exclusi'ely to another operator in the pu.lic interestJ. The %ct "urther statesK I%n application under su.section 415 o" this section shall .e granted .y the Board unless there are co#pelling reasons "ounded on technical dataC national securityC pu.lic sa"ety or other reasona.le Dusti"ication ,hich shall .e co##unicated to the applicant. The )C% is not 3no,n to ha'e e'er gi'en a ,ritten re"usal to an application to operate a .roadcasting ser'ice ho,e'er there are cases o" applications ,hich ha'e .een #ade se'eral years ago on ,hich a decision has apparently not yet .een ta3en. There is no "ixed duration "or a decision to .e ta3en and no readily a'aila.le list o" decisions. These are clear illustrations o" the need "or a #ore ade1uate licensing process. It appears the )C% is caught .et,een concernsC possi.ly legiti#ateC "or not pro'iding a licence in so#e cases .ut does not ha'e an ade1uate set o" criteria in statute to Dusti"y such decisions. Ine'ita.ly this situation lea'es the )C% open to accusations o" political .ias. In line ,ith the )ational Teleco##unications (olicy and the )ational +edia (olicyC the )C% recognises three categories o" .roadcasting 8 pu.licC co##ercial and co##unity 8 "or the purpose o" "re1uency authorisation and "ees. %pplications are su.#itted in a de"ined category and #ust .e supported .y technical in"or#ationC a .usiness planC the progra##ing philosophy and

other in"or#ation as set out in Guidance "ro# the )C%. The )C% +anage#ent and Technical Co##ittee consider the applicationsC then prepare their su##ary o" the applications and reco##endations. The "inal decision is .y the "ull Board. The )C% re1uires .roadcasting e1uip#ent to con"or# ,ith IT< standards and that the .roadcast should not inter"ere ,ith other .roadcasters or other sensiti'e co##unications. )C% ha'e #onitoring 'ehicles "or the purpose o" #onitoring co#pliance. There ha'e .een a "e, occasions ,here stations ha'e not .een allo,ed to go on the air "or not co#plying ,ith technical re1uire#ents. Stations are gi'en speci"ic reasons and "ore,arning "or such action. <nder Section 1*2 o" the )ational Co##unications 0egulations 2--3 the )C% can i#pose "ines "or the contra'ention o" any )C% regulationsC ,hich in e""ect could apply to a .roadcasting organi@ation. Section !1425 o" the )C% %ct prescri.es prison ter#s in addition to "ines "or in"ringing )C% regulations. The )C% is responsi.le "or preparing and re'ie,ing the )ational /re1uency (lan and this is a'aila.le to the pu.lic. There are no detailed plans or consultations pu.lished "or the use o" .roadcasting spectru#. The )C% has recently announced a "ree@e on "urther co##ercial .roadcasting authorisations Ias a result o" the current exercise on the s,itch o'er "ro# analogue to digital syste#sJ ho,e'er detailed planning on the s,itcho'er o" tele'ision ser'ices to digital ,as not a'aila.le to the study tea#. (lanning "or the introduction o" digital sound .roadcasting appears to .e at a 'ery early stage and ,ould not see# a 'alid reason "or suspension o" ne, sound .roadcasting authorisation. The )C% I"ree@eJ announce#ent states that co##unity /+ .roadcasting applications #ay still .e considered and senior sta"" o" the )C% reported that the %uthority is planning to concentrate on co##unity radio de'elop#ent.

!(!(. )unding and human resources

The )C% collects license "ees "ro# operators o" ,hich it 3eeps 2- per cent "or its operational costsC ,hilst *- per cent is "or,arded to Go'ern#ent. The Go'ern#ent deter#ines the percentage o" the "ee to .e retained .y the )C%. The )C% has a sta"" co#ple#ent o" 5- o" ,hich a.out 35 are pro"essional positions. 6" theseC 1- are engineers and three are responsi.le "or .roadcasting. Con'ergence o" technologies has #eant that sta"" ha'eC o" necessityC .eco#e #ulti8s3illedC a.le to ,or3 in di""erent depart#ents and ,ith di""erent sectors. The )C% has identi"ied the need "or additional sta""ing capacityC including la,yersC econo#istsC statisticiansC engineers and researchersC to ena.le it to trac3 and respond e""ecti'ely to industry de'elop#ents.

!(!(# '+ternal relations and accountability

The )C% reports to the +inister o" Co##unications. It produces an %nnual 0eport to the +inister ,hich includes a report o" acti'ities and a list o" persons granted licences in the year. The +inister is re1uired .y the )C% %ct to then #a3e a report to (arlia#ent on the acti'ities o" the %uthority to ,hich

the %nnual 0eport relates. The "inancial .oo3s o" the )C% are audited .y the %uditor8General ,hose report is included in the %nnual 0eport )C% has no "or#al relationship ,ith the )+CC .ut recognises the )+C;s Constitutional responsi.ilities in the content sphere. Senior )C% sta"" expressed the 'ie, that greater colla.oration and clarity o" roles ,as desira.le. The )C% has no "or#al o.ligations to engage in pu.lic consultation. (rior to decisions on i#portant regulatory #atters they nor#ally underta3e consultation ,ith teleco##unications industry sta3eholders. InternationallyC the )C% represents Ghana in the IT< and ,or3s closely ,ith other .odies including 7est %"rican Teleco##unications 0egulatory %sse#.ly 47%T0%5C %"rican /oru# "or <tility 0egulators 4%/<05 and %"rican Teleco##unications <nion 4%T<5.

2.3

omparati#e !ssessment of NM

and N !
N$A )C% %ct )o. 52! o" 199 8 0egulate co##unications .y ,ireC ca.leC radioC tele'isionC satellite and si#ilar #eans o" technology "or the orderly de'elop#ent and operation o" e""icient co##unication ser'ices. 8 )ational Co##unication 0egulation 2.I. 1$19 o" 2--3. 8 to ensure that there are pro'ided throughout Ghana as "ar as practica.le such co##unication ser'ices to satis"y de#and "or the ser'ices. 8 to ensure that co##unications syste# operators achie'e the highest le'el o" e""iciency in the pro'ision o" co##unications ser'ices 8 to pro#ote "air co#petition 8 )C% %ct Section 2

!(-(1 /egal and $onstitutional frame*ork

1. Constitutional pro'isions and esta.lishing la, 2. +andate N1$ 8 Chapter 12 o" the Constitution o" 1992C 8 )+C %ct 1993 4%ct !995. 8 &eri'ed "ro# Chapter 12 o" the Constitution. 8 to pro#ote and ensure the "reedo# and independence o" the #edia "or #ass co##unication and in"or#ation. 8 )ot clear ,ith respect to .roadcastingC in 'ie, o" the )C% %ct 8 )o clear o.Decti'e to pro#ote "air co#petition a#ongst the .roadcasting industry 8 to pro#ote and ensure the "reedo# and independence o" the #edia "or #ass co##unication and in"or#ation. 8 to insulate the state8o,ned #edia "ro# Go'ern#ent. 8 to ta3e all appropriate #easures to ensure the esta.lish#ent and #aintenance o" the highest Dournalistic standards in the #ass #edia 8 to #a3e regulations .y Constitutional instru#ent "or registration o" ne,spapers and other pu.lication. 8 Co##ission is su.Dect only to the Constitution not to the direction or control o" any person or authority 8 Constituent8.ased representation in the Co##issionC including .roadcasters 8 %ppoints o,n Chair 8 Independent o" Go'ern#ent .ut has (arlia#entary no#inees and (residential appointees. 8 independence pro'ided "or in Chapter 12 o" the Constitution. 8 /undingC ho,e'erC is pro'ided .y Go'ern#ent

3. 6.Decti'es o" the la,

!. Independence legally enshrined co##ercial interests go'ern#ent party political interests 5. 0elations ,ith Go'ern#ent O separation o" po,ers. (olicy #a3ing and 0egulatory "unctions

8 Board and &irector General appointed .y the (resident o" the 0epu.lic and are directly responsi.le to the +inister o" Co##unications 8 )ot "ully independent o" Go'ern#entC +inister #ay gi'e directions to the )C%. Section ! o" )C% %ct pro'ides that the +inister o" Co##unications #ay gi'e directions o" a general character in the pu.lic interest.

!(-(1 /egal and $onstitutional frame*ork 8continued9

. (u.lic accounta.ility (u.lication o" %nnual 9 Three ?ear (lan (u.lication o" /indings and 0easons "or &ecisions #ade %udited %nnual 0eport . External audit $. 0ole o" the Courts O pro'ision "or Dudicial re'ie, N1$ 8 1-8?ear Strategic (lan .ut not pu.lished 8 %nnual report presented to (arlia#ent N$A 8 )o pu.lished plan o" acti'ities 8 %nnual 0eports su.#itted to the +inister o" Co##unications ,ho su.#its report to (arlia#ent

%uditor8General &ecisions are su.Dect to Dudicial re'ie,

%uditor8General &ecisions are su.Dect to Dudicial re'ie,

!(-(! Governing Body

*. %ppoint#ent process o" Go'erning .ody N1$ 8 Section 1 o" the Constitution pro'ides "or a constituency8.ased representation. The no#ination process is not speci"ied and there"oreC .y de"aultC is deter#ined .y the constituents. 8 2 no#inated .y Ghana Bournalists %ssociationC 1 each "ro# 11 other constituencies plus 2 no#inated .y (resident and 3 no#inated .y (arlia#ent 8 There are no 1uali"ication re1uire#entsC the decision is that o" the Constituency responsi.le. 1* #e#.ers 8 current #e#.ership 3 ,o#en and 15 #en Co##issioners hold o""ice "or 3 years rene,a.le ,ith #axi#u# o" t,o ter#s 8 /ailure to declare and disclose an interest #ay lead to re#o'al "ro# o""ice 4)+C %ct Section5. 8 Co##issioners ta3e an 6ath. 8 Code o" Ethics or (er"or#ance Standards. Sections 5C C $ and * o" the )+C %ct pro'ide "or #e#.ershipC dis1uali"icationC duration o" o""ice and re#o'al "ro# o""ice. N$A 8 (resident 4in consultation ,ith Council o" State5 appoints Board #e#.ers in ter#s o" Section 5 o" the )C% %ct. 8 The process is not clearly outlined and not "or#ally su.Dect to scrutiny (resident appoints in ter#s o" Section 5 o" the )C% %ct.

9. %ppointing .ody

1-. )u#.er o" Board #e#.ers 11. Ter# o" o""ice 12. Con"lict o" interest a'oidance pro'isions 13. Guali"ication and dis1uali"ication pro'isions

$ #e#.ers O current #e#.ership all #en 8 Board #e#.ers hold o""ice "or ! years 8 &irector8General Ms ter# is su.Dect to contract and the direction o" the Board 8 /ailure to declare and disclose an interest #ay lead to re#o'al "ro# o""ice 4)C% %ct Section $5 8 )o Code o" Conduct. 8 0ules o" procedures. 8 Section $4*5 and 495 o" the )C% %ct. 8 Section 24d5 o" the )C% %ct pro'ides "or appoint#ent o" ! persons ,ith 3no,ledge on #atters rele'ant to "unctions o" the Co##ission.

!(-(- /icensing frame*ork

1!. 2icensing po,ers 15. Classi"ication or categories o" licenses 1 . 0e1uire#ents "or licenses N1$ )one pro'ided "or in la,. )ot applica.le. )ot applica.le. N$A 8 Section 9 o" the )C% %ct. 8 )ational Co##unication 0egulation 2.I 1$19C 2--3. Classi"ied in line ,ith the )ational Teleco##unications (olicy 42--55 8 6utline "or Business (lan. 8 Guidelines "or su.#ission o" /easi.ility 0eport "or Teleco##unications proDects. 8 Guidelines "or su.#ission o" /easi.ility 0eport "or Broadcasting proDects. 8Guidelines do not pro'ide speci"ic criteria and re1uire#ents. Section 9 o" the )C% %ct pro'ides "or the granting o" a license .y the Board.

1$. 2icensing processes O pu.lic hearings and transparency 1*. (o,er to issue Ter#s and Conditions o" the ser'ice authorisation

)ot applica.le. )ot applica.le.

!(-(. $ontent Regulation

19. Content Codes and Guidelines 2-. Content #onitoring "unction 21. Co#plaints handling and settle#ent 22. Election .roadcasting pro'isions N1$ Broadcasting StandardsC Guidelines "or (olitical 0eporting incorporating Election BroadcastingC Guidelines "or (u.lication o" 0eDoindersC )ot co#prehensi'e .ut does underta3e ad hoc underta3e #onitoring o" particular stationsC presenters or progra##es o" concern Co#plaints Settle#ent (rocedure 0egulations 199! 42I 15*$5%pproach is ar.itration oriented. )o hard en"orce#ent po,ers .ut 9-P o" co#plaints settled Co'ered .y Guidelines "or political reporting N$A )ot applica.le )ot applica.le )ot applica.le )ot applica.le

!(-(# %ther regulatory po*ers

23. (o,er to #a3e regulations N1$ )+C can initiate Constitutional Instru#ents ,ithin its #andate .ut does not ha'e clear po,ers to #a3e en"orcea.le regulations N$A Section !1 o" the )C% %ct gi'es the %uthority po,er to initiate 2egislati'e Instru#ents to gi'e e""ect to the %ct including pro'ision "or "ines and prison ter#s "or contra'ention o" regulations

!(-(# %ther regulatory po*ers 8continued9

2!. 2ist and docu#entation o" regulations #ade N1$ /or .roadcasting K 8 Broadcasting Standards 8 Guidelines "or (olitical 0eporting 8 Guidelines "or the (u.lication o" 0eDoinders N$A 8 Technical (lanning Guidelines 8 Guidelines "or Broadcasting Ser'ices 8 Guidelines "or the 6peration o" Co##unity 0adio Stations 8 6utline o" .usiness plan 8 )ational 0adio /re1uency Spectru# (lan 8 )ational Co##unications 0egulations 2--3 (ro'ided in the )C% %ct and the 0egulations including suspension or ,ithdra,al o" "re1uency

25. En"orce#ent pro'isions

+ay de#and a correctionC apologyC pu.lication o" a reDoinder or disciplinary action 4)C% %ct Section 155.

!(-(3 Radio fre4uency spectrum

N1$ 2 . /re1uency Spectru# planning and #anage#ent )ot applica.le N$A 8 )ational 0adio /re1uency Spectru# (lan 4199 5 8 )o pu.lished policy "or .roadcasting. 8Technical (lanning Guidelines "or 0adio and Tele'isionC +arch 2--3.

!(-(7 ,ublic consultative procedures

2$. (rocesses o" #a3ing regulations9guidelines O pu.lic consultation9 participation 2*. (o,er to conduct pu.lic in1uiries on any #atter N1$ Consultation ,ith #edia sta3eholders )one prescri.ed in la, N$A 8 Teleco##unications sta3e8holders consulted ,ithin the industry through industry ,or3shops )one prescri.ed in la,

!(-(2 )inancial arrangements

29. /unding sources 3-. /ees and charges N1$ Go'ern#ent 4negotiation ,ith /inance +inistry and appro'ed .y (arlia#ent5C so#e donor support )one le'ied on #edia industry .odies. N$A 0egulatory Charges "or Co##unication /acilities and Ser'ices 4)C%C 2--55 partly retained .y )C% 0egulatory charges "or .roadcasting "re1uency authorisation and other co##unications licences. Scale o" .roadcast application "ees and annual "ees "ro# <SN 1C--- to <SN 1$C--/ees paid to )C% .an3 account Budget not pro'ided

31. Collection #echanis# o" "ees 32. Current annual .udget

)ot applica.le 1.5. Cedis

!(-(5 %perational arrangements

33. Co##ittee structure N1$ Co##issioners are o'erall go'erning .ody 8 5 co##itteesK Co#paints Settle#entC 2egalC +ediaC Training and 0elationsC /inance and %d#inistration. Co##ittees are co#posed o" Co##issioners Executi'e Secretariat leads 5 depart#entsK Co#plaints Settle#entC Training and 0elationsC TechnicalC +ediaC 2egalC /inance and %d#inC Executi'e SecretaryC &eputy Executi'e Secretary 46perations5C &eputy Executi'e Secretary 4/inance and %d#inistration5C &irector o" 0esearch and +onitoring %ssistantsC clerical and other ancilliary sta"" 4Q1* excluding Senior +anage#ent5 N$A Board and Su. Co##ittees "orK 8 /inance and %udit 8 Technical 4e'aluates applications and ta3e decision on "re1uency authorisation5 8 (roDects and 6perational &epart#ents include 0egulation and 2icensingC /re1uency +anage#entC 2egalC /inance and %d#inistration &irector8GeneralC &eputy &irector8GeneralC &irectors "or 0egulation and 2icensingC /re1uency +anage#entC 2egalC /inance and %d#inistration %round 5- sta"" total. Broadcasting Section has three engineers plus support sta""

3!. &epart#ental structure 35. Senior #anage#ent

3 . 6ther personnel

!(-(1" %ther matters

3$. 0esearch O socialC econo#icC technical 3*. International relations N1$ Aery li#ited research capacity. +e#.er o" 0I%0C 9 %C0%) N$A So#e technical and econo#ic research. 7%T0%C IT<C %T<C %/<0C CT6C

-(
3.1

Recommendations
$"e onstitution and %roadcasting policy
In this chapter ,e set out the issues to .e considered in .roadcasting re"or# and ,e #a3e reco##endations on the ,ay "or,ard. 6ur analysis identi"ies areas o" concern ,hich can .e grouped in a series o" 1uestionsK 7hat are the purpose and goals o" .roadcasting regulationR 7hat pro'isions are needed to i#pro'e the legal "ra#e,or3R 7ho should carry the associated regulatory responsi.ilitiesR 7hat action is needed in the shortC #ediu# and long ter#R 7hat are the resource re1uire#ents and constraintsR The "irst o" these 1uestions #ust underpin other considerations and needs to .e ans,ered ,ith clarityC .uilding not only on such policy as already exists .ut also anticipating "uture needs and trends. In doing so it is use"ul to dra, on existing international la, and .est practice and ,e ha'e done so in analysing the present legal and regulatory "ra#e,or3. Since Ghana is a Constitutional de#ocracy ,e are o.liged to loo3 at ,hat the Constitution tells us and ,hether and to ,hat extent this pro'ides an ade1uate "oundation on ,hich to .uild the necessary la,s and regulations. 7e ha'e also exa#ined the purposes set out in existing la,s and regulations and the policy docu#ents o" the )ational +edia Co##ission and the Go'ern#ent o" Ghana. The consideration o" purpose and goals #ust .e in"or#ed .y the present day socialC cultural and econo#ic context. 7hat collecti'e concerns and 'alues need to .e addressedC i" not e#.eddedC in the policy "ra#e,or3R The Ghana %d'ocacy Steering Co##ittee "or a )e, Broadcasting 2a, has engaged in extensi'e consultation through "ocus groups in di""erent regions o" the country as ,ell as organi@ing a national sta3eholders ,or3shop. 7e are "ortunate to .e a.le to dra, on the results o" this consultationC ,ith sta3eholders and #e#.ers o" the pu.licC to ground our assess#ent in people;s real concerns and issuesC shared 'alues and di""erencesC and percei'ed priorities "or change. 7e need to ta3e account also o" "uture considerations and the i#pact o" ne, de'elop#ents and opportunities on the nature o" .roadcasting regulation and the .roadcasting landscape. The con'ergence o" teleco##unications and .roadcasting technologies is leading policy #a3ers ,orld,ide to re8exa#ine legislati'e separation .et,een the teleco##unications sector and .roadcasting and to consider ,hether and to ,hat extent regulation o" co##unications as a ,holeC .oth content ser'ices and distri.utionC should .e 'ested in one .ody ,ith one o'erarching state#ent o" purpose.

-(1(1 0ntroduction

-(1(! $onstitutional frame*ork

It is necessary to co##ence ,ith the Constitutional pro'isions "or hu#an rights and "reedo#s set out in Chapter 5 o" the Constitution and including the principle o" I"reedo# o" speech and expressionC ,hich shall include "reedo# o" the press and other #ediaJ 4%rticle 214154a55. This is rein"orced .y Chapter 12 o" the Constitution on I/reedo# and Independence o" the +ediaJ ,hich

states that I"reedo# and independence o" the #edia are guaranteedJ 4%rticle 1 25 su.Dect only to la,s that are Ireasona.ly re1uired in the interest o" national securityC pu.lic orderC pu.lic #orality and "or the purpose o" protecting the reputationsC rights and "reedo#s o" other personsJ. In addition the Constitution pro'idesC in Chapter C a "ra#e,or3 o" politicalC econo#icC socialC education and cultural o.Decti'es to guide Iin applying or interpreting this Constitution or any other la, and in ta3ing or i#ple#enting any policy decisionsC "or the esta.lish#ent o" a Dust and "ree societyJ. &uring the course o" conducting the study the tea# heard suggestions that the Constitution itsel" #ay need to .e changed in order to pro'ide an i#pro'ed .asis "or the regulation o" .roadcasting. The hu#an rights pro'isions in Chapter 5 o" the Constitution are Ientrenched pro'isionsJ ,hich can only .e a#ended .y re"erendu# and ,hich are neither appropriate nor "easi.le to a#end in the "urtherance o" .roadcasting re"or#. %lthough there are so#e i#pro'e#ents to Chapter 12 that could .e considered desira.le "or legal clarityC they are not essential in current circu#stances. In the #ediu# to longer ter# technological and regulatory con'ergence #ight lead to the re8exa#ination o" Constitutional pro'isions ,ith a 'ie, to de'elop a #ore co#prehensi'e "ra#e,or3 "or the ,ider co##unications sector. No onstitutional c"ange is necessary in t"e s"ort to medium term and t"e e&isting onstitutional framework s"ould %e assumed to %e t"e %asis for %roadcasting policy and new %roadcasting legislation.

-(1(- National 1edia ,olicy

In Ghana the Constitution con"ir#s the esta.lish#ent o" the )ational +edia Co##ission 4)+C5 ,hose "unctions include Ito pro#ote and ensure the "reedo# and independence o" the #ediaJ and Ito ensure the esta.lish#ent and #aintenance o" the highest Dournalistic standards in the #ass #ediaJ. It is clearC in this respectC that the )+C is the Constitutional custodian o" #edia "reedo# and independence and o" the 1uality o" the #edia landscape. The )+C has prepared a )ational +edia (olicy ,hich sets out a 'ision ani#ated .y Ithe ,ell8.eing o" all our people and the continuing 'itality o" our cultureJ and pu.lished .y the Co##ission in 2---. It pro'ides a series o" clear and succinct policy state#ents applica.le to all #ediaC together ,ith #ore detailed pro'isions "or the .roadcast #edia. The policy state#ent "or .roadcasting sets out general principles as "ollo,sK
The .asic resource o" .roadcastingC .e it air,a'es or the .road expanse o" spaceC .elongs to the Ghanaian people. The policy challenge "or the .roadcast #edia is to utili@e this .asic resource in such a ,ay that 'alue is added to the 1uality o" li"e o" all Ghanaians and to society and the econo#y as a ,hole. BroadcastingC e'en #ore than other pu.lic #ediaC shall operate on the understanding that it is a pu.lic trust. In the discharge o" this trust in an openC de#ocratic societyC pu.licC co##ercial and co##unity .roadcasting play di""erent .ut co#ple#entary roles.

The )ational +edia (olicy pro'ides a good policy "oundation "or .roadcasting de'elop#ent and se'eral o" its 3ey pro'isionsC such as the recognition o" three .roadcasting sectors 4pu.licC co##ercial and co##unity5 ha'e already

.een integrated into the )ational Teleco##unications (olicy. There are so#e ne, areasC such as digital .roadcastingC that are not addressed .ut the docu#entC ne'erthelessC pro'ides the .asis "or the de'elop#ent o" .roadcasting policy and a point o" re"erence "or all sta3eholders. 't is appropriate for t"e National Media Policy to %e used %y all stake"olders as a key policy reference document for t"e future de#elopment and t"e regulation of %roadcasting in ("ana.

3.2

$owards a new legal framework

It is ,idely recogni@ed that in a de#ocratic country ,ith an independent .roadcasting sectorC one o" the guarantees o" independence is the existence o" an independent regulatory .ody to #anage the issuance o" .roadcasting authorisations and to o'ersee the .roadcasting sector. The Constitution pro'ides "or the independence o" the )+C;s "unctioning. :o,e'erC its po,ers to e""ecti'ely regulate the sector are li#ited and ha'e not .een de'eloped "urther .y statuteC except ,ith respect to its "unction in the in'estigationC #ediation and settle#ent o" co#plaints. 7hile this is an i#portant "unctionC it is not in itsel" a su""icient #eans to guarantee the "reedo# and the independence o" the #ediaC nor does it ena.le the )+C to esta.lish and #aintain the highest Dournalistic standards in the #ass #edia. The i#portant regulatory "unction o" pro'iding or denying authorisation to .roadcast has .een assu#ed .y the )ational Co##unications %uthority 4)C%5 .y 'irtue o" its technical responsi.ilities "or the radio "re1uency spectru#. 7hile the esta.lish#ent o" the )C% de#onstrates e'olution "ro# a pre'iously depart#ental .odyC the Ghana /re1uency 0egulation +anage#ent BoardC to a non8depart#ental .odyC the )C% still lac3s guarantees o" independence and can .e su.Dect to directions "ro# go'ern#ent. %dditionally the )C% does not ha'e a #andateC and hence not the capacityC to assess .roadcast proposals "ro# the point o" 'ie, o" content since the Constitution places this in the pur'ie, o" the )+C. %ssess#ent o" the content o.Decti'es o" .roadcasting ser'ice proposals is an essential co#ponent o" regulation in the pu.lic interest in order to ensure a range and di'ersity o" progra##e ser'ices and to ensure a high standard o" ser'ice pro'ision. $"e National Media ommission s"ould %e empowered t"roug" appropriate legislation to assume its onstitutional mandate as t"e primary %ody wit" responsi%ility for t"e regulation of %roadcasting.

-(!(1 $onstitutional basis for broadcasting regulation

-(!(! Broadcasting service authorisation

The present di'ision o" responsi.ilities in the regulation o" .roadcasting has le"t a regulatory 'acuu# ,hich needs to .e "illed i" .roadcasting regulation is to operate in the pu.lic interest. 6n the one hand the )C% has responsi.ility "or "re1uency authorisation .ut it has no po,ers to include content8.ased criteria in the selection .et,een di""erent proposals "ro# aspirant .roadcasters. )C% recognises that content8.ased decision #a3ing "alls outside its #andate. 6n the other handC the )+CC ,hich clearly has a #andate to pro#ote high81uality contentC is not e#po,ered to authorise the use o" a "re1uency ,hich is essential to any .roadcast content proposal i" it is to reach an audience.

In #ost countries this issue is resol'ed through either ha'ing a single regulatory .odyC responsi.le "or .roadcast content regulation and "or .roadcast "re1uency authorisationC or through a Doint process in ,hich "re1uency assign#ents are #ade .y a .ody responsi.le "or "re1uency #anage#ent on the .asis o" a decision .y a .roadcast regulator to authorise a .roadcast content proposal. 7e ha'e considered the option o" a single regulator. This is an increasingly co##on approach ta3en .y other countriesC particularly ,here .roadcasting and teleco##unications regulation ha'e .een con'erged into one .ody asC "or exa#ple in South %"ricaC the <nited Eingdo# and the <S%. 7hile this #ay .e a desira.le solution in the #ediu# to long ter# it ,ouldC in our assess#ent re1uire Constitutional re"or# and a prior period o" Doint ,or3ing .et,een the )+C and )C%. In the short to #ediu# ter# ,e there"ore consider a Doint processC in ,hich the di""erent responsi.ilities are clear set out in la,C as .eing the #ost straight"or,ard solution to "illing the regulatory 'acuu#. This ,ould re1uire the creation o" a ne, "or# o" content8.ased selection to .e conducted .y the )+C and ,hichC together ,ith other social and econo#ic criteriaC ,ould "or# the pri#ary .asis "or esta.lishing ,ho is a.le to pro'ide a .roadcast content ser'ice. Content criteria ,ould not .e prescripti'e or exclusi'e .ut designed to pro#ote a range and di'ersity o" ser'ices o" a high 1uality. The "urther .ene"it o" this approach is that it esta.lishes a clear contractual relationship .et,een the )+CC as .roadcast content regulatorC and the .roadcaster. This .rings greater legal clarity to the .roadcaster;s content o.ligations. /or exa#pleC the re1uire#ent to a.ide .y .roadcast standards and other codes o" practice can .e included in the conditions o" authorisation as can a general description o" the content that the .roadcaster has proposed to pro'ide. The latter descriptionC ter#ed a Ipro#ise o" per"or#anceJ can .e used to ensure that a .roadcaster does not o.tain authorisation to .roadcast under one pretext and then proceed to o""er a di""erent content ser'ice "ro# that ,hich had .een indicated. $"e current N ! procedures for )fre*uency aut"orisation+ ,set out in t"e National ommunications -egulations 2..3/ s"ould %e replaced %y a new procedure for )%roadcasting ser#ice aut"orisation+ under t"e regulatory responsi%ility of t"e NM . $"is new procedure s"ould pro#ide for t"e inclusion of content in t"e criteria for decision.

3.3

-egulatory powers and responsi%ilities

% ne, procedure o" .roadcasting ser'ice authorisation under the regulatory responsi.ility o" the )+C ,ould ena.le ne, po,ers and responsi.ilities to .e introduced into the regulatory syste# that are not currently a'aila.le. The )+C could .e e#po,ered not only to recei'e and to accept or to reDect proposals "or .roadcasting ser'ices .ut also to ensure .roadcasting ser'ice pro'iders deli'er on their pro#ises o" per"or#ance and that they co#ply ,ith rele'ant regulations on .roadcasting ser'ice o,nership. This ,ould assist in assuring the 1uality and di'ersity o" ser'ices a'aila.le and addressing issues such as #edia concentrationC cross8o,nership and "oreign o,nershipC ,hich are i#portant #atters i#pacting on #edia "reedo# and independence.

-(-(1 Additional regulatory po*ers of the N1$

Pro#ision s"ould %e made in law for t"e National Media ommission to carry out t"e following additional regulatory functions0 aut"orisation of %roadcasting ser#ices1 including setting of terms and conditions for suc" ser#ices and ensuring compliance regulation of owners"ip and control of %roadcasting ser#ices regulation of )promises of performance+

-(-(! Additional N1$ po*ers of sanction

&uring the course o" our study ,e heard concerns "re1uently expressed that )+C po,ers "or regulating content and settle#ent o" co#plaints are not su""icient to deal ,ith content8.ased pro.le#s such as the use o" sound .roadcasting ser'ices to carry sectarian #essages. The )+C itsel" has suggested it needs #ore resources to underta3e syste#atic #onitoring. 7e are not con'inced that this is the #ost e""icient solution. The #ost e""ecti'e #onitoring ser'ice is that pro'ided .y 'ie,ers and listeners the#sel'es. :o,e'erC "or 'ie,ers and listeners to ta3e steps to #a3ing a "or#al co#plaint they #ust ha'e recourse to a .ody ,hose "unction is ,idely understood and respected and ,hich is capa.le o" ta3ing e""ecti'e action ,here action is necessary. The )+C;s current po,ers o" sanction are ,ea3 and could .e strengthened to allo, it to i#pose a "inancial penalty orC in extre#e casesC to suspend or ,ithdra, the authorisation to .roadcast. Such increased po,ers ,ould need to .e .alanced .y the pro'ision o" a "or#al appeals process ,ithin the )+C procedure as ,ell as the right to see3 Dudicial re'ie,. !mendments s"ould %e made to t"e National Media ommission !ct to strengt"en its powers of sanction and to pro#ide for a formal appeals process in relation to NM rulings on complaints.

-(-(- 1aintaining effective spectrum management

The replace#ent o" the current process o" "re1uency authorisation .y a ne, process o" .roadcasting ser'ice authorisation under the regulatory responsi.ility o" the )+C ,ould re1uire care"ul attention to assuring the continuation o" e""ecti'e procedures "or "re1uency assign#ent and spectru# #anage#ent. The )C% is the agency ,ith the technical capacity in this area and ,e see no reason to re#o'e this "unction "ro# the )C%. Instead ,e propose that the )C% continue to .e responsi.le "or assign#ent o" .roadcast "re1uencies .ut that it do so ,ithin the context o" a .roadcast spectru# plan agreed ,ith the )+C. This ,ould ena.le "re1uency assign#ents to .e issued on re1uest "ro# the )+C "ollo,ing an )+C decision to o""er a .roadcasting ser'ice authorisation. The )C% ,ould then .e responsi.le "or pro'iding to the )+C the technical para#eters to .e included in the agree#ent ,ith the .roadcaster "or a .roadcasting ser'ice authorisation. &he N$A should continue to hold responsibility for setting the technical parameters for broadcast fre4uency assignment to ensure that broadcast signals do not interfere *ith one another or *ith other users( In addition to the need to a'oid inter"erence .et,een di""erent do#estic users o" the radio "re1uency spectru#C the )C% is currently responsi.le "or international "re1uency clearance negotiations such as arise ,here a "re1uency in use in Ghana #ight inter"ere ,ith its use in a neigh.ouring State.

&he N$A should continue to hold responsibility for the negotiation of international fre4uency clearance for broadcast fre4uency assignments as *ith other radio fre4uency assignments( %n i#portant aspect o" a'oiding inter"erence .et,een spectru# users is not only to de"ine the technical para#eters .ut to ensure they are respected. The )C% is the only .ody ,ith capacity to properly #onitor technical in"ringe#ents and it should continue to per"or# this "unction including site 'isits to .roadcasters and #onitoring in response to co#plaints o" a technical nature. &he N$A should continue to hold the responsibility for monitoring technical infringements *ith respect to the technical parameters of fre4uency assignments for broadcasting services( In #ost circu#stances a technical in"ringe#ent can .e addressed .y a ,arning letterC ad'ising the ser'ice pro'ider o" the in"ringe#ent and re1uesting co#pliance. In so#e casesC "or exa#ple persistent in"ringe#ent or technical inter"erence that causes serious har# to other usersC it #ayC 'ery occasionallyC .e necessary to suspend a .roadcaster;s authorisation until the #atter is resol'ed. The conse1uence o" such action ,ould to re#o'e a .roadcast content ser'ice and it should there"ore only .e underta3en ,ith the agree#ent o" the )+C and ,ithin strictly de"ined rules and procedures. Sanctions *ith respect to technical infringements of a broadcasting service authorisation should be implemented only *ith the prior authorisation of the N1$ e+cept in the case of serious interference causing immediate harm to other users in *hich case the N$A should be able to act to suspend the service pending a decision of the N1$(

-(-(. Studio technical re4uirements

The )C% currently re1uires .roadcasters 4radio and tele'ision5 to co#ply ,ith detailed technical speci"ications "or studio and other recording e1uip#ent "or content production. In a plural #edia landscapeC including co##ercial and co##unity .roadcasters ,ith li#ited .udgetsC these re1uire#ents can pro'e unnecessarily onerous and #ost .roadcast regulators no longer i#pose such o.ligations. The 1uality o" studio production o" a .roadcaster does a""ect the percei'ed 1uality o" the content "or the listener or 'ie,er .ut it does not a""ect the trans#ission signal in any ,ay that can cause har# to other spectru# users. These regulations are there"ore not re1uired to assure the proper #anage#ent o" the radio "re1uency spectru#. It is generally accepted today that .roadcasters should deter#ine their o,n choice o" studio and recording e1uip#ent and the associated technical standards o" production. $ec"nical standards for %roadcasters t"at are not connected to t"e use of radio fre*uencies1 including standards for studio and ot"er recording e*uipment1 s"ould cease1 wit" immediate effect1 from %eing part of t"e regulatory re*uirements for %roadcasting ser#ices.

-(-(# )uture spectrum planning

I" the )+C is to assu#e the role o" .roadcasting ser'ice authorisation it ,ill need to do so ,ithin the "ra#e,or3 o" a spectru# plan "or .roadcasting ,hich should .e esta.lished on the .asis o" policy priorities as ,ell as technical constraints. Choices #ay need to .e #adeC "or exa#pleC .et,een using "re1uencies "or ur.an ser'icesC or rural ser'ices in the periphery o" ur.an

areas. Choices ,ill need to .e #ade in deter#ining the typical co'erage radius o" pu.licC co##ercial and co##unity .roadcasting ser'ices. There #ay .e spectru# opportunities "or the introduction o" additional national ser'ices .ut this ,ould .e at the expense o" a potential tier o" local ser'ices. In this respect the planning o" the .roadcasting spectru# is a policy decision that su.stantially a""ects the ser'icesC and there"ore the contentC that ,ill .e a'aila.le to the 'ie,er and listener. These issues apply not only to the current analogue spectru# .ut also to the use in the "uture o" "re1uencies assigned "or digital .roadcasting. The )+C should there"ore esta.lish a policy and plan "or use o" the analogue and digital .roadcasting spectru# ,ithin the technical constraints o" a'aila.le spectru# and designed to .ring the greatest .ene"it in the pro'ision o" a di'ersity o" content to 'ie,ers and listeners. The )C% should ,or3 ,ith the )+C on this exercise to ensure it ta3es account o" international technical reco##endations and current .est 8practice on spectru# re8use and a'oids planning ,hich could inter"ere ,ith non8.roadcast spectru# users. $"e NM s"ould de#elop1 t"roug" a pu%lic participatory process and in consultation wit" t"e N !1 a plan for t"e use and de#elopment of t"at part of t"e radio fre*uency spectrum t"at is assigned to %roadcasting in t"e ("ana National 2re*uency Plan1 including a future plan for digital %roadcasting. The need "or Doint planning dri'en .y .roadcast policy considerations and .y technical studies ,ould indicate the need to put in place institutional #echanis#s "or colla.oration .et,een the )+C and the )C% ,hich could .e easily set out in an inter8agency +e#orandu# o" <nderstanding and ,hich ,ould include annual re'ie, o" the i#ple#entation o" spectru# planning. onsultation on %roadcast spectrum planning and assignment s"ould %e institutionalised in t"e form of a 3oint 2re*uency Planning (roup consisting of representati#es from %ot" agencies.

3.4

(o#ernance of t"e regulatory %odies

/or the )+C to assu#e the additional regulatory responsi.ilities proposed it ,ill need to strengthen its present go'ernance arrange#ents. There is a need to ensure the recruit#ent to the )+C o" indi'iduals o" a high cali.re ,ith rele'ant pro"essional experience. The present appoint#ents process lea'es it to indi'idual constituencies to deter#ine their no#ination procedure. :o,e'erC this could .e supple#ented .y guidelines "or recruit#ent o" Co##issioners. The Co##issioners are not Irepresentati'esJ o" the constituencies .ut are appointed as indi'iduals and the constituency organisations should use their no#ination po,ers to ensure a .road8.ased )+C including rele'ant legalC #ediaC regulatory and other expertise. $"e NM s"ould undertake a 4oint re#iew wit" its constituencies into t"e criteria and procedures for recruitment of ommissioners wit" a #iew to esta%lis"ing a common set of guidelines for selection to impro#e transparency and to %etter ensure a ommission t"at is %road5 %ased and includes rele#ant legal1 media1 regulatory and ot"er e&pertise.

-(.(1 Governance of the N1$

%s presently deter#ined .y the Constitution the )+C is a .ody o" 1* Co##issioners ,hich can .e an un,ieldy nu#.er in respect o" e""ecti'e decision8#a3ing and leadership. 7hile any reduction in nu#.er ,ould re1uire Constitutional change and hence is not dee#ed practical in the short to #ediu# ter#C )+C go'ernance could .e ser'ed .etter .y so#e delegation o" po,ers to co##ittee le'el including a s#aller Executi'e Board. This change could .e e""ected .y a#end#ent o" the existing )+C %ct and ,ould not re1uire Constitutional a#end#ent. $"e e&isting NM !ct s"ould %e amended to %ring greater clarity to t"e committee structure and to strengt"en NM go#ernance including an 6&ecuti#e Board to dri#e policy and performance. The introduction into the "unctioning o" the )+C o" ne, regulatory po,ers ,ith respect to .roadcasting #ay raise so#e issues o" potential "or con"lict o" interest and co##ercial con"identialityC particularly ,ith respect to indi'idual Co##issioners ,ith connections to the .roadcasting industry. The )+C %ct #a3es pro'ision "or the handling o" con"lict o" interest. Good practice ,ould also .e ser'ed .y the )+C adopting a #ore detailed code o" conduct ,ith respect to the Co##issioners Constitutional and statutory responsi.ilities. $"e NM s"ould conduct and a re#iew of internal policies and procedures wit" respect to roles1 responsi%ilities and code of conduct of ommissioners including "andling of conflicts of interest.

-(.(! Governance of the N$A

7e ha'e noted that although the )C% is a non8depart#ental pu.lic .ody constituted .y statute it does not ha'e "ull independence "ro# Go'ern#ent since Board #e#.ers are appointed directly .y the (residentC there is no independent scrutiny o'er the no#ination o" Board #e#.ers and there re#ain po,ers o" the Go'ern#ent to gi'e directions to the )C%. 0e"or# o" the )C% %ct ,ould gi'e stronger guarantees o" independence and .e in line ,ith international .est practice. In this context the a#ended )C% %ct should clari"y that the )C%;s principal purpose is to ser'e the pu.lic interest. These changes ,ould also "acilitate "uture con'ergence .et,een .roadcasting and teleco##unications regulation. $"e N ! !ct s"ould %e reformed including c"anges to t"e go#ernance of t"e N ! to guarantee its independence from go#ernment and to esta%lis" a principal purpose of ser#ing t"e pu%lic interest.

3.5

Planning for future %roadcasting de#elopment

The de'elop#ent o" sound .roadcasting in Ghana has proceededC since 199 C in a #anner that has .rought a ne, "reedo# to esta.lish independent .roadcasting ser'ices and a large nu#.er o" ne, co##ercial ser'ices ha'e startedC #ostly concentrated in #aDor ur.an areas. In %ccra and Eu#asiC in particularC this is .eginning to lead to so#e congestion o" the radio "re1uency spectru#. Co##unity radioC on the other handC is relati'ely under8de'eloped and is an area ,ith considera.le potential especially ,ith respect to pro'iding ser'ices that e#po,er #arginalised groups and rural co##unities.

-(#(1 6evelopment of sound broadcasting

To dateC the de'elop#ent o" independent .roadcasting has .een so#e,hat ad hoc, re"lecting a period that has .een descri.ed to us as Iseeing ,hat e#ergesJ. 7ith spectru# .eco#ing scarce in so#e areasC and ,ith .etter understanding o" the gaps in the types o" .roadcasting ser'ices .eing pro'idedC it ,ill .e use"ul to introduce so#e policy8.ased planning into the "uture use o" spectru# "or sound .roadcasting. (lanning should re#ain "lexi.le to respond to de#and .ut shouldC at the sa#e ti#eC pro'ide a .road pu.lic8interest dri'en policy and "re1uency planning "ra#e,or3 in ,hich ser'ices can de'elop. In particular it should see3 a #ore e1uita.le distri.ution o" "re1uencies .et,een pu.licC co##ercial and co##unity ser'ices. $"e NM s"ould commence a pu%lic consultation process on t"e de#elopment of sound %roadcasting ser#ices leading to a plan for t"e future de#elopment of pu%lic1 commercial and community ser#ices. This could use"ully .uild on the "indings o" consultations already organi@ed .y the Ghana %d'ocacy Steering Co##ittee "or a )ational Broadcasting 2a,. In the #eanti#eC there is no need to suspend current de'elop#ent ,hile "uture plans are "ine8tuned. In particularC ,e .elie'e encourage#ent should .e gi'en to the de'elop#ent o" ne, co##unity radio ser'icesC particularly as this "its ,ell ,ith Go'ern#ent support "or co##unity8.ased e#po,er#ent in po'erty reduction. The criteria de'eloped .y Ghana Co##unity 0adio )et,or3 re"lect good practice in the purpose and operations o" co##unity radio. Pending legislati#e c"ange and a future plan for sound %roadcasting ser#ices1 t"e N ! s"ould gi#e an immediate priority to t"e aut"orisation of new community radio ser#ices %ased on and guided %y t"e criteria de#eloped %y t"e ("ana ommunity -adio Network. In de'eloping co##unity radio the )C% has recently suggested it could .e li#ited to a 53# radius. GenerallyC and particularly outside ur.an areasC this ,ould .e li3ely to pro'e an unreasona.le li#itation ,hich ,ould under#ine the 'ia.ility o" co##unity radio ser'ices and their social and de'elop#ental o.Decti'es. 0ural co##unitiesC in particularC are 1uite ,idely dispersed and ,ould need a #uch greater co'erage area "or the co##unity radio ser'ice to ha'e a 'ia.le co##unity .ase. $"e de#elopment of community radio s"ould permit transmission co#erage appropriate to t"e community intended to %e ser#ed and taking account of t"e different needs of ur%an and rural ser#ices.

-(#(! ,lanning for digital broadcasting

&uring the course o" our en1uiries ,e heard so#e interesting state#ents a.out the i#pact o" the introduction o" digital .roadcasting syste#s. There is so#e international pressure to accelerate transition to digital syste#s #ainly .ecause o" the spectru# that ,ould .e released and that could .e re8used "or #o.ile telephony. 7hile there #ay .e short8ter# re'enue to the Go'ern#ent to .e #ade "ro# the sale o" spectru# there are also signi"icant social and econo#ic costs associated ,ith the replace#ent o" analogue tele'ision recei'ers ,ith #ore expensi'e digital recei'ers. There are also signi"icant costs "or tele'ision operators in con'ersion to digital trans#ission. I" not handled care"ully the transition to digital can result in 'ie,ers losing ser'ices that are currently a'aila.le to the# and .eing le"t ,ith a .lan3 screenC ,ithout understanding or .eing a.le to a""ord to change to the ne, technology.

$"e NM s"ould re#iew e&isting studies and commission additional social and economic researc" into digital terrestrial tele#ision %roadcasting including feasi%ility assessment and cost %enefit analysis of introducing switc"o#er from analogue to digital distri%ution. $"is s"ould %e carried out in consultation wit" %roadcasters and t"e N !. In the case o" the transition to digital sound .roadcastingC ,e noted that this ,as gi'enC in Septe#.er 2--5C as the reason "or an )C% I"ree@eJ on "urther spectru# authorisations "or co##ercial radio ser'ices. :o,e'erC #ost go'ern#ents ha'e no short or #ediu# ter# plans to s,itch existing analogue sound .roadcasting spectru# o'er to digital sound .roadcasting or any other use. Instead they are using additional spectru# "or the de'elop#ent o" digital sound .roadcasting and only ha'e 'ery long ter# plansC i" anyC "or phasing out analogue /+. It is not e'en clear at this ti#e ,hich digital technologies are #ost li3ely to e#erge internationally as the #ar3et leader. 2or t"e purpose of medium5term planning of t"e de#elopment of 2M sound %roadcasting1 t"e impact of new digital distri%ution systems s"ould %e discounted and1 instead1 a )wait and see+ approac" s"ould %e taken to t"e emergence of digital sound %roadcasting.

-(#(- )uture of public service broadcasting

7e ha'e not conducted detailed analysis o" the "unctioning o" GBC ho,e'er it is apparent "ro# our en1uiries that there are a nu#.er o" issues that need attention i" GBC is to #aintain its position in the .roadcasting landscape and to .e a true pu.lic ser'ice .roadcaster. <nder the Ghana Broadcasting Corporation &ecree 19* C GBC does not ha'e a ,ell8de"ined pu.lic ser'ice #andate and in particular the .oundaries .et,een its co##ercial and non8 co##ercial acti'ities are not clear. The decline o" pu.lic re'enuesC and particularly the decreasing 'alue o" the tele'ision recei'ing set licence "eeC has led GBC to rely increasingly on co##ercial re'enue ,ith a conse1uent reduction in pu.lic ser'ice progra##ing. It is also struggling to #aintain existing ser'ices and has .een slo, to de'elop online and digital ser'ices. The )+C has po,ers to appoint 4and to re#o'e5 the Board and Chie" Executi'e o" GBC .ut it could also ta3e a legiti#ate interest in the ,ider policy "ra#e,or3 ,ithin ,hich GBC operates. GBC re#ains Ghana;s largest .roadcasting organisation ,ith su.stantial "unding "ro# Go'ern#ent. Its "uture is a #atter o" pu.lic interest that #erits ,ider pu.lic discussion. &he N1$ should commence a public consultation into the future of GB$ *ith the aim of developing a ne* statute for GB$ *ith a clear and more detailed public service broadcasting mandate( &he consultation should have particular regard to consulting on GB$>s public service responsibilities and performance its commercial activities the development of GB$ online and digital services and its future funding(

3.7

-esource re*uirements
The )+C has a short "all in capacity "or its existing regulatory "unctions. %n increase in its regulatory responsi.ilities ,ould re1uire a su.stantial gearing up o" the organisation. This ,ould re1uire additional pro"essional and

-(3(1 Building N1$ capacity

ad#inistrati'e sta"" including additional legalC researchC policy de'elop#entC #onitoring and technical capacity. $"e NM s"ould recruit a $ec"nical 8irector wit" know5"ow in t"e area of radio fre*uency engineering1 a Legal !d#isor wit" know5"ow in t"e media industry and additional professional and administrati#e staff sufficient to operate an increased regulatory workload. The )+C #ight also .ene"it in the short ter# "ro# a second#ent to pro'ide support in institutional de'elop#ent and putting in place o" ne, regulatory syste#s. This could assist in .uilding capacity across the organisation. 9ptions s"ould %e e&plored for recruiting and funding t"e s"ort term secondment to t"e NM of a "ig" le#el professional wit" e&perience in regulatory systems and institutional de#elopment

-(3(! Building N$A capacity

(ro'iding additional po,ers o" .roadcasting regulation to the )+C ,ould re1uire a closer ,or3ing relationship .et,een )+C and )C%. Each institution ,ould need to understand the "unction o" the other and the legal and policy "ra#e,or3 ,ithin ,hich it operates. This 3no,8ho, could .e introduced through training o" existing personnel and9or through recruit#ent o" ne, personnel. /or )C%. existing personnelC ,ith so#e training and orientationC could assu#e the roles o" liaison ,ith )+C. N ! staff working on %roadcast fre*uency assignment s"ould recei#e orientation and training to %etter understand t"e policy goals and functions of pu%lic interest %roadcasting regulation.

-(3(- )unding of the N1$

The current go'ern#ent "inancial support to the )+C is not su""icient "or the changes proposed and additional "unding ,ould .e needed. This could partly co#e "ro# an increase in go'ern#ent support .ut the )+C should also .uild capacity to achie'e a higher le'el o" internally generated "unding. This could co#e in part "ro# annual "ees paid .y .roadcasters. Currently the )+C pro'ides a co#plaints settle#ent ser'ice to the .roadcasting industry .ut it recei'es no "ees "or doing so nor is it a.le to le'y "ines ,hich could also .e a signi"icant source o" re'enue. The creation o" a .roadcasting ser'ice authorisation responsi.ility ,ould ena.le the )+C to esta.lish a contractual relationship ,ith .roadcasters including the receipt o" application "ees and annual regulatory "ees. These "ees ,ould replace the current "re1uency authorisation "ees le'ied .y the )C%. /or the )C% this represents only a 'ery #inor part o" its re'enue ,ith the #aDor part co#ing "ro# teleco##unications licensing. )C% could .e co##ensurated "or its pro'ision o" technical ser'ice "or .roadcasting regulation through a co##ensurate increase in its "unding retained "ro# teleco##unications licensing "ees. In addition ,e .elie'e the )+C is under8exploiting the potential "or donor support andC ,hilst it should a'oid dependence on external donorsC this can .e a #eans to support proDect8.ased ,or3 such as research reportsC de'elop#ent o" codes o" practiceC pu.lications and pu.lic consultation. There is also scope "or external "unding o" the in'est#ent costs associated ,ith the )+C;s institutional de'elop#ent such as training and technical assistance.

7e en'isage re'enue o" the )+C ,ould need to approxi#ately dou.le in the short ter# 42--3 inco#eK cedi 1C1-9#5C in co#parison to its present inco#e and expenditireC ,ith around one third each co#ing "ro# .roadcaster "eesC donors and increased go'ern#ent support. In the #ediu# ter# "urther re'enue increases ,ould co#e "ro# additional .roadcaster "ees. $"ere s"ould %e an increase in go#ernment funding to t"e NM to %e matc"ed %y internally generated funding t"roug" ser#ice aut"orisation fees paid %y %roadcasters ,currently paid to t"e N ! for fre*uency aut"orisation/ and additional donor support for s"ort5term pro4ects including de#elopment of t"e NM :s institutional capacity.

-(3(. )unding of GB$

7e ha'e co##ented a.o'e on the need "or a re'ie, and pu.lic consultation on GBC and one aspect o" such re'ie, #ust .e its "unding and associated guarantees o" independence. GBC currently has in place a collection #echanis# "or the tele'ision recei'er set licence "ee .ut in"lation o" se'eral years has reduced the 'alue o" the "ee to less than the costs o" collection. The licence "ee re#ains a potentially 'alua.le #echanis# "or "unding GBC. It can contri.ute to the "inancial independence o" the .roadcaster ,ithout co#pro#ising co##it#ents to pu.lic ser'ice .roadcasting. 7hile other potential #echanis#s exist such as a le'y on electricity .illsC the licence "ee has pro'ed to .e a resilient #echanis# in other countries. In the case o" GBCC this collection #echanis# is already in place. 7hat is needed is "or the "ee to .e increased to a le'el that generates signi"icant re'enue ,ithout .eing so great an increase as to cause hardship "or tele'ision 'ie,ers. Parliament s"ould take immediate steps to update t"e licence fee to a #ia%le le#el wit" a %uilt5in protection against inflation.

-(3(# N1$ and GB$ staff remuneration

In our discussions ,ith )+C and GBC attention ,as dra,n to a structural pro.le# in the recruit#ent o" people o" su""iciently high cali.re to #eet the speci"ications o" senior pro"essional positions. The pay#ent o" salaries through the pu.lic ser'ant payroll and lin3ed to pu.lic ser'ice scales has #eant that the institutions are una.le to co#pete ,ith rates o" pay in the pri'ate sector "or si#ilar ,or3. This is a di""icult pro.le# to address .ut it presents a signi"icant ris3 to other e""orts to .uild capacity through sta"" appoint#ents and additional "unding. 0apid gro,th in the co##ercial co##unications sector ,ould Dusti"y gi'ing this issue special consideration and it is a "actor that is increasingly ta3en into account in other countries. $"ere s"ould %e a re#iew of terms of remuneration of senior staff in NM and (B to ensure t"ey are competiti#e wit" industry standards and sufficient to recruit *ualified professionals.

.(
4.1

0mplementation
'mplementation strategy
The i#ple#entation o" the reco##endations set out in Chapter ! ,ill re1uire the co##it#ent and the concerted Doint e""ort o" all #aDor sta3eholders. The +inistry o" Co##unications and the +inistry o" In"or#ation ,ill need to ,or3 closely together to dri'e the process and to ensure political coherence. The )ational Co##unications %uthority and the )ational +edia Co##ission ,ill need to put aside past di""erences in order to ,or3 together on a co##on strategy including putting in place #echanis#s "or inter8agency coordination. The support o" .roadcasting industry sta3eholders ,ill .e 'ital and this should .uild on the regional and national consultations that ha'e .een organised .y the Ghana %d'ocacy Steering Co##ittee "or a )e, Broadcasting 2a,. Industry sta3eholders including GBCC co##ercial and co##unity .roadcasters ,ill need to .e closely consulted in the dra"ting o" .roadcasting legislation. Gi'en the pu.lic interest in .roadcasting and .roadcast content regulation e""orts also .e #ade to ensure participation .eyond the .roadcasting industry groups and to include ,ider ci'il society interests.

.(1(1 'nsuring engagement of all stakeholders

.(1(! Working *ith the e=legislation process

7or3 is at an ad'anced stage in the dra"ting o" a series o" e8legislation initiati'es. These include dra"t Bills on e8co##erceC data protectionC teleco##unications and the )ational Co##unications %uthority. &ra"ting on ne, teleco##unications legislation is expected to lead to a#end#ent o" the )ational Co##unications %uthority %ct 199 and the repeal o" the )ational Co##unication 0egulations 2--3. This ,ill necessarily re1uire attention to the "uture arrange#ents "or .roadcasting regulation since the 2--3 0egulations include the current procedures "or .roadcasting "re1uency authorisation. There appears to .e t,o options a'aila.leK 'ither? Inclusion o" ne, .roadcasting legislation ,ithin the Teleco##unications Bill. The dra"t legislation could .e titled Co##unications Bill re"lecting a step to,ards regulatory con'ergence ,ith a part o" the Bill "ocussing on .roadcastingC particularly the regulatory "ra#e,or3 "or .roadcasting and strengthening o" the po,ers o" the )+CH (reparation o" a separate Broadcasting Bill.

%r?

The "irst option ,ould ha'e the .ene"it o" .uilding on an existing process under,ay and ,ould assist in a'oiding any possi.le con"lict ,hich #ight arise .et,een legal pro'isions "or teleco##unications and those "or .roadcasting. This option ,ould re1uire the t,o +inistries responsi.le 4Co##unications and In"or#ation5 to ,or3 closely together in the dra"ting o" the Bill and the ,or3 ,ould need to .e ready to proceed to a ti#eta.le already in place. The second option o" a stand8alone Broadcasting Bill ,ould pro'ide greater "lexi.ility and a less pressured ti#eta.le .ut ,ould still re1uire close coordination ,ith the ,or3 currently under,ay on a Teleco##unications Bill.

7hiche'er option is chosen there should re#ain scope "or "urther regulatory detail to .e addressed in secondary legislation in the "or# o" a 2egislati'e Instru#ent. This ,ould need to .e prepared alongside the pri#ary legislation. %nnex % presents "ra#e,or3 reco##endations "or the content o" the pri#ary legislation ,ith sections that ,ould .e needed and issues to address. The legislati'e dra"ting ,ould #ost appropriately .e done .y Ghanaian experts. The Study tea# ,ould .e a'aila.le "or discussions and clari"ications ,ith the local dra"ting tea#. The +inistry o" Co##unications and the +inistry o" In"or#ation ,ould need to .e in'ol'ed in re'ie,ing the dra"t and especially in sta3eholder consultations on the proposed legislati'e content.

.(1(- Building human and institutional capacity

Success"ul i#ple#entation o" the proposed ne, legal and regulatory "ra#e,or3 ,ill re1uire signi"icant co##it#ents to capacity8.uilding that ,ould need to co##ence in ad'ance o" legislati'e change. The )+C ,ill need additional hu#an resources including a Technical &irectorC a 2egal %d'isor and additional policyC researchC #onitoring and other support sta"". The Technical &irector ,ould .e responsi.le "or de'elop#ent and i#ple#entation o" a "re1uency planC liaison ,ith the )C% on technical #atters and research into the i#pact o" ne, trans#ission technology. Existing )+C sta"" ,ould need training in ne, regulatory procedures including processing o" .roadcasting ser'ice proposals. Existing #onitoring and co#plaints procedures ,ould also need to .e re'ie,ed to .eco#e #ore e""icient and #ore responsi'e. Total sta""ing at the )+C could increase "ro# 22 to around 5-. Second#ent to the )+C o" a &e'elop#ent %d'isor could assist the process o" changeC including the re'ie, o" existing proceduresC the integration o" ne, "unctionsC pro'ision o" ad'ice on incre#ental sta""ing re1uire#entsC and institution o" an iterati'e re'ie, and adDust#ent process. In addition to sta"" recruit#ent and trainingC change ,ould .e needed in the organisational structure o" the )+C ,ith a clearer separation o" roles .et,een the Co##issioners and the executi'e sta"". &ay to day regulatory and other operations ,ould need to .e delegated to the Executi'e Secretary9Chie" Executi'e together ,ith other senior executi'e sta"". This ,ould re1uire clearer de#arcation o" depart#ental responsi.ilities. The role o" Co##issioners ,ould need to .e re'ie,edC along ,ith the co##ittee structure and "re1uency o" #eetings. The Co##issioners responsi.ilities should .e pri#arily those o" appoint#entC o'ersight and regulatory adDudication ,ith executi'e sta"" responsi.le "or researchC in'estigation and initial assess#ent o" proposals and co#plaints. %n Executi'e Board o" three or "our Co##issioners and t,o or three senior executi'e sta"" could assist in dri'ing )+C policy and per"or#ance. The )+C and )C% ,ould need to put in place syste#s "or coordination and Doint ,or3ingC including the arrange#ents "or )C% to pro'ide ad'ice and support to )+CC the syste# "or )C% "re1uency assign#ent .ased on )+C;s .roadcasting ser'ice authorisationsC and procedures to ensure technical co#pliance o" .roadcasting ser'ice pro'iders. Boint ,or3ing could .e assisted ,ith additional sta"" training and exchange. This ,ould ai# to .uild the technical capacity o" the )+C and to ensure e""ecti'e inter8agency ,or3ing.

.(1(. )inancing arrangements

Short8ter# "inancing ,ould .e re1uired to #eet the initial costs o" i#ple#entation including ,or3 on dra"ting the ne, legislationC ad'ice in restructuring o" the )+C and co##issioning studies and re'ie,s. The i##ediate and critical priorities ,ould .eK dra"ting ,or3 on the ne, legislation second#ent o" an institutional de'elop#ent specialist to the )+C re'ie, o" )+C code o" conduct "or Co##issioners re'ie, o" )+C recruit#ent procedures "or Co##issioners training and capacity .uilding o" )C% and )+C sta"" %t an early stage the )+C should ha'e "inancial and sta""ing capacity "orK preparation o" a "re1uency plan "or .roadcast de'elop#ent pu.lic consultation on the "uture o" GBC preparation o" a policy "or the "uture o" sound .roadcasting research into the transition "ro# analogue to digital tele'ision In the #ediu# to long ter# the conduct o" studies and en1uiries and the additional regulatory responsi.ilities ,ould lead to an increase in the "unding re1uire#ents o" the )+C. It is reasona.le to assu#e that )+C;s .udget ,ould need to dou.le ,ithin three years. Its inco#e ,ould need to co#e partly "ro# increased go'ern#ent "undingC partly "ro# internally generated "unding "ro# "ees paid .y .roadcastersC and partly "ro# external donor support. 7hile #ore detailed analysis ,ill .e neededC .ased on an institutional de'elop#ent progra#C pro'isional esti#ates "or the current and next t,o years .udget could .e as "ollo,sK
N1$ 0ncome Go'ern#ent o" Ghana Broadcaster "ees External donor support &otal income '+penditure Sta"" salaries and .ene"its %d#inistrati'e expenses Ser'ice acti'ity 4inc )C%5 Studies and en1uiries &otal e+penditure !""# m $edi 8@S A """9 1C3-- 41!!5 - 4-5 1- 415 1 -1" 81.#9 3-- 4335 $-- 4$*5 1-- 4115 21- 4235 1 -1" 81.#9 !""3 m $edi 8@S A """9 1C$-- 41*95 !-- 4!!5 *-- 4*95 ! 5"" 8-!!9 $-- 4$*5 1C--- 411-5 -- 4 $5 -- 4 $5 ! 5"" 8-!!9 !""7 m $edi 8@S A """9 1C9-- 42115 9-- 41--5 -- 4 $5 - ."" 8-729 9-- 41--5 1C2-- 41335 *-- 4*95 5-- 45 5 - ."" 8-729

Including the costs o" e#ploying additional sta"" ,e esti#ate additional external "inancing ,ould .e needed in the region o" Cedi 1.! .illion 4<S N 15 C---5 o'er t,o years. External support "or incre#ental operating costs ,ould need to .e on a rapidly declining .asis. It is li3ely that the go'ern#ental .udgetary allocation ,ill need to increase correspondinglyC ,ith a le'elling o"" as the re'enue strea# increases "ro# co##ence#ent o" .roadcaster "ees. In

the #ediu# to long ter# external support ,ould .e used "or studies and proDects and not "or core acti'ities.

4.2

'ndicati#e $imeta%le
I" the +inistries o" Co##unication and In"or#ation concur on the su.stanceC the preparatory phase leading up to legislati'e change ,ill need care"ul attention to ti#eta.le and se1uencing o'er a period o" six #onths "ro# )o'e#.er 2--5 to %pril 2-- . The 3ey #ilestones o'er this period ,ould .e the pu.lication o" a Bill in (arlia#ent 4anticipated in /e.ruary 2-- 5 and the appro'al o" the Bill as an %ct o" (arlia#ent 4anticipated in %pril 2-- 5. % ti#eta.le setting out the #ain acti'ities in this phase is pro'ided .elo,.
,reparatory phase +oC and +oI prepare outline Consultation ,ith .roadcasters &ra"t .roadcasting legislation &ra"t 2egislati'e Instru#ent (arlia#ent de.ates9appro'es Bill (arlia#ent de.ates9appro'es 2I 0e'ie, )+C recruit#ent 0e'ie, )+C code o" conduct )+C institutional de'elop#ent Bey milestones (u.lication o" Bill %ct o" (arlia#ent )o' &ec Ban /e. +ar %pr

.(!(1 ,reparatory phase

.(!(! )irst=year implementation

Su.se1uent to passage o" the legislationC )+C in particular ,ould need to #o'e rapidly to put in place additional sta"" and ne, regulatory proceduresC so that it could properly exercise its ne, regulatory po,ers ,hen these ,ould .eco#e )+C;s responsi.ility. It should also co##ence a series o" studies and re'ie,s on the "uture o" .roadcasting in GhanaC in order to set #ediu# and long ter# policy o.Decti'es in consultation ,ith sta3eholders. The "ollo,ing ti#eta.le assu#es the )+C is 'ested ,ith ne, po,ers e""ecti'e Buly 2-- . It is indicati'e and assu#es that external resources to support )+C institutional and capacity de'elop#ent ,ould .e a'aila.le ,hen the proposed legislation .eco#es e""ecti'e. Consultations into digital tele'ision ,ould .e carried out o'er an extended ti#e"ra#e co##encing ,ith a re'ie, o" existing ,or3.
)irst year implementation !""37!""7 )+C institutional de'elop#ent )+C sta"" recruit#ent )+C regulatory procedures )+C sound .roadcasting policy )+C digital tele'ision policy )+C consultation on GBC )+C co#plaints settle#ent )+C ne, regulatory "unctions )+C9)C% Doint "re1uency plan )+C9)C% Doint planning group )C% capacity .uilding %pr8 Bun Bul8 Sep 6ct8 &ec Ban8 +ar

Bey milestones )e, po,ers 'ested in )+C

.(!(- )uture considerations

In the #ediu# ter# the )+C ,ould need to ensure it could e""ecti'ely process a su.stantially hea'ier ,or3load than at presentC including handling increased nu#.ers o" co#plaints and processing .roadcasting ser'ice applications. It ,ould need to esta.lish an annual planning and reporting cycleC ,ith the annual planning process open to pu.lic participationC and it should retain capacity in any gi'en year to #anage t,o or three strategic studies or consultations. In the longer ter#C "urther consideration should .e gi'en to assessing the potential .ene"its o" a #erger .et,een the )+C and the )C% particularly in the context o" ne, technological de'elop#ents in .roadcasting and co##unications. This ,ould al#ost certainly re1uire Constitutional change in 'ie, o" the Constitutional status o" the )+C. % decision to go do,n this route ,ould re1uire planning o'er a t,o to three year period including legislati'e and Constitutional re"or# and integration o" )+C and )C% "unctions.

4.3

-isks
The i#ple#entation strategy depends on concerted co##it#ent "ro# all sta3eholders. The parlia#entary and electoral cycle sets ti#ing constraints. 2in3ing o" .roadcasting to teleco##unications legislation ,ill "urther narro, the ,indo, "or legislati'e change. I#ple#entation ,ill need clear political leadership to a'oid slippage and to ensure policy coherence across go'ern#ental depart#ents. The regulatory .odies ,ill need to .e closely in'ol'ed in the preparation "or and i#ple#entation o" the ne, legislation and #ust .e "ully co##itted to the process and its intended outco#es. Close consultation ,ith .roadcasting sector sta3eholdersC including #e#.ers o" the pu.licC ,ill also need to continue throughoutC to ensure those a""ected .y legislati'e change understand andC ,here necessaryC are a.le to adapt to ,hat is .eing proposed.

.(-(1 ,olitical factors

.(-(! %perational factors

%t the preparatory stage the critical operational "actors ,ill .e the capacity to prepare dra"t legislationC to conduct e""ecti'e consultations and to ena.le the )+C to co##ence ,or3 on institutional de'elop#ent and capacity .uilding. %s noted a.o'eC a"ter (arlia#entary appro'al o" the ne, legislationC the )+C ,ould need to #o'e rapidly on the recruit#ent o" additional sta""C co##ence#ent o" studies and re'ie,sC putting in place o" ne, regulatory procedures and the con'ersion o" existing "re1uency authorisations to the ne, Broadcasting ser'ice authorisation. These all re1uire "or,ard planning to put into place. In .oth the preparatory phase and the "irst year o" i#ple#entationC resources ,ill need to .e a'aila.le in ad'ance o" ne, re'enue strea#s co#ing online "ro# .roadcaster "ees. This ,ill re1uire additional "inancial support to .e a'aila.le ,hen neededC either "ro# go'ern#ent or external donors or a co#.ination o" .oth.

4.4

onclusions
7ith the concerted support o" all sta3eholdersC the reco##endations and i#ple#entation strategy set out in this Study present a 'ia.le approach to i#pro'e the legislati'e and regulatory "ra#e,or3 "or .roadcasting in Ghana. The i#ple#entation plan ,ill re1uire signi"icant in'est#ent particularly in the transitional period o" institutional de'elop#ent that ,ill need to acco#pany the 'esting o" ne, po,ers in the )+C. The ti#eta.le "or i#ple#entation is lin3ed to the ,ider agenda "or e8legislation. %ddressing .oth .roadcasting and teleco##unications in a .roader Co##unications Bill #ay assist in anticipating "uture technological con'ergence. &etailed legislati'e dra"ting ,ill .e re1uired to ta3e this ,or3 "or,ard. This ,ill need to .e .ac3ed8up .y close consultation ,ith the all #aDor sta3eholdersC "ollo,ed .y in"or#ed consultations ,ith legislators. The i#ple#entation progra##e 8 "ocussing principally on institutional strengthening o" )+CC technical support and consultations needed to de'elop policiesC plans and strategies "or the sector 8 ,ill need to .e costed and an appropriate source o" external "unding deter#ined and agreed.

.(.(1 Summary and ne+t steps

.(.(! $oncluding remarks

Ghana has de'eloped a dyna#ic and plural .roadcasting landscape o'er the last 1- years. This has co#e a.out through a li.eral regulatory approach that has opened the door to ne, actors and ena.led co##ercial .roadcasting to ta3e root. Co##unity .roadcasting is #uch less de'eloped .ut has already de#onstrated its 'ital role in reaching out to rural co##unities and poor and #arginalised groups. The approach ta3en has gi'en Ghana the "lexi.ility to test out di""erent .roadcasting approaches and to #o'e .eyond the era o" a #onopoly state .roadcaster. There is an ac3no,ledged need no, to put in place clear and ro.ust regulatory procedures that ,ill ena.le Ghana to .uild on these achie'e#ents. The analysis and reco##endations o" this Study ai# to support the gro,th o" a di'erse .roadcasting landscape that can sustain Ghana;s cultural heritage and contri.ute to its "uture de'elop#ent priorities.

Anne+es

Anne+ 1( ,roposed $ontent for Broadcasting /egislation

This annex pro'ides ad'ice on the structure and content o" .roadcasting legislation "or GhanaC re"lecting an a#alga# o" glo.al good practices directly rele'ant to the Ghanaian context. The in"or#ation is intended as a "ra#e,or3 "or the Ghanaian legal dra"ters; use. /or the sa3e o" concisenessC it is presented in a ta.leC ,ith chapter and section titles on the le"tC and .rie" explanations o" the sections; intent on the right. I" the legal dra"ters ,ould "ind it use"ulC the Ban3 ,ill arrange "or con"erence calls and other discussions to pro'ide clari"ications during the dra"ting process. S(lease re"er to Section 1.5 o" this report 4pages 1! 8 315 "or re"erences to good practice exa#ples discussed in the dra"t Guide to Good Practices on the Enabling Environment for Voice and MediaC ,hich in"or#ed the content .elo,.T
$hapter and Section &itles '+planatory Notes

$<A,&'R 0? BR%A6$AS&0NG S'RC0$' A@&<%R0SA&0%N

1. (rohi.ition on pro'ision o"
.roadcasting ser'ice ,ithout authori@ation This section ,ould esta.lish the need to o.tain a .roadcasting ser'ice authorisation.

2. Categories o" .roadcasting ser'ice

authori@ation 3. %pplication procedure in relation to .roadcasting ser'ice authorisation !. :earings in relation to applications "or .roadcasting ser'ice authorisation 5. Entitle#ents under and conditions pertaining to .roadcasting ser'ice authorisation

This section ,ould set out the categories o" authorisation including pu.licC co##ercialC co##unityC institutional and te#porary. This section ,ould set out procedures "or a .roadcasting ser'ice authorisation. This section ,ould pro'ide "or the option o" pu.lic hearings to .e conducted .e"ore issuing a .roadcasting ser'ice authorisation. This section ,ould con"ir# the entititle#ent o" the holder o" a .roadcasting ser'ice authorisation to use the "re1uency or "re1uencies assigned to it "or the pro'ision o" that .roadcasting ser'ice su.Dect to conditions set .y the )+CC including technical conditionsC content o.ligationsC o,nership and other general conditions. This section ,ould set out arrange#ents and conditions "or rene,al o" authorisation. This section ,ould set out speci"ic criteria to .e used in deter#ining a proposal "or a pu.lic .roadcasting ser'ice. This section ,ould set out speci"ic criteria to .e used in deter#ining a proposal "or a co##ercial .roadcasting ser'ice.

. 0ene,al o" .roadcasting ser'ice authorisations $. (u.lic .roadcasting ser'ices

*. Co##ercial .roadcasting ser'ices

(roposed Content "or Broadcasting 2egislation 4continued5

%nnex 1

$hapter and Section &itles

'+planatory Notes

$hapter 1 8continued9
9. Co##unity .roadcasting ser'ices This section ,ould set out speci"ic criteria to .e used in deter#ining a proposal "or a co##unity .roadcasting ser'ice. This section ,ould set out speci"ic criteria to .e used in deter#ining a proposal "or institutional and te#porary .roadcasting ser'ices. This section ,ould set out rules on "oreign o,nershipC "or exa#ple this could include a re1uire#ent that o,nership .e restricted to co#panies ,ith #aDority Ghanaian o,nership. This section ,ould set out rules on concentration o" o,nershipC "or exa#ple this could li#it to not #ore than one radio station co'ering the sa#e locationC and9or li#its on the total nu#.er o" radio or tele'ision ser'ices. This section ,ould set out rules on o,nership across #ore than one #ediaC "or exa#ple this could .e used to pre'ent a ne,spaper "ro# holding #aDority o,nership in a tele'ision and a radio station ser'ing the sa#e location. This section ,ould pre'ent party political opr religious .odies "ro# operating a .roadcasting ser'ice. This section ,ould pro'ide "or the )+C to #a3e a#end#ents to a .roadcasting ser'ice authorisation This section ,ould set out the duration "or ,hich the .roadcasting ser'ice authorisation is 'alidC "or exa#ple six or eight years. This section ,ould set out a re1uire#ent on .roadcasting ser'ice operators to record and retain a copy o" their progra##e output "or a "ixed period eg 2* daysC a"ter .roadcast.

1-. Institutional and te#porary .roadcasting ser'ices

11. 2i#itations on "oreign control o" pri'ate .roadcasting ser'ices

12. 2i#itations on control o" pri'ate .roadcasting ser'ices

13. 2i#itations on cross8#edia control o" pri'ate .roadcasting ser'ices

1!. (rohi.ition on granting o" .roadcasting ser'ice authorisation to party political or religious .odies 15. %#end#ent o" .roadcasting ser'ice authorisation 1 . Ter# o" .roadcasting ser'ice authorisation 1$. 0ecord o" progra##es .roadcast .y .roadcasting ser'ice operators

(roposed Content "or Broadcasting 2egislation 4continued5

%nnex 1

$hapter and Section &itles

'+planatory Notes

$<A,&'R 00? )R'D@'N$E ASS0GN1'N& )%R BR%A6$AS&0NG S'RC0$'S

1*. )+C principally 'ested ,ith po,ers in relation to planning and use o" .roadcasting ser'ices "re1uency .ands 19. Broadcasting /re1uency (lan 2-. Boint )+C 9 )C% /re1uency +anage#ent Co##ittee This section ,ould esta.lish that pri#ary responsi.ility "or the planning and use o" .roadcasting "re1uencies rests ,ith the )+C. This is a policy not a technical "unction. This section ,ould set out the need to esta.lish a "re1uency plan "or .roadcasting. This section ,ould esta.lish a Boint )+C9)C% /re1uency +anage#ent Co##ittee to coordinate .et,een the policy and regulatory responsi.ilities o" the )+C and the "re1uency assign#ent responsi.ilities o" the )C%. This section ,ould esta.lish that the technical para#eters "or trans#itters and trans#ission co'erage are to .e assigned .y the )C% ,ithin the "ra#e,or3 o" the .roadcasting "re1uency plan and to #eet the technical re1uire#ents o" a .roadcasting ser'ice authorisation. This section ,ould set out the duty o" .roadcasting ser'ice operators to co#ply ,ith the assigned technical para#eters This section ,ould pro'ide the )C% ,ith po,ers to ,arn in the case o" non8 co#pliance and to re1uest co#pliance. The )C% ,ould also ha'e li#ited po,ers o" inter'ention to suspend a ser'ice in cases o" serious inter"erence causing i##ediate har#. This section ,ould pro'ide that third party carriers o" .roadcasting ser'ices #ust .e registered as such ,ith the )+C and #ay only carry authorised .roadcasting ser'ices.

21. Trans#itters and trans#ission characteristics to .e assigned .y )C%

22. General technical o.ligations o" .roadcasting ser'ice operators 23. (o,ers o" )C% to en"orce co#pliance ,ith technical o.ligations

2!. 6.ligations o" third party carriers o" .roadcasting ser'ices

(roposed Content "or Broadcasting 2egislation 4continued5

%nnex 1

$hapter and Section &itles

'+planatory Notes

$<A,&'R 000? R'G@/A&0%N %) BR%A6$AS&0NG $%N&'N&

25. Broadcasting standards This section ,ould pro'ide a pri#ary la, .asis "or 4updated5 )+C Broadcasting Standards. This section ,ould pro'ide a pri#ary la, .asis "or 4ne,5 )+C %d'ertising Standards. This section ,ould pro'ide a pri#ary la, .asis "or 4updated5 )+C Guidelines "or (olitical 0eporting This section ,ould pro'ide a pri#ary la, .asis "or 4updated5 )+C Guidelines "or (olitical 0eporting This section ,ould pro'ide a pri#ary la, .asis "or 4updated5 )+C Guidelines "or (olitical 0eporting

2 . %d'ertising standards 2$. (rohi.ition on .roadcasting o" party election .roadcasts except in certain circu#stances 2*. Broadcasting o" party election .roadcasts .y .roadcasting ser'ice operators during election period 29. E1uita.le treat#ent o" political parties .y .roadcasting ser'ice operators during election period

$<A,&'R 0C ? 'N)%R$'1'N&
3-. Broadcasting +onitoring and Co#plaints Co##ittee This section ,ould a#end the )+C %ct 1993 to pro'ide a ne, pri#ary la, .asis "or 4updated5 )+C Broadcast Ser'ice +onitoring and Co#plaints Settle#ent (rocedures This section ,ould a#end the )+C %ct 1993 to pro'ide a ne, pri#ary la, .asis "or 4updated5 )+C Broadcast Ser'ice +onitoring and Co#plaints Settle#ent (rocedures This section ,ould a#end the )+C %ct 1993 to pro'ide a ne, pri#ary la, .asis "or 4updated5 )+C Broadcast Ser'ice +onitoring and Co#plaints Settle#ent (rocedures This section ,ould a#end the )+C %ct 1993 to pro'ide a ne, pri#ary la, .asis "or 4updated5 )+C Broadcast Ser'ice +onitoring and Co#plaints Settle#ent (rocedures

31. :earings held .y Broadcasting +onitoring and Co#plaints Settle#ent Co##ittee 32. 0eco##endations o" Broadcasting +onitoring and Co#plaints Settle#ent Co##ittee

33. (o,ers o" )+C in Cases o" (ro'en

)on8co#pliance ,ith %ctC 2icence Conditions or 0egulatory codes

3!. 6""ences and (enalties

(roposed Content "or Broadcasting 2egislation 4continued5

%nnex 1

$hapter and Section &itles

'+planatory Notes

$<A,&'R C? G'N'RA/ ,R%C0S0%NS )%R G%C'RNAN$' AN6 )@N$&0%N0NG %) &<' N1$

35. Esta.lish#ent o" Executi'e Board o" )+C 3 . (o,ersC duties and responsi.ilities o" Executi'e Board 3$. +eetings o" Executi'e Board 3*. Esta.lish#ent o" Standing Co##ittees

This section ,ould pro'ide "or the esta.lish#ent and co#position o" an Executi'e Board o" the )+C. This section ,ould set out the po,ersC duties and responsi.ilities o" the Executi'e Board. This section ,ould set out the procedures "or #eetings o" the Executi'e Board. This section ,ould a#end the )+C %ct 1993 pro'ision "or standing co##ittees to include explicitly a co##ittee "or the authorisation o" .roadcasting ser'ices. This section ,ould a#end the )+C %ct 1993 to set out po,ersC duties and responsi.ilities o" Standing Co##ittees. This section ,ould set out the procedures "or #eetings o" the Standing Co##ittees This section ,ould set out the .asis on ,hich )+C #ay delegate po,ers to the Executi'e Board or the Standing Co##ittees This section ,ould pro'ide a ne, po,er o" the )+C to conduct pu.lic in1uiries. This section ,ould place a duty on the )+C to #aintain a pu.lic register o" .roadcasting ser'ice authorisations. This section ,ould set out the record 3eeping re1uire#ents o" .roadcasting ser'ice operators to .e included in conditions o" authorisation. This section ,ould pro'ide a ne, po,er to the )+C to re1uire production o" .roadcasting ser'ice operators .oo3s and other records. This section ,ould set out the conditionsC procedures and appro'als re1uired in the trans"er o" a .roadcasting ser'ice authorisation "ro# one .ene"icial o,ner to another.

39. (o,ers duties and responsi.ilities o" Standing Co##ittees !-. +eetings o" Standing Co##ittees !1. &elegations o" po,ers to the Executi'e Board and Standing Co##ittees !2. In1uiries .y the )+C !3. 0egister o" .roadcasting ser'ice authorisations !!. 0ecords to .e 3ept .y .roadcasting ser'ice operators

!5. )+C #ay de#and production o" .roadcasting ser'ice operators .oo3sC recordsC etc ! . Trans"er o" .roadcasting ser'ice authorisation

(roposed Content "or Broadcasting 2egislation 4continued5

%nnex 1

$hapter and Section &itles

'+planatory Notes

$<A,&'R C 8continued9
!$. Con"lict o" interest This section ,ould a#end the )+C %ct 1993 top strengthen the pro'ision "or dealing ,ith con"lict o" interest This section ,ould pro'ide "or a ne, duty o" con"identiality "or )+C Co##issioners. This section ,ould pro'ide the )+C ,ith additional po,ers to initiate regulatory instru#ents in relation to .roadcasting ser'ice authorisation and .roadcasting content.

!*. Con"identiality !9. 2egislati'e Instru#ents

Anne+ !( $omparative Analysis of Broadcast Regulation in Africa

This annex co#pares the ena.ling en'iron#ents o" "our countries o" su.8 Saharan %"ricaC in ter#s o" K Guarantees o" /reedo# o" ExpressionH Broadcast 0egulationH Broadcast ContentH (u.lic Ser'ice BroadcastingH Co##unity BroadcastingH Co##ercial BroadcastingH and 0adio "re1uency spectru#. Co#parati'e exa#ples are dra,n "ro# South %"rica and "ro# three countries o" the su.8regionK BeninC Bur3ina /asoC and +ali. The choice o" exa#ples is .ased on assess#ent against international .est practice. 7hile .roadcasting legislationC regulation and practice in the three 7est %"rican countries do not #eet all .est practice standards they are the three .est exa#ples in the su.8 region and pro'ide use"ul co#parati'e data in the context o" ,or3 in EC67%S on co##unications regulation. South %"rica is included in the co#parati'e analysisC .ecause it is an internationally recognised #odel o" good practice and it pro'ides the .est anglophone %"rican re"erence. 1 18a9 Guarantees of freedom of e+pression Benin The Constitution o" the 0epu.lic o" Benin adopted on &ece#.er 199- "ro# the reco##endations o" the )ational So'ereign Con"erence held on /e.ruary 19 to 2*C 199-C pro'ides speci"ic guarantees o" "reedo# o" expression. %rticle 23 statesK IE'ery person has "reedo# o" thoughtC o" conscienceC o" "aithC o" religious cultC o" opinion and o" expression ,ithin the respect o" pu.lic order as esta.lished .y la, and regulations. The exercise o" "aith and the expression o" religious .elie"s are to .e exercised in respect to the secularity o" the StateJ. /reedo# o" the press is "urther re"erred to in %rticle 2! ,hich statesK I/reedo# o" speech is recogni@ed and guaranteed .y the StateC it is protected .y the Haute Autorite de lAudiovisuel et de la Communication under the conditions set .y the la,J. The Constitution pro'ides "or the direct applica.ility o" international la,. The (rea#.le o" the 199- Constitution re"ers to the <nited )ations Charter o" 19!5C to the <ni'ersal &eclaration on :u#an 0ights and to the %"rican Charter on :u#an and (eoples 0ights ,hich is annexed to the Constitution. %rticle $ o" the Constitution indicates that the rights and o.ligations guaranteed .y the %"rican Charter on :u#an and (eoples 0ights are e1ually guaranteed in Benin. The (rea#.le and %rticle II indicates also that any treaty and agree#ent to ,hich Benin is a signatory ta3es precedence o'er do#estic legislation as soon as it is rati"ied. Thus Benin has today #any hu#an rights instru#ents ,hich are part o" its national legal syste#.

Co#parati'e %nalysis o" Broadcast 0egulation in the %"rica 0egion

%nnex 2

18b9

Burkina )aso /reedo# o" opinion and expression is guaranteed in general ter#s .y %rticle $ o" the Bune 1991 Constitution ,hich statesK I/reedo# o" religious .elie"C as ,ell as non .elie"C "reedo# o" religious and philosophical opinionC "reedo# o" exercise o" a religious cultC "reedo# o" asse#.lyC "reedo# to "ollo, the custo#s as ,ell as the "reedo# o" pu.lic de#onstration are guaranteed .y the present ConstitutionC as long as long as the la,sC pu.lic orderC the pu.lic #orals and hu#an dignity are respectedJ. %rticle * indicates #ore speci"icallyK I/reedo# o" opinionC "reedo# o" the press and "reedo# o" in"or#ation are guaranteed. E'ery indi'idual has the right to express and trans#it his9her opinions ,ithin the context o" the la,s and regulations in placeJ. The (rea#.le o" the Constitution indicates that Bur3ina /aso su.scri.es to Ithe <ni'ersal &eclaration on :u#an 0ights o" 19!* and to the international instru#ents on econo#icC socialC cultural and political issuesJC and rea""ir#s its Iadherence to the %"rican Charter on :u#an and (eople;s right o" 19!*J. The Code o" In"or#ation 42a, 5 993 enacted on &ecC 19935 pro'ides additional guarantees on "reedo# o" in"or#ationK I/reedo# o" In"or#ation is one o" the "unda#ental hu#an rights o" the citi@ens o" Bur3ina /asoJ.

18c9

1ali /reedo# o" Expression is explicitly guaranteed .y %rticle ! o" the Constitution ,hich statesK IE'ery person has the right to "reedo# o" thoughtC conscienceC religionC opinionC expression and creation in respect to the la,J. /reedo# o" the press is explicitly guaranteed .y %rticle $ ,hich declaresK I/reedo# o" the press is recogni@ed and guaranteed.J The Constitution #a3es roo# "or situations ,hen Iexceptional po,ersJ #ight .e 'ested on the (resident o" the 0epu.lic ,hich #ight i#pose li#itations to the right to "reedo# o" expression. Such a situation is li#ited to special circu#stancesK J,hen the institutions o" the 0epu.licC the independence o" the )ationC the integrity o" the )ationC the i#ple#entation o" international accords are gra'ely and i##ediately threatened and that the regular "unctioning o" pu.lic and constitutional po,ers are interruptedC the (resident o" the repu.lic ta3es such actions as re1uired .y the circu#stances a"ter consultation ,ith the (residents o" the )ational %sse#.ly and o" the Constitutional CourtUJ 6ther circu#stance ,hen the right o" "reedo# o" expression #ight .e li#ited is the Istate o" e#ergencyJ and the Istate o" siegeJ as descri.ed .y %rticle $2 ,hich is li#ited to 1- days #axi#u#C a"ter the )ational %sse#.ly has gi'en its authorisation. The Constitution pro'ides "or the direct applica.ility o" international la, and su.scri.es to the &ece#.er 1-C 19!* &eclaration on :u#an 0ights and to the %"rican Charter on :u#an and (eoples 0ights. The Constitutional Court set up .y article *5 o" the Constitution is a #echanis# to pro'ide constitutional guarantees "or it IDudges o" the constitutionality o" la,s and guarantees the "unda#ental hu#an rights and pu.lic li.erties. It is the regulating organ o" the "unctioning o" the institutions and pu.lic authorities.J

Co#parati'e %nalysis o" Broadcast 0egulation in the %"rica 0egion 18d9

%nnex 2

South Africa Section 1 o" the South %"rican constitution pro'ides that IE'eryone has the right to "reedo# o" expressionC ,hich includes "reedo# o" the press and other #ediaJ. Section 3 o" the constitution pro'ides "or li#ited restrictions on all rightsC including "reedo# o" expressionC as "ollo,sK
The rights in the Bill o" 0ights #ay .e li#ited only in ter#s o" la, o" general application to the extent that the li#itation is reasona.le and Dusti"ia.le in an open and de#ocratic society .ased on hu#an dignityC e1uality and "reedo#C ta3ing into account all rele'ant "actors including8 4a5 the nature o" the rightH 4.5 the i#portance o" the purpose o" the li#itationH 4c5 the nature and extent o" the li#itationH 4d5 the relation .et,een the li#itation and its purposeH and 4e5 less restricti'e #eans to achie'e the purpose.

In practiceC the Constitutional Court has interpreted this as to per#it only 'ery li#ited restrictions on "reedo# o" expression. !( !8a9 Broadcast regulation Benin The creation o" a regulatory .odyC the Haute Autorite de lAudiovisuel et de la communication 4:%%C5 on %ugust 21C 1992 42a, ) 928-215 ,as a reco##endation o" the Conference Nationale ouveraine 4/e.ruary 19 to 2*C 199-5C i#posed .y ci'il society organi@ations on the #ilitary regi#e to re'ie, the go'ernance o" the country. The Con"erence laid the "oundations o" a syste# .ased on the rule o" la,C the respect o" "unda#ental hu#an rights and "ree enterprise. The Con"erence appointed an interi# (ri#e +inister charged ,ith the preparation o" a re"erendu# on a ne, Constitution and sy#.olically changed the country na#e "ro# &aho#ey as it ,as called .y the /rench during coloni@ation to Benin its ancient na#e. The ne, Constitution adopted .y re"erendu# on &ece#.er 199- sought to insulate the #edia "ro# go'ern#ent pressure and #a3e it a ,atchdog o" go'ern#ent and reco##ended that the regulatory .ody .e rooted in the Constitution in order to gi'e it legiti#acy co#para.le to that o" the Executi'e and thus esta.lished that Ithe Haute Autorit! de lAudiovisuel et de la Communication is an institution independent o" all political po,ersC organi@ation or lo..y o" any sortJ The #andate and po,ers o" the :%%C are extensi'e and includeK ITo guarantee and ensure "reedo# and protection o" the press and o" all #edia o" #ass co##unicationC in the respect o" la,UJC ITo ensure respect o" pro"essional standards and ethicsC ensure e1uita.le access o" all political partiesC organi@ations and citi@ens to the #ediaJ and ITo guarantee the proper and e1uita.le use o" the pu.lic press and the .roadcasting #eansC each according to its constitutional #issions and act as re"ereeC i" necessary.J This .road de"inition does not descri.e the "ull extent o" the #ission o" the :%%C #issions ,hich concerns the print #edia as ,ell as the .roadcast #ediaC and extends "ro# settling disputes .et,een the #edia and the pu.licC to the training o" DournalistsC the appoint#ent o" the &irectors General o" the

Co#parati'e %nalysis o" Broadcast 0egulation in the %"rica 0egion

%nnex 2

state o,ned #edia organi@ationsC the en"orce#ent o" ethical guidelinesC and the allocation o" .roadcast "re1uencies "or tele'ision as ,ell as "or radio. The :%%C is co#posed o" nine #e#.ers including three designated .y the :ead o" State o" ,hich one is a legal practitioner and the other a co##unication specialist or a DournalistH three designated .y the )ational %sse#.ly 4,ith the sa#e pro"ile as those designated .y the :ead o" State5 and three designated .y the Dournalists. The three representati'es o" the Dournalists are "irst elected .y their di""erent constituencies 4the printC the .roadcast and the technology sectors5C a"ter a ca#paign during ,hich they present their progra# "or the :%%C. The president o" the :%%C is appointed .y the (resident o" the 0epu.lic as indicated .y the Constitution. This disposition is ho,e'er .eing presently challenged .y the Dournalists and a de#and "or the re'ision the Constitution to a#end it is seriously considered. :%%C Councilors ser'e one single ter# o" 5 yearsC and cannot .e re'o3ed. The :%%C #eets regularly ,ith the 'arious #edia houses and hold pu.lic consultations on 'arious #attersC nota.ly on the "re1uency planC the a'aila.ility o" "re1uencies and the selection o" "re1uency licensees. It pu.lishes an annual report that it sends to .oth the :ead o" State and the (resident o" the )ational %sse#.ly. Its audited accounts are presented to the :ead o" StateC to the )ational %sse#.lyC to the Co##unication +inistry and to the +inistry o" /inance. The .udget o" the :%%C is pro'ided "or .y the )ational %sse#.ly upon re1uest o" the (resident o" :%%C through the +inistry o" /inance. &ecisions o" the :%%C can .e challenged either in the Constitutional CourtC in the Supre#e Court or e'en .e"ore the ordinary Courts. !8b9 Burkina )aso The Conseil Superieur de lIn"or#ation 4CSI5 is an Iad#inistrati'eJC 4i.e. not constitutionally8.ased5 organi@ationC set up on %ugust 1995 .y presidential decree as reco##ended .y the Code o" In"or#ation %ct o" &ece#.er 1993C replaced .y a la, enacted .y the )ational %sse#.ly on Bune2*C 2--- and endorsed .y (residential &ecree on Banuary !C 2--1. The CSI is responsi.le "or Ithe i#ple#entation o" the legislati'e and regulatory "ra#e,or3 "or all pu.lic and pri'ate .roadcasters so as to protect the "reedo# o" in"or#ationI. +ore speci"icallyC the CSI has the po,er to authori@e the use o" "re1uencies .y pri'ate radio and tele'ision stations and to authori@e the use o" tele'ision re.roadcast thorough ++&S. :o,e'erC .roadcasting licenses are "or#ally allocated .y the Co##unication +inister a"ter the teleco##unication operator has con"ir#ed the a'aila.ility o" the "re1uency. %s part o" its #issionC CSI has a duty to en"orce pluralis# and .alance in the .roadcast #edia contentsC to ensure the access o" political parties to pu.lic #edia during electoral ca#paignsC to ensure the respect o" ethics .y DournalistsC and to en"orce pro"essional standards and #ediate in disputes .et,een the pu.lic and the #edia. In relation to the executi'e and legislati'e .ranchesC CSI #ay .e re1uested to gi'e ad'ice in relation to the dra"ting o" a Bill or to "or#ulate reco##endations in relation to its "ield o" co#petence. The CSC #ay also dra"t speci"ic licensing re1uire#ents "or the 'arious pri'ate and pu.lic .roadcasting categories.

Co#parati'e %nalysis o" Broadcast 0egulation in the %"rica 0egion

%nnex 2

The CSI has 11 CouncilorsK ! no#inated .y the (resident o" the 0epu.licC 3 .y the (resident o" the )ational %sse#.lyC 2 .y the Supre#e CourtC and 2 .y the Bournalists; %ssociation. The CSI holds con"erences and se#inars throughout the country on di""erent aspect o" its #ission. It is "or exa#ple presently consulting ,ith the #edia on the organi@ation o" the co'erage o" the 2-- presidential elections. The CSI is "or#ally accounta.le to the (resident o" the 0epu.lic to ,ho# it presents an annual report and to the Court o" %ccounts to ,hich it su.#its its "inancial state#ent. The CSI recei'es its .udget "ro# the Go'ern#ent and is not allo,ed .y la, to recei'e #oney "ro# any other source. !8c9 1ali T,o regulatory .odies the Conseil u"erieur de la Communication 4CSC5 ,hich ,as set up in &ece#.er 1992 and the Comit! National de lEgal Acc#s au$ M!dias dEtat 4C)E%+E5 set up in in Banuary 1993 are in charge ,ith the i#ple#entation o" %rticle $ o" the 1992 Constitution ,hich states that "reedo# o" expression is guaranteed under the la,. The C)E%+E regulatory role is concerned only ,ith the access o" political parties to State #edia and its acti'ities are de'eloped #ainly during electoral ca#paigns. The regular regulation o" the .roadcast #edia rests entirely ,ith the CSC. The co#positionC po,ers and duties o" the CSC are set out in the CSC %ct o" 1992 4)u# 928-3*5. The CSC decides on the allocation and ,ithdra,al o" "re1uencies to radio and tele'ision .roadcasting stations and ensures that stations a.ide .y their ser'ice co##it#ents. The CSC is consulted on all legislati'e and regulatory decisions to .e ta3en concerning the #ediaC print and .roadcast. It #ay underta3e research to pro#ote co##unicationC on print or .roadcasting. It also controls all practices ,hich could threaten nor#al .usiness co#petition or ,hich could per#it undue do#inance and control o" the #ar3et. The Co##unication +inistry #ay as3 the ad'ice o" the CSC "or any proDect relati'e to the co##unications sector. The CSC is consulted in the "or#ulation o" the position o" +ali ,ith respect to international negotiations regarding radio and tele'ision .roadcasting. The regulatory role o" the CSC concerning the .roadcast #ediaC radio and tele'isionC is to grant .roadcast authorisations and e'entually gi'e suspension and ,ithdra,al orders o" "re1uency licensesC the teleco# operator .eing in charge ,ith technical i#ple#entation 4dra,ing the national "re1uency plan and ,ith #a3ing the "re1uencies a'aila.le5. :o,e'erC the policy "or#ulation role o" the CSC is clearly indicated in %ct 928-3*C thus i" the actual technical #anage#ent and planning o" the "re1uency spectru# are #anaged .y the teleco# operatorC it is under the policy guidance o" the CSS. %nd the "re1uency allocation .y the teleco# operator and the signing o" the license .y the Co##unication +inister are per"or#ed only a"ter the CSS has gi'en a .roadcasting authorisation. The CSC has 9 councilors appointed .y the (resident o" the 0epu.lic 435C the (resident o" the )ational %sse#.ly 435 and the (resident o" the Econo#ic and Social Council 435. The Councilors elect one o" the# as (resident. The CSC has a per#anent Secretary appointed .y the +inister o" Co##unication ,ho is not ho,e'er a #e#.er o" the Council. The Councilors and (er#anent

Co#parati'e %nalysis o" Broadcast 0egulation in the %"rica 0egion

%nnex 2

Secretary are con"ir#ed .y (residential &ecree. The Councilors are not expected to de'ote "ull ti#e to their ,or3 ,ith the CSC .ut ,or3 on sessions o" less than 5 days "or ,hich they are paid "ees. The ter# o" a CSC councilor is 3 yearsC rene,a.le only once. In caseC a councilor does not go to the end o" his9her ter#C his9her replace#ent goes only to end o" the tenure. CSC #e#.ers #ay not hold any interest in any .usiness relating to .roadcastingC print #ediaC edition or ad'ertising. The CSC is accounta.le to the (resident and to the pu.lic. It pu.lishes an annual report that it sends to the (resident and presents to the #edia. &ecisions o" the CSC can .e challenged through the lo, Courts. The CSC operates on a .udget pro'ided .y the go'ern#ent through the +inistry o" Co##unication. !8d9 South Africa The South %"rican Constitution statesC in Section 192K I)ational legislation #ust esta.lish an independent authority to regulate .roadcasting in the pu.lic interestC and to ensure "airness and a di'ersity o" 'ie,s .roadly representing South %"rican societyJ. Section 192 expressly o.liges (arlia#ent to esta.lish an independent authority to regulate .roadcasting. In execution o" this constitutional o.ligationC (arlia#ent has enacted the Independent Co##unications %uthority o" South %"rica 2--- %ct 4IC%S% %ct5. IC%S% too3 o'er the "unction o" t,o pre'ious regulatorsC the South %"rican Teleco##unications 0egulatory %uthority 4S%T0%5 and the Independent Broadcasting %uthority 4IB%5. The prea#.le to the IC%S% %ct ac3no,ledges Ithat the esta.lish#ent o" an independent .ody to regulate .roadcasting and teleco##unications is re1uiredJ. Section 3435 and 4!5 descri.es IC%S% in the "ollo,ing clear ter#sK * The po,ers and duties o" the Independent Co##unications %uthority o" South %"rica 4IC%S%5 are dra,n "ro# the IC%S% %ct 2---C the Independent Broadcasting %ct 1993C the Broadcasting %ct 1999 and the Teleco##unications %ct 199 . The Broadcasting %ct 1993 gi'es pri#acy to the purpose o" ser'ing the pu.lic interest in Section 2 ,hich statesK IThe pri#ary purpose o" this %ct is to pro'ide "or the regulation o" .roadcasting acti'ities in the 0epu.lic in the pu.lic interestJ 9 In "urthering the pu.lic interest in .roadcasting the principal duties o" IC%S% includeC in partC toK14a5 pro#ote the pro'ision o" a di'erse range o" sound and tele'ision .roadcasting ser'ices on a nationalC regional and local le'el ,hichC ,hen 'ie,ed collecti'elyC cater "or all language and cultural groups and pro'ide entertain#entC education and in"or#ationH .5 pro#ote the de'elop#ent o" pu.licC pri'ate and co##unity .roadcasting ser'ices ,hich are responsi'e to the needs o" the pu.lic.

The se'en #e#.ers o" the Independent Co##unications %uthority o" South %"rica 4IC%S%5 Council are appointed .y the (resident on the reco##endation o" the )ational %sse#.lyC in accordance ,ith the "ollo,ing principlesK the pu.lic participates in the no#ination processC the process is transparent and openC and a shortlist o" candidates is pu.lished. To .e appointedC indi'iduals #ust .e co##itted to "airnessC "reedo# o" expressionC openness and accounta.ilityC possess suita.le 1uali"icationsC and represent collecti'elyC a cross8section o" society. Indi'iduals ,ith strong political connectionsC such as elected representati'esC ci'il ser'ants and those ,ith
+ ,

6he 3nde"endent Co**uni%'tions Authorit) o .outh A ri%' A%t No 13 o 2000 8887i%'s'7or/7B' 3nde"endent =ro'd%'stin/ A%t 1,,3 (A%t No 153 o 1,,3)0 see 8887i%'s'7or/7B' 10 3#id7

Co#parati'e %nalysis o" Broadcast 0egulation in the %"rica 0egion

%nnex 2

interests in .roadcasting #ay not .e appointed as #e#.ers. Indi'iduals are appointed #e#.ers "or "our years O apart "ro# the chairC ,ho is appointed "or 5 years O and #ay .e reappointed "or a second ter#. Strict rules go'ern the re#o'al o" #e#.ersC ,hich is only possi.le ,hen certain conditions applyC such as inco#petenceC #isconduct or "ailure to disclose an interest. The Independent Co##unications %uthority o" South %"rica 4IC%S%5 is de"ined as a Ipu.lic .odyJ ,ithin the ter#s o" the (ro#otion o" %ccess to In"or#ation %ct 2---. IC%S% pu.lishes a #anual setting out its co#pliance ,ith access to in"or#ation legislation as this applies to pu.lic .odies.11 7ith respect to .roadcast regulation IC%S% is o.liged under the Broadcasting %ct 1993 to engage in pu.lic consultation ,ith respect to any en1uiry it conductsC ,ith respect to "re1uency planning and ,ith respect to license applicationsC license rene,als and a#end#ents to licenses. The Independent Co##unications %uthority o" South %"rica 4IC%S%5 %ct 2--re1uiresC under Section 1 C that IC%S% prepare an annual reportC ,ithin three #onths o" the "inancial yearC to include Iin"or#ation regarding licenses grantedC rene,edC a#endedC trans"erredC suspended or re'o3ed and such other in"or#ation as the +inister #ay in ,riting re1uireJ12. The +inister is re1uired to ta.le the report in (arlia#ent ,ithin "ixed ti#e li#its. IC%S% is also re1uired to produce annual "inancial state#ents and the %uditor8General;s report on those state#ents. %ll decision o" IC%S% are su.Dect to Dudicial re'ie,. -( -8a9 Broadcast content Benin The :%%C en"orces the Code o" Ethics o" the #ain Bournalists %ssociation 4Association des %ournalistes du &enin5 and ,or3s ,ith the sel" regulatory .odyC 'bservatoire de la (eontologie dans les Medias 46.ser'atory on Ethics in the +edia5C to see that .roadcast content respects pro"essional standards and ethics. It can apply sanctions ,hich range "ro# ,arningC to suspension "or a #onthC to a "ineC to ,ithdra,al o" the "re1uency 4seeK Code de (eontologie des %ournalistes du &enin5. Sanctions that :%%C can i#ple#ent are descri.ed in article !$ o" the la, 4nV 928-21 o" august 19925 enacting the regulatory .ody ,hich statesK
In the case that pu.lici@ed ,arnings ha'e .een acted uponC the :%%C can pronounce against the contra'ening partyC one o" the "ollo,ing sanctionsC depending on the gra'ity o" the contra'entionK K 4a5 the suspension o" the .roadcast authorisation or o" part o" the progra# "or #axi#u# o" one #onthC 4.5 the reduction o" the duration o" the authorisation "or a #axi#u# o" a year. 4c5 the ,ithdra,al o" the authorisation.

%rticle !$ addsK IThe authorisation can .e ,ithdra,nC ,ithout ,arningC in the case o" a su.stantial change in o" the "actors ,hich had .een considered "or the allocation o" the authorisationC nota.ly in the case o" changes in the shares o" the co#panyC or in its go'ernance or its "unding.J Content rules
11

Promotion of Access to Information: manual in terms of Section 14 in respect of the Independent Communications Authority of South Africa0 3CA.A 12 6he 3nde"endent Co**uni%'tions Authorit) o .outh A ri%' A%t No 13 o 2000 8887i%'s'7or/7B'

Co#parati'e %nalysis o" Broadcast 0egulation in the %"rica 0egion

%nnex 2

o.ser'ed .y the :%%C in regulating the .roadcast #edia are contained in article 3 o" its la, ,hich states that all stations should o.ser'e the "ollo,ingK
4a5 respect "or hu#an dignityC o.ser'ance o" the pluralist character o" the 'arious groups o" thought and o" opinionC 4.5 sa"eguard pu.lic orderC national unity and territorial integrity o" the country 4c5 pro#ote pu.lic health and en'iron#ent protectionC 4d5 protection o" the child and the adolescentC 4e5 sa"eguard o" the national cultural identityC 4"5 ta3e into account considerations o" national securityC 4g5 ta3e into account the re1uire#ents o" the pu.lic ser'iceC 4h5 consider the necessity to protectC pro#ote and de'elop the national cultural heritage and the national industry nota.ly that o" .roadcasting production.

-8b9

Burkina )aso The CSI does not ha'e a speci"ic Broadcast Code o" Conduct either. It en"orces the Charter o" the Bournalists M%ssociation ,hich pro#otes pro"essional and ethical standards and the In"or#ation Code. The Charter initiated and adopted .y the %ssociation o" Bur3ina;s Bournalists 4%.B.B5 "or#ulates the ethical principles and pro"essional standards to .e en"orced .y the Dournalists the#sel'esC the #edia houses and the authorities. /or exa#pleC %rticle 1 statesK Ithe Dournalist o" Bur3inaC .y his9her pro"essionC has the right to access in"or#ation sourcesJ and %rticle 2 statesK Ithe Dournalist has to pu.lish in"or#ation ,hich is trueC ,hich sources can .e 'eri"iedC "or the general good. :e9she cannot .e threatenedC ta3en to court or sanctionedJ. %rticle 3 statesK Ithe Dournalist o" Bur3ina re"uses to pu.lish under his9her signature in"or#ation ,hich is contrary to his9her .elie" and to pro"essional ethicsJ. %rticle indicates that Ithe Dournalist has the right to act according to his9her con'ictions ,hen the orientations o" the #edia house he9she ,or3s "or do not coincide any #ore ,ith his9her con'ictions or the ethics o" the pro"essionJ. The In"or#ation Code de"ines .roadcasting Ias co##unication .y radio ,hose progra#s targets directly or in a codi"ied #anner the pu.licJ. It indicates "urther that IUthe organi@ation and "unctioning #odalities o" the national 4.roadcasting5 institutions ha'e to .e in con"or#ity 4,ith the la,5J. The Code o" In"or#ation ho,e'er sets itsel" to de"ine the pro"essional DournalistC esta.lishes conditions "or the pu.lication o" corrections and reDoinders and descri.es sanctions ,hich the CSI could i#pose on all DournalistsC including .roadcasters. Sanctions a'aila.le range "ro# prison ter#s o" three #onths to 3 years and "ines ranging "ro# 5-.--- /C/% 4<SN1--5 to 1.---.--- /C/% 4<SN2C---5 "or in"or#ation ,hich could endanger national security. /or the .roadcasting o" Iany in"or#ation contrary to decency and pu.lic #oralityC sanctions ,ould .e those o" the co##on la,J. (rison sentences o" 2 #onths to one year and 9 or a "ine o" 5-.--- /C/% to 1.---.--- /C/% could .e i#posed on any.ody con'icted o" pu.lishing purposely in"or#ation ,hich a""ects the pri'ate li"e o" an indi'idual. These sanctions are greater than ,ould .e considered international .est practice and could har# "reedo# o" expression. The CSI en"orces positi'e content rules including general rules concerning the pro#otion o" gender e1ualityC protection o" the child and the adolescent and pro#otion o" the national culture. These speci"ic content o.ligations as

Co#parati'e %nalysis o" Broadcast 0egulation in the %"rica 0egion

%nnex 2

speci"ied in %rticle 9 o" the 1995 Broadcasting 6.ligations include carrying !per cent o" the progra#s on de'elop#entC scienti"icC culturalC religious and recreational issues and !- per %"rican #usic o" ,hich 2- per cent #ust .e o" national #usic. %ll .roadcasting stations also ha'e to .roadcast pu.lic ser'ice content #essage ,hen re1uested. %d'ertise#ent o" alcohol and "irear#s is "or.idden. 0adio also has to contri.ute Ito in"or#ationC education and entertain#ent o" the pu.lic ,ithout exploiting and ad'ertise#entJ. IThe speci"ications and o.ligations "or radio applicantsJ13 indicate so#e other content o.ligations "or radio and tele'ision .roadcasters nota.ly that progra#s ha'e to contri.ute to econo#icC social and cultural de'elop#ent and ensure the pro#otion o" the national languages 4article 55. Concerning stations o,ned .y religious groupsC it is speci"ied that they ha'e to produce and .roadcast non religious progra# "or least 3-P o" their air ti#e. 0e.roadcast o" "oreign stations is su.Dect to an authorisation. %d'ertise#ent has to .e respect"ul o" the pro"essional Dournalist ethics I .e "ree o" and .e #ind"ul o" culturalC religious and philosophical .elie"s o" the peopleJ4article 315. Breach o" any o" these content rules is su.Dect to either a suspension "or a period o" to 12 #onths or the ,ithdra,al o" the "re1uency. -8c9 1ali The CSC does not ha'e its o,n Code and rather en"orces the Code o" Conduct o" the 6.ser'atory "or the Ethics o" the (ress 46&E(5 co##only sponsored .y 6&E(C the Bournalists; 4<nion )ationale des Bournalistes du +ali5 and the .roadcasters; %ssociation 4<nion des 0adios Tele'isions 2i.res du +ali5. The CSC has po,ers o" sanction. It #ay repri#andC suspend or ,ithdra, a license. %rticle o" the CSC %ct o" 1992 gi'es three content o.ligations that CSS should en"orce on all .roadcasting stations in +aliK the re1uire#ents and needs o" the rural co##unitiesC cultural integrationC and the di""usion and enrich#ent o" the national languages %rticle 9 o" the 6.ligations adds another o.ligation in indicating that .roadcasting content should contain up to 2-P o" Iinternational contentJ.It is not clear ho, these rules ha'e .een i#ple#ented .y the CSSC ho,e'er it see#s to ha'e translated the Ire1uire#ents and needs o" the rural co##unities Iinto a policy ,hich has allo,ed "or the de'elop#ent and support "or co##unity radios in the 'arious rural areas o" the country. -8d9 South Africa Clause 24a5 o" the Code o" Conduct "or Broadcasting Ser'icesC ,hich "or#ed a schedule to the Independent Broadcasting %uthority %ct 153 o" 1993C pro'idedK IBroadcasting licensees shall...not .roadcast any #aterial ,hich is indecent or o.scene or o""ensi'e to pu.lic #orals or o""ensi'e to the religious con'ictions or "eelings o" any section o" a population or li3ely to preDudice the sa"ety o" the State or the pu.lic order or relations .et,een sections o" the population.J In "inding a .reach o" the right to "reedo# o" expressionC the Constitutional Court has notedK

13

C'hier de (issions et Ch'r/es des r'diodi usions sonores et tH$Hvisue$$es 'u =urGin' 5'so0 1,,5

Co#parati'e %nalysis o" Broadcast 0egulation in the %"rica 0egion

%nnex 2

The prohi.ition against the .roadcasting o" any #aterial ,hich is Mli3ely to preDudice relations .et,een sections o" the population; is cast in a.solute ter#sH no #aterial that "its the description #ay .e .roadcast. The prohi.ition is so ,idely phrased and so "ar8reaching that it ,ould .e di""icult to 3no, .e"orehand ,hat is really prohi.ited or per#itted. )o intelligi.le standard has .een pro'ided to assist in the deter#ination o" the scope o" the prohi.ition. It ,ould deny .oth .roadcasters and their audiences the right to hearC "or# and "reely express and disse#inate their opinions and 'ie,s on a ,ide range o" su.Dects. The ,ide a#.it o" this prohi.ition #ay also i#pinge on other rightsC such as the exercise and enDoy#ent o" the right to "reedo# o" religionC .elie" and opinion guaranteed in section 15 o" the Constitution.1!

.( .8a9

,ublic service broadcasting Benin % state o,ned radio .roadcasting ser'ice ,as created in BeninC then &aho#eyC in 1959 on the e'e o" the country;s independence "ro# /rance. The tele'ision ser'ice ,as inaugurated in the early 19*- and the 0adio di""usion Tele'ision du Benin ,as then set up as an attach#ent o" the then +inistry o" In"or#ation. The 0adiotele'ision )ationale du Benin 40)B5 has since 1999 4&ecree 998315 o" Bune 22C 19995 a pu.lic per'ice statusC 4Eta.lisse#ent (u.lic % Caract>re Industriel et Culturel8E(IC85 .y ,hich it is "inancially autono#ous and politically independent "ro# go'ern#ent. It has a duty o" pu.lic ser'iceC Ito in"or#C educate and entertainJC and to de'elop the uses o" the national languages as indicated .y the )ational So'ereign Con"erence. The #andate o" the 0)B is to per"or# pu.lic ser'ice in .roadcastingK to i#ple#ent pro"essional standards ,hile ser'icing the national co##unity and staying a,ay "ro# political inter"erence. 0)B is go'erned .y a .oard and is ad#inistrati'ely attached to the Co##unication +inistry. The Board is co#posed o" ci'il ser'ants appointed .y the :ead o" StateC the (resident o" the )ational %sse#.ly and .y the Supre#e Court. %s ,ith all State o,ned #edia in B>ninC the &irector General o" 0)B is appointed .y the (resident o" the 0epu.lic. But the appoint#ent is #ade "ro# a short list o" three na#es selected .y the :%%C "ro# the applications recei'ed a"ter the position has .een pu.licly announced. The &irector General shares executi'es po,ers ,ith an Executi'e Co##ittee selected .y the Board o" &irectors. The pu.lic .roadcasting ser'ice is co#prised o" the national tele'ision 4T>l>'ision )ationale du B>nin5 and a )ational 0adio ,ith 3 stationsC including a 2 /+ stations .roadcasting "ro# the capital city and one regional /+ stationsC and 5 autono#ous rural /+ stationsC .ased at co##unity le'elC ,ith co##unity participation .ut #anaged .y a &irector representing the )ational 0adio and allo,ing co##unity participation in progra#s. /unding o" the )ational 0adio is ensured partly .y the .udget pro'ided .y go'ern#ent and partly .y ad'ertise#ent re'enue.

14

Islamic nity Con!ention !" Independent #roadcastin$ Authority0 2002 (4) .A 2,4 (CC)1 2002 (5) =C;R 433 (CC)7

Co#parati'e %nalysis o" Broadcast 0egulation in the %"rica 0egion .8b9

%nnex 2

Burkina )aso (u.lic Ser'ice .roadcasting is represented in Bur3ina .y the )ational 0adio and Tele'ision Ser'ice 46""ice de 0adiodi""usion Tele'ision du Bur3ina8 60TB85 and the 0adio 0urale. 6""ice de 0adiodi""usion ele'ision du Bur3ina ,as set in 1999 ,ith the #erger .et,een 0adio )ational du Bur3inaC ceated in 1959 in the e'e o" the country;s independence "ro# /ranceC as then the sole national .roadcasterC and the national tele'ision ser'iceC T>l>'ision )ationale du Bur3ina created in the early 19*-s. The ne, entityC 60TBC ,as set up as an Eta.lisse#ent (u.lic % Caract=re Econo#i1ue 4 E.(.E5C a status ,hich ga'e it "inancial and ad#inistrati'e autono#yC as a (u.lic CorporationC e'en though it is placed under the control o" the +inister o" Co##unication. 60TB is go'erned .y a Board o" &irectors representing 'arious pu.lic institutionsC the (resident o" the 0epu.licC the )ational %sse#.lyC the +inistry o" Co##unication and other sectors. % &irector General appointed .y the (resident o" the 0epu.lic ensures operational control The duties and responsi.ilities o" the 60TB areK
4a5 to ensure pu.lic ser'ice .roadcasting co'ering the total territory o" the countryC 4.5 proDect a.road the i#age and 'oice o" Bur3inaC 4c5 contri.ute to the cultural and social de'elop#entC 4d5 contri.ute to the de'elop#ent o" the national languagesC 4e5 contri.ute to the socialC econo#ic and cultural de'elop#ent o" the country

60TB operates "our regional stations and the national stations .ased in the capital city. It operates also the 0adios 0urales 40ural radio Stations5 in di""erent parts o" the country under a speci"ic depart#ent. 0urales 0adios operate on the #odel o" co##unity radiosC ,ithin local rural co##unitiesC ,ith progra#s de'eloped locallyC and local personnel ,ith Dust one personnel "ro# 60TB. /unding o" the (u.lic Broadcasting ser'ice is Bur3ina originates .oth "ro# go'ern#ent and "ro# the ad'ertise#ent and other sources as indicated .y the ISpeci"ications and 6.ligations o" 0adio and Tele'ision .roadcastersJ4article 1 5. (u.lic "unding is assured .y a .udget pro'ided "or .y the )ational %sse#.ly on the re1uest o" the +inister o" Co##unications. 6ther sources as indicated .y the Speci"ications and 6.ligations areK .rand ad'ertise#entsC ad'ertise#ent o" pu.lic interestC ad'ertise#ent as docu#entariesC sponsoring o" e'entsC organising o" e'entsC any acti'ities ,hich generate "unds and are pro"essionally acceptedC and donations ,hich are ad#itted .y the la,s and regulations. .8c9 1ali The 6""ice de 0adio Tele'ision du +ali 460T+5 has .een granted the status o" a (u.lic Ser'ice Corporation 4Eta.lisse#ent (u.lic W Caract=re Industriel et Culturel5 "ollo,ing the enact#ent o" the li.erali@ation o" .roadcastingC in 1992. % speci"ic la, enacted on 6cto.er 5C 1992 4nV 928-215C indicates that it is as (u.lic Ser'ice Corporation autono#ous ad#inistrati'ely and independent politicallyC de"ines its #issions and indicates its "unding sources. To ensure its political independenceC it has a .oard o" directorsC #ade up o" representati'e o" di""erent go'ern#ent #inistries concerned ,ith its progra#s

Co#parati'e %nalysis o" Broadcast 0egulation in the %"rica 0egion

%nnex 2

4agricultureC healthC education5 .ut co#prising also representati'es o" 'arious ci'il society organi@ations. The .oard constitutes the go'erning structure o" the 60T+. The 60T+ hires a &irector General in charge o" the o'erall #anage#ent o" the corporationC appointed .y the (resident o" the 0epu.lic a"ter ha'ing .een selected .y the Board "ollo,ing a pu.lici@ed call "or applications. % contract plan ,as esta.lished and signed .et,een the go'ern#ent and the 60T+ .y ,hich the pu.lic ser'ice o.ligations o" the 60T+ ,ere de"ined and the co##it#ent o" the go'ern#ent speci"ied. This ,as con"ir#ed .y a &ecree 4nV 9 82*! ta3en on 6cto.er 23C 199 5. By &ecree 9 82*!C 60T+ co##itted itsel" to de'ote at least *-P o" the radio progra# and -P o" tele'ision progra#s to the pu.lic ser'ice. It co##itted itsel" also to de'elop 1uality contents on its nationalC regional and local net,or3 and to progressi'ely extend the radio co'erage o" 5P o" the country in 2--3 to 1--P in 2-15 and to extend the tele'ision co'erage at that date to $5P o" the country "ro# 35P in 2--3. 6n its partC the go'ern#ent too3 the decision .oth to constitute through taxationC a regular re'enue source "or 60T+ in order to co'er not only its operational costs .ut also part o" its in'est#ent needs. 6n the .asis o" this contract8plan .et,een the go'ern#ent and the 60T+C the go'erning Board o" the 60T+ speci"ied its #andate as "ollo,K
4a5 &e'elop radio and tele'ision progra#s in line ,ith the o.Decti'es o" the econo#icC social and cultural de'elop#ent o.Decti'es o" the country. 4.5 (ro#ote the use o" national languagesH pro#ote scienceC technology and the protection o" the en'iron#ent. 4c5 &e'elop entertaining progra#s .ased on 1uality sho,sC 4d5 (ro#ote pluralistC ci'ic and use"ul in"or#ation. 4e5 (roduce #aga@ines and li'e reportingC de.ates and in'estigations.

Speci"ic o.Decti'es include contri.ute to the "ight against po'ertyC contri.ute to the increase o" the literacy rateC contri.ute to the health progra#s and to the de'elop#ent o" health ser'icesC strengthen "or#al educationC contri.ute to the de8#arginali@ation o" geographically encla'ed co##unitiesC contri.ute to the education o" adults. The 60T+ net,or3 is no, co#prised o" t,o /+ stations .roadcasting "ro# the capital city Ba#a3oC 1- regional /+ stations .ased in the regional capitals and a.out 3- Irural stationsJC ,hich are s#all /# stationsC .roadcasting at co##unity le'elC #anaged .y a representati'e o" the 60T+C ,ith #ore or less co##unity participation. .8d9 South Africa The South %"rican Broadcasting Corporation 4S%BC5 ,as con'erted on 1 6cto.er 2--3 "ro# a statutory corporation to a pu.lic co#pany. %lthough the go'ern#ent re#ains the sole shareholderC the con'ersion entrenches the .roadcaster;s editorial independence and the authority o" the Board o" the S%BC to #anage the a""airs o" the Corporation. The Charter and purpose o" the S%BC are set out in the Broadcasting %ct 1999 4as a#ended .y the Broadcasting %#end#ent %ct 2--25. Section o" the Broadcasting %ct outlines the Charter ,ith ,hich the S%BC #ust co#ply. The Charter speci"ies that the S%BC IenDoys "reedo# o" expression and DournalisticC creati'e and progra##ing independence as enshrined in the Constitution.J Section statesK

Co#parati'e %nalysis o" Broadcast 0egulation in the %"rica 0egion

%nnex 2

The Corporation #ust encourage the de'elop#ent o" South %"rican expression .y pro'idingC in South %"rican o""icial languagesC a ,ide range o" progra##ing that8 4a5 re"lects South %"rican attitudesC opinionsC ideasC 'alues and artistic creati'ityH 4.5 displays South %"rican talent in education and entertain#ent progra##esH 4c5 o""ers a plurality o" 'ie,s and a 'ariety o" ne,sC in"or#ation and analysis "ro# a South %"rican point o" 'ie,H and 4d5 ad'ances the national and pu.lic interest.

Section * o" the Broadcasting %ct 1999 sets out additional duties "or the S%BC including a duty to #a3e its ser'ices a'aila.le throughout the 0epu.licC a duty to pro'ideC in its pu.lic .roadcasting ser'icesC radio and tele'ision progra##ing that in"or#sC educates and entertainsC and a duty to .e responsi'e to audience needsC including the needs o" the dea" and the .lind. The Broadcasting %#end#ent %ct 2--2 re1uires clear separation .et,een the pu.lic ser'ice acti'ities and the co##ercial acti'ities o" the S%BC through the esta.lish#ent o" separate operating di'isions The South %"rican Broadcasting Corporation 4S%BC5 is go'erned .y a Board o" &irectors esta.lished under Section 12 o" the Broadcasting %ct 1999. The Board is the accounta.le authority o" the Corporation and controls the a""airs o" the Corporation. The Board is responsi.le "or appointing an Executi'e Co##ittee consisting o" the Chie" Executi'e and ele'en other #e#.ers and ,hich is responsi.le "or ad#inistering the a""airs o" the Corporation. The Executi'e Co##ittee is accounta.le to the Board and #ust per"or#s such "unctions as #ay .e deter#ined .y the Board. The Independent Co##unications %uthority o" South %"rica 4IC%S%5C a .roadcast regulatory .ody ,hich itsel" has constitutionally guaranteed independenceC has signi"icant regulatory po,ers ,ith regard to the S%BC. Section 425 o" the Broadcasting %ct 1999 gi'es IC%S% o'erall responsi.ility "or ensuring S%BC co#plies ,ith the ter#s o" its Charter. The Broadcasting %ct 1999 re1uires all .roadcasting ser'ices o" the S%BC to .e licensees o" IC%S%. In addition all .roadcastersC including S%BC #ust co#ply ,ith the IC%S% Code o" ConductC set out in Schedule 1 o" the Independent Broadcasting %uthority %ct 1993. /or#al accounta.ility o" the S%BC is to (arlia#ent through the +inister. The Board o" the S%BC #ust "urnish to the +inister an annual report on the ,or3 o" the CorporationC together ,ith a .alance sheet and a co#plete state#ent o" re'enue and expenditure "or that "inancial year. The "inancial accounts #ust .e audited and acco#panied .y the auditor;s report. The +inister #ust ta.le the report in (arlia#entC ,ithin se'en days a"ter recei'ing it i" (arlia#ent is in sessionC orC i" (arlia#ent is not in sessionC ,ithin se'en days a"ter co##ence#ent o" its next ensuing session. The South %"rican Broadcasting Corporation 4S%BC5 is go'erned .y a Board o" &irectors consisting o" 12 non8executi'e #e#.ersC along ,ith the Group Chie" Executi'e 6""icerC the Chie" 6perations 6""icer and the Chie" /inancial 6""icer. The non8executi'e #e#.ers are appointed .y the (resident on ad'ice o" the )ational %sse#.lyC a"ter pu.lication o" a shortlist o" candidatesC in a #anner ,hich ensures transparencyC openness and pu.lic participation in the no#inations process. The Broadcasting %ct 1999C in Section 13C re1uires

Co#parati'e %nalysis o" Broadcast 0egulation in the %"rica 0egion

%nnex 2

the BoardC 'ie,ed collecti'elyC to ha'e suita.le 1uali"icationsC expertise and experienceC to .e co##itted to "airnessC to "reedo# o" expressionC to the o.Dects o" the S%BC and to accounta.ility and to represent a .road cross section o" the population. The %ct sets out strict con"lict o" interest rules andC in the case o" such con"lictC re1uires the Board #e#.er concerned to lea'e the proceedings and let re#aining #e#.ers deter#ine the course o" action /unding o" the S%BC is #ixed. It is pro'ided in part .y the Go'ern#ent and deri'e in part "ro# ad'ertise#ent. #( #8a9 $ommunity broadcasting Benin The :%%C does not ha'e an o""icial de"inition o" co##unity .roadcasting. It re"ers to co##unity .roadcasting .y three characteristicsK its range 4!- to *3#C #axi#u#5C its "ocus on a speci"ic co##unity and its use o" speci"ic languages. In its policy docu#ents the :%%C distinguishes .et,een ICo##unity 0adioJC I)ot8"or8pro"it 2ocal 0ural 0adioJ ,hich is go'ern#ent sponsored and I)ot8"or8pro"it )on8Co##unity 0adioJ ,hich is sponsored .y a de'elop#ent proDect and does not necessarily in'ol'e the co##unity. There are presently a.out 15 Co##unity 0adiosC ,hile there are 5 I)ot8"or8pro"it 2ocal 0ural 0adio and a.out 1- I)ot8"or8pro"it )on8Co##unity 0adioJ. 0ecentlyC a #ore operationally intended de"inition has .een proposedC although it is not yet o""icially adopted. It is as "ollo,sK ICo##unity 0adio is a radio in a co##unityC "or that co##unity. It spea3s to the co##unity and li'es .y the co##unity15J. There are presently a.out 3- Co##unityC )ot /or (ro"it and )ot /or (ro"it 0ural 0adios in Benin. In realityC :%%C re"ers to all these di""erent types o" Ico##unity radiosJ as Inon co##ercial radiosJ ,hich co#prises all radios ,hich are not "or pro"it and are co##unity centered. %s re1uired .y :%%CC non co##ercial ha'e to .e organi@ed as Inon pro"it organi@ationsJ and in'est a I#anaging co##itteeJ ,ith operationalC executi'e po,ers and ,hich is co#prised o" representati'es o" the local co##unity ,here it is esta.lished and ,hich generally are #e#.ers o" the local peasants organi@ationsC ,o#en groupsC local )gos etcU The licensing process o" co##unity radios as ,ell as co##ercial radios and tele'ision starts ,ith the :%%C pu.lishing the list o" a'aila.le "re1uencies .ased on its "re1uency #ap and issuing a pu.lished call "or applications "ro# all sectorsC pu.licC pri'ate and co##ercial. It processes the recei'ed applications and allocates the "re1uencies .ased on the proposed progra# contents as ,ell as on the 'ia.ility o" the stations. 0adio licenses are allocated "or yearsC tele'ision licenses "or 1- years. 2icenses "or Co##unity 0adios and )ot8"or8pro"it 0adio pay a "ee o" /C/% 1.---.--- 4<S & 2.---5 and co##ercial stationsC /C/% 2.---.--- 4<S & !.---5C .ased on content proposed against stated needs o" the targeted audience. %pplications "or "re1uencies are exa#ined pu.liclyC in the presence o" the :%%C representati'esC the applicants and the general pu.lic. /unding o" Co##unity radios are expected to deri'e "ro# the co##unities thru announce#entsC cultural e'entsC and 'olunteer ,or3. &onor contri.utions
15

.t'te*ent *'de #) (rs Aure$ie A*oussou0 Prin%i"'$ Rese'r%her 't the HAAC7

Co#parati'e %nalysis o" Broadcast 0egulation in the %"rica 0egion

%nnex 2

usually contri.ute to the e1uip#ent. :o,e'er a (u.lic /undC a#ounting to 5--.--- <S& in 2--3C is accessi.le "or "or all the #edia housesC including co##unity .roadcasters. It is #anaged .y :%%C to "und training and s#all #edia proDects. It is allocated .ased on the content produced .y applicant #ediaC to adherence to ethical standards and pro"essional standards. #8b9 Burkina )aso The CSI considers .roadly t,o types o" radiosK the pu.lic ser'ice co#prising the national tele'ision C the national radio and the 0adios 0uralesC and the pri'ate radios. :o,e'er ,ith the Ipri'ate radiosJC the Speci"ications and 6.ligations "or 0adio and Tele'ision .roadcastersJ 4article 55 considers 3 di""erent typesK the national co'erage pri'ate radios K I,hich progra#s reaches to co'er the ,hole territoryJC regional radios ,hich co'er around 1-3ilo#eters o" radiusC and local radios ,hich co'er around 3- 3ilo#eters o" radius. %rticle 15 recogni@es IreligiousJ stations as those o,ned .y a "aith9religious organi@ation .ut ha'e to .roadcast at least 3- per cent o" non religious progra#s and recogni@e the secular character o" the State. But the regulation does not #a3e a distinction .et,een co##ercial and co##unity radios and the licensing procedures and conditions are the sa#e. There are a.out 15 Co##unity 0adios operating presently in Bur3inaC o" ,hich the #aDority is sponsored .y 'arious religious organi@ations. %pplication re1uestsC including e1uip#ent speci"icationsC .usiness plan and progra##ing detailsC are sent to the +inistry o" Co##unication ,hich passes it on to the CSI. % license re1uest is si#ultaneously sent to the national teleco##unication corporation through the +inistry o" Co##unication. %"ter signature .y the +inister o" Co##unication o" the .roadcasting authorisation prepared .y the CSIC a "re1uency is allocated .y the teleco##unication ser'ices. 0adio licenses are 'alid "or 3 years and tele'ision licenses "or years. Costs 'ary according to the localC regional or national type o" co'erage re1uested. /unding sources "or all types o" .roadcasting ser'ices areC as pro'ided .y article 1 o" the Speci"ications and 6.ligatiions 4descri.ed under pu.lic ser'ice .roadcasting a.o'e5C ho,e'er radios and the print #edia ha'e access to a (u.lic /und allocated .y go'ern#ent and #anaged .y the +inistry o" Co##unication. /und a#ounted to a.out 5--C--- <S& in 2--3. Criteria include respect o" the speci"ic conditions o" licensing as ,ell as en"orce#ent o" ethics and pro"essional standards. #8c9 1ali The CSS recogni@es the "ollo,ing categories o" radioK (u.lic 0adioK 60T+C its regional and local stations and Ilocal rural radiosJ operated .y 60T+C at the co##unity le'elC co##ercial radiosC and co##unity or local radios. CSS de"ines pri'ate radio as I"or pro"itJ and co##unity radioC as Inot "or pro"it and o,ned .y local co##unitiesJ. The CSS processes the applicationC re1uests the control o" the "re1uency a'aila.ility "re1uency .y teleco##unication operator and e'entually signs the authorisation and the "re1uency allocation. %pplications are necessarily processed ,ithin 15 days and a "re1uency is allocated "or 3 yearsC a"ter an authorisation had .een gi'en .y the CSS and the "re1uency allocated .y the

Co#parati'e %nalysis o" Broadcast 0egulation in the %"rica 0egion

%nnex 2

teleco# operator. 0ene,al o" 2icence is to .e re1uested 3 #onths .e"ore it expires. It is considered granted i" it is not ans,ered 15 days a"ter it expires 4%rticle ! o" %ct 92815 enacted on +ay 1!C 19925. /re1uency applications are exa#ined .y the Conseil Sup>rieur de la Co##unicationC ,ith representati'es o" go'ern#entC .roadcasters and the Consu#ers; %ssociation. Cost o" a license "or a co##unity radio is "reeC only an application cost o" 3--.--- /C/% 4<S & --5 is charged. Co##unity radio "unding "or operational costs are supposed to .e deri'ed "ro# announce#ents and partnerships ,ith de'elop#ent proDects. % (u.lic /und 4a.out 3--.--- <S &62 yearly5 donated .y go'ern#ent "or the #edia is #anaged .y the .roadcastersC <nions des 0adios et Tele'isions 2i.res 4<0TE25C the representati'e organisation o" the .roadcastersC the Bournalists %ssociations and the CSC. Co##unity radios ha'e access to this "und. There are a.out 9Co##unity 0adio operating presently in +ali #8d9 South Africa The Independent Broadcasting %uthority %ct 1993 recogni@es the three tier o" .roadcasting co#prised o"K a pu.lic sectorC a pri'ate co##ercial sectorC and a co##unity sector. The Independent Broadcasting %uthority %ct 1993 sets out a licensing "ra#e,or3 "or co##unity .roadcasting ser'ices 4radio and tele'ision5. The Broadcasting %ct 1999 sets out "urther pro'isions "or licensing co##unity .roadcasting ser'ices. The Independent Broadcasting %uthority %ct 1993 re1uires IC%S% to ta3e account as toK
4a5 ,hether the applicant is "ully controlled .y a non8pro"it entity and carried on or to .e carried on "or non8pro"ita.le purposesH 4.5 ,hether the applicant proposes to ser'e the interests o" the rele'ant co##unityH 4c5 ,hetherC as regards pro'ision o" the proposed .roadcasting ser'iceC the applicant has the support o" the rele'ant co##unity or o" those associated ,ith or pro#oting the interests o" such co##unityC ,hich support shall .e #easured according to such criteria as shall .e prescri.edH and 4d5 ,hether the applicant proposes to encourage #e#.ers o" the rele'ant co##unity or those associated ,ith or pro#oting the interests o" such co##unity to participate in the selection and pro'ision o" progra##es to .e .roadcast in the course o" such .roadcasting ser'ice.1

The Broadcasting %ct nu#.er ! o" 1999C in Section 32C descri.es "urther pro'isions "or licensing o" co##unity .roadcasting as "ollo,sK
415 &espite the pro'isions o" this %ct or any other la,C a co##unity .roadcasting ser'ice licence #ay .e granted .y the %uthority in the "ollo,ing categoriesK 4a5 /ree8to8air radio .roadcasting ser'iceH 4.5 "ree8to8air tele'ision ser'ice. 425 The licence o" a co##unity .roadcasting ser'ice #ust .e held .y a licensee. 435 The licensee re"erred to in su.section 425 #ust .e #anaged and controlled .y a .oard ,hich #ust .e de#ocratically electedC "ro# #e#.ers o" the co##unity in the licensed geographic area. 4!5 The progra##ing pro'ided .y a co##unity .roadcasting ser'ice #ust re"lect the needs o" the people in the co##unity ,hich #ust
16

3nde"endent =ro'd%'stin/ Authorit) A%t 1,,3

Co#parati'e %nalysis o" Broadcast 0egulation in the %"rica 0egion

%nnex 2

include a#ongst others culturalC religiousC language and de#ographic needs and #ust88 4a5 pro'ide a distinct .roadcasting ser'ice dealing speci"ically ,ith co##unity issues ,hich are not nor#ally dealt ,ith .y the .roadcasting ser'ice co'ering the sa#e areaH 4.5 .e in"or#ationalC educational and entertainingH 4c5 "ocus on the pro'ision o" progra##es that highlight grassroots co##unity issuesC includingC .ut not li#ited toC de'elop#ental issuesC health careC .asic in"or#ation and general educationC en'iron#ental a""airsC local and internationalC and the re"lection o" local cultureH and 4d5 pro#ote the de'elop#ent o" a sense o" co##on purpose ,ith de#ocracy and i#pro'e 1uality o" li"e. 455 %ll surplus "unds deri'ed "ro# the running o" a co##unity .roadcasting station #ust .e in'ested "or the .ene"it o" the particular co##unity and #onitored .y the %uthorityC ,hich has the po,er to audit the "inancial records o" the ser'ices.1$

The Independent Co##unications %uthority o" South %"rica 4IC%S%5 is responsi.le "or the licensing o" co##unity radio. The licensing process is set out in ICo##unity Sound Broadcasting Ser'icesJ a 199$ (osition (aper inherited "ro# the pre'ious Independent Broadcasting %uthority. The (osition (aper descri.es the licensing process as .ased on three principles o" transparencyC e#po,er#ent and si#plicity. IC%S% deter#ines in ,hich locations a .roadcasting licence is to .e o""ered and ,hether it is to .e a licence "or a pu.licC pri'ate or co##unity ser'ice. It also deter#ines the "re1uency assign#ent and technical para#eters. Each licence is pu.licly ad'ertised through a notice in the Go'ern#ent Ga@ette and in any appropriate #edia in the area "or ,hich the licence is o""ered. The notice states the category o" licenceC the "re1uency and the technical para#eters. %pplications are in'ited to .e su.#itted .y a pu.lished deadline. %ll applications recei'ed .y the deadline are assessed .y IC%S% and are also the su.Dect o" pu.lic hearings. (u.lic hearings are held in or near the pro'ince in ,hich the licence has .een ad'ertised. %"ter the pu.lic hearings IC%S% ta3es a decision on ,hether and to ,ho# to a,ard the licence. In considering an application "or a co##unity .roadcasting licenceC IC%S% #ustC according to the Independent Broadcasting %ct 1993C ta3e account o"K
4a5 ,hether the applicant is "ully controlled .y a non8pro"it entity and carried on or to .e carried on "or non8pro"ita.le purposesH 4.5 ,hether the applicant proposes to ser'e the interests o" the rele'ant co##unityH 4c5 ,hetherC as regards pro'ision o" the proposed .roadcasting ser'iceC the applicant has the support o" the rele'ant co##unity or o" those associated ,ith or pro#oting the interests o" such co##unityC ,hich support shall .e #easured according to such criteria as shall .e prescri.edH and 4d5 ,hether the applicant proposes to encourage #e#.ers o" the rele'ant co##unity or those associated ,ith or pro#oting the interests o" such co##unity to participate in the selection and pro'ision o" progra##es to .e .roadcast in the course o" such .roadcasting ser'ice.1*

In addition IC%S% ta3es account o" the extent to ,hich the applicantK
1! 1+

=ro'd%'stin/ A%t nu*#er 4 o 1,,,0 .e%tion 320 3nde"endent =ro'd%'stin/ A%t 1,,3

Co#parati'e %nalysis o" Broadcast 0egulation in the %"rica 0egion

%nnex 2

415 in the case o" geographically "ounded co##unitiesC proposes to #eet the di'erse needs o" the co##unity ,ithin the co'erage areaH 425 has ta3en #easures to ensure that the people in its policy #a3ingC operational and other structures are representati'e o" the co##unity to .e ser'ed and encourages #e#.ers o" the co##unity ser'ed .y it to participate in the selection and pro'ision o" progra##esH 435 in its progra##ing proposes to re"lect the needs o" the co##unity as identi"ied and prioriti@ed .y that co##unity in a "oru# or any other #anner to the satis"action o" the %uthorityH 4!5 proposes to contri.ute to,ards the general enrich#ent o" the li'es o" #e#.ers o" the co##unityH and 455 is distinguisha.le "ro# other applicants and9or .roadcasters ser'ing the sa#e geographical co'erage area19

%"ter the pu.lic hearing IC%S% considers and #a3es 3no,n its decision on the application and pro'ides reasons "or the decision. I" a licence is to .e a,arded IC%S% #ay also speci"y pre8conditions "or a,ard o" the licence or conditions o" operation. There are a.out 92 Co##unity 0adios and 1 Co##unity tele'ision operating presently in South %"rica. 3( 38a9 $ommercial broadcasting Benin 2icensing procedure is the sa#e "or all co##ercial and co##unity radio ser'icesH application is processed .ased on its speci"ic proposal 4progra##e content and location o" the station5. /or co##ercial .roadcastingC the application has to include a .usiness plan and a progra##ing schedule. 2icensing o" co##ercial radios "ollo, the sa#e process as ,ith Co##unity 0adios K applications are #ade to :%%C "ollo,ing its pu.lication o" a list o" licenses a'aila.le "or di""erent parts o" the country. The applicant "or a co##ercial radio indicates is expected to descri.e its proposed ser'iceK the progra# content and .roadcast hours and its proposed trans#itting po,er. 2icenses are allocated .ased on these indications and on the expressed needs o" the co##unity the radio proposes to ser'ice. There are a.out 1- co##ercial stations. )on nationals o" Benin #ay not o,n #aDority shares in a #edia enterprise. % single entity #ay not o,n controlling shares in #ore than t,o #edia. 38b9 Burkina )aso 2icensing "ollo,s the sa#e process as "or Co##unity Broadcasting. 6,nership o" a radio or tele'ision .y a non8national is li#ited to less than 5per cent o" the shares. The sa#e person or corporation cannot o,n #ore than 2 .roadcast #edia. %d'ertising is prohi.ited "or "irear#s and alcohol. There are a.out 1- Ipri'ateJ radiosC operating presently in Bur3ina /asoC as co##ercial radios 1ali 2icensing o" Co##ercial radios "ollo,s the sa#e procedure as "or Co##unity radios. :o,e'er applications "or co##ercial licensing re1uire a .usiness planC a detailed description o" the e1uip#ents and a progra##ing

38c9

1,

3#id7

Co#parati'e %nalysis o" Broadcast 0egulation in the %"rica 0egion

%nnex 2

schedule. Co##ercial radio licenses costs 'ary according to location and po,er o" trans#itter re1uested .et,een 2.---.--- /C/% to !.---.--- /C/% 4<S N2.--- to <S N !.---5. The CSS .eing speci"ically in charge .y la, to Iguard against the constituting o" lo..ies in .roadcastingJC it considers i" the applicants already o,n a .roadcast #edia. The un,ritten rule has .een so "ar not to allocate t,o "re1uencies to the sa#e entity. Brand ad'ertising is restricted to co##ercial radiosC co##unity radio are restricted to Iannounce#entsJ. There are a.out 3- co##ercial stations operating presently in +ali. 38d9 South Africa Co##ercial is a separate licence category in South %"rican .roadcasting la,. The South %"rican la, contains co#plex rules on concentration o" o,nership. /irstC no one #ayC directlyC indirectly or through a co#panyC exercise control o'er #ore than one pri'ate tele'ision license. SecondC no one #ayC again directlyC indirectly or through a co#panyC exercise control o'er #ore than t,o pri'ate /+ or %+ sound .roadcasting license. /urther#oreC no one #ay control su.stantially o'erlapping either /+ or %+ ser'ices 4although o'erlapping o,nership o" one /+ and one %+ license ,ould appear to .e per#itted5. Cross8o,nership rules prohi.it anyone "ro# controlling a ne,spaper and .oth a radio and a tele'ision license. /urther#oreC anyone in a position to control a ne,spaper ,ith a circulation o" 2-P o" the total ne,spapers readership in any gi'en area #ay not o,n a .roadcasting license ,hich su.stantially o'erlaps ,ith the ne,spaper circulation. /or this purposeC an o'erlap o" 5-P o" #ore is dee#ed to .e su.stantial and a 2-P shareholding is dee#ed to constitute control. These rules #ay .e ,ai'ed in any particular caseC as long as this does not run counter to the o.Dects and principles o" .roadcast regulationC as set out in the la,.

Co#parati'e %nalysis o" Broadcast 0egulation in the %"rica 0egion 7( 78a9 Radio fre4uency spectrum

%nnex 2

Benin 0adio spectru# is #anaged .y the :%%C ,hich uses the ser'ices o" the )ational Teleco##unication operator and is responsi.le "or the esta.lish#ent o" the Spectru# (lan and "or the actual allocation o" "re1uencies to speci"ic radios. The :%%C has ta3en the initiati'e on its o,n to di'ide the .roadcasting spectru# ,hich according to the I<T (lan only 2 "re1uencies in the each o" the #ain cities o" countryC into #any short range "re1uenciesC to .e a.le to i#ple#ent its policy o" co##unity radio de'elop#ent. The :%%C thus de'ised its o,n /re1uency (lan ,hich Benin latter negotiated ,ith the I<T.

78b9

Burkina )aso The radio spectru# is #anaged on the IcontentJ side .y the CSI ,hich colla.orates ,ith the teleco# operator ,hich is in charge ,ith the technical and international aspects 4it represents the country at I<T. 1ali 0adio spectru# is #anaged .y the teleco##unication operator. %"ter the CSS .eca#e operational in 1995 a "re1uency plan ,as prepared .ased on short range /+ "re1uencies distri.uted throughout the country. ThusC +ali has .een a.le to acco##odate a.out 2-- radio stations to date. South Africa IC%S% is responsi.le "or spectru# #anage#ent and ensures e""icient use o" radio spectru# .y ,or3ing ,ith I<T on the international le'el and dra"ting a /re1uency (lan on the local le'el.

78c9

78d9

Anne+ -( ,ersons and %rganisations $onsulted

1. 2. 3. !. 5. . $. *. 9. 1-. 11. 12. 13. 1!. 15. 1 . 1inistry of $ommunications :on %l.ert Ean &apaahC +inister o" Co##unications &r Ben %ggrey8)ti#C &eputy +inister +r E 6"osu8%dar3,ahC %cting Chie" &irector +r Issah ?ahayaC &eputy &irectorC (olicy (lanningC +onitoring and E'aluation 1inistry of 0nformation :on. Shirley %yor3or Botch,eyC &eputy +inister o" In"or#ation +r A. T. Euu@u#eC Chie" &irector +r A.X.E. SenayaC &ep. &irectorC (olicy (lanningC Budget +onitoring and E'aluation +r %. Eo.la'iC &eputy &irectorC In"or#ation Ser'ices &epart#ent +r El'is %danyinaC 0egional In"or#ation 6""icerC Greater %ccra +r. /ran3 %gye3u#C Go'ern#ent Spo3esperson 8 Go'ernance +r. )ana 6hene8)to,C Go'ern#ent Spo3esperson 8 /inance and Econo#y National $ommunications Authority +aDor B.0.E. Tandoh 40td5C %cting &irector8General 9 Chie" Executi'e 6""icer +r. Bernard % /orsonC &eputy &irector8General +r. Boshua E. (eprahC &irectorC 0egulations and 2icensing +aDor E. 6,usu8%dansi 40td5C &irectorC /re1uency +anage#ent +rs. %.ena E. %sa"o8%gyeiC &irectorC 2egal National 1edia $ommission

1$. %lhaDi %.u3ari Sidic3 %h#edC ChairpersonC )ational +edia Co##ission 1*. :on. Boe Baidoe8%nsah 4+(5C Co##issioner
19. +r. Boseph E.T. &ottey 4%(05C &eputy Executi'e Secretary 4/inance9%d#inistration5 Ghana Broadcasting $orporation 8GB$9 2-. +s E'a 2o33oC &irector8General 21. +r ?a, 6,usu8 %ddoC &irectorC 0adio 22. +r Eo"i Buc3norC &irectorC Tele'ision Ghana 0ndependent Broadcasting Association 8G0BA9 23. +r E,asi T,u#C Aice8(residentC GIB%H Chie" Executi'eC +ulti#edia Broadcasting Co#pany 2td 2!. +r E,a, (. %nsahC Executi'e Council +e#.erC GIB%H Executi'e (roducerC TA %"rica 25. +r Ba#es %ppiahC +e#.erC GIB%H +anaging &irectorC %tlantis 0adio Ghana $ommunity Radio Net*ork 8G$RN9 2 . +r. Eo"i 2ar,ehC ChairpersonC Ghana Co##unity 0adio )et,or3 2$. +r. %lex Guar#yneC 0adio %da %ther persons7organisations consulted in Ghana 2*. +r. Ti# %c1uah8:ay"ordC CE6C TB7%9+%0EC6+C (resident o" %d'ertising %ssociation o" Ghana 4%%G5H "or#er )+C Chair 29. +r. 7illia# Eo"i %had@ieC 0esearch /ello,C Centre "or (olicy StudiesH Chair o" )ational &e'elop#ent (lanning Co##ission 3-. +r. ?a, Boadu8%ye.oa"ohC EditorC &aily GraphicH "or#er Executi'e SecretaryC )+C 31. +r. :e@e3iel &la#iniC %d'isor "or Co##unication and In"or#ationC <)ESC6 32. +r. Budali Issaha3uC (o'erty and %ccounta.ility %d'isorC <E &epart#ent "or International &e'elop#ent 33. (ro". Eo"i Eu#adoC &irectorC 2egon Centre "or International %""airsC Chair o" 2egislati'e 0e'ie, Co##ittee "or Teleco#sC "or#er Chairperson o" )+C 3!. +rs. 7ilna Guar#yneC SecretariatC Ghana %d'ocacy Steering Co##ittee "or a )ational Broadcasting 2a, 35. +r. Eo"i Tsi3ataC Co##unication SpecialistC 7orld Ban3C Ghana

Anne+ .( References
/egal &e+ts

1. 0epu.lic o" Ghana 42-- 5C Constitution %ct o" 1992 4a#ended5

httpK99,,,.parlia#ent.gh9constYConstitution.php 2. 0epu.lic o" Ghana 419935C )ational +edia Co##ission %ct 1993 4%ct )o. !!95 3. 0epu.lic o" Ghana 4199 5 )ational Co##unications %uthority %ct 199 4%ct )o. 52!5 !. 0epu.lic o" Ghana 42--25 )ational +edia Co##ission 4Broadcasting Standards5 0egulationsC 2.I. 1$15C 2--2 4,ithdra,n5 5. 0epu.lic o" Ghana 42--35 )ational Co##unications 0egulationsC 2.I. 1$19C 2--3 . )ational 2i.eration Council 419 *5 Ghana Broadcasting Corporation &ecreeC 19 * $. Ghana Supre#e Court 4199 5 0epu.lic ' Independent +edia Corporation o" Ghana and 6thersC Supre#e Court o" Ghana 2a, 0eports 199 89$ Government ,olicy

*. <)EC% 42--35 %n Integrated ICT8led Socio8Econo#ic (olicy and (lan "or

&e'elop#ent /ra#e,or3 "or GhanaC <)EC%C +arch 2--3 httpK99,,,.ict.go'.gh9pd"9ICT!%&8/ra#e,or3.pd" 9. 0epu.lic o" Ghana 42--!5 The Ghana ICT8led (olicy "or %ccelerated &e'elop#ent httpK99,,,.ghana.go'.gh9p.copin9Ghana8ICT%&P2-(olicy8+aster8"inal82.pd" 1-. 0epu.lic o" Ghana 42--!5 Teleco##unications (olicy &iscussion &ocu#entC +inistry o" Co##unicationsC +ay 2--! httpK99,,,.ict.go'.gh9Teleco#P2-policy9&)T%P2-GhanaP2-ConsultationP2-(aper 1.ht# 11. 0epu.lic o" Ghana 42--55 )ational Teleco# (olicyC +inistry o" Co##unications Banuary 2--5 httpK99,,,.ict.go'.gh9Teleco#P2-policy9GhanaP2-Teleco#P2-(olicyP2-/inal.pd" 12. :.E. Bohn %gye3u# Eu"uorC (resident o" the 0epu.lic o" GhanaC address to the 0egional (reparatory Con"erence "or the 7orld Su##it on the In"or#ation SocietyC %ccraC 2 /e.ruary 2--5 httpK99,,,.ghana.go'.gh9dexadd97SISP2-/I)%2P2-/I)%2P2-%ddress.pd" 13. 0epu.lic o" Ghana 42--!5 Ghana (o'erty 0eduction Strategy 2--!82--$ 1!. E8Ghana (roDect In"or#ation &ocu#ent 8 Concept Stage 15. 1 . 1$. 1*. 19. 2-. 21. 22. 23. 2!. 25. 2 . 2$. National 1edia $ommission 6ocuments )+C 4199*5 %nnual 0eport 199$99* )+C 42---5 %nnual 0eport 2--)+C 42--15 %nnual 0eport 2--1 )+C 42--25 %nnual 0eport 2--2 )+C 42--35 %nnual 0eport 2--3 )+C 4undated5 )ational +edia Co##issionK (ro"ile )+C 42---5 )ational +edia (olicy )+C 42--25 6rganisational Structures and Bo. &escriptions )+C 4undated5 Broadcasting Standards )+C 4undated5 Guidelines "or (olitical 0eporting )+C 4undated5 Guidelines "or the (u.lication o" 0eDoinders )+C 419995 1- ?ear Strategic (lan 1999 O 2--9 %udit Ser'ice 42--!5 +anage#ent letter on the audit o" the accounts o" )ational +edia Co##ission "or the "inancial year ended 31 &ece#.er 2--3

National $ommunications Authority 6ocuments 2*. Ghana /re1uency 0egistration and Control Board 4199 5 )ational 0adio"re1uency Spectru# (lan 29. )C% 4undated5 Technical (lanning Guidelines "or 0adio and Tele'ision 3-. )C% 4undated5 Guidelines "or Su.#ission o" /easi.ility 0eport "or Teleco##unications (roDects 31. )C% 4undated5 Guidelines "or Su.#ission o" /easi.ility 0eport "or Broadcasting (roDects

32. )C% 4undated5 Guidelines "or 6peration o" Co##unity 0adio

0e"erences

%nnex !

33. )C% 4undated5 % suggested typical spectru# #anage#ent structure "or de'elop#ent 3!. )C% 4undated5 0egulatory charges "or co##unications "acilities and ser'ices 35. Excepts "ro# &ra"t recei'ed "ro# +inistry o" Co##unications Consultants on 22 /e. 2---C General 0egulations under the )ational Co##unications %uthority %ct o" 199 Advocacy Statements 3 . %(BC 4%ssociation o" (ri'ate Broadcasting Co#panies5 42---5 Co##ents on dra"t General 0egulations under the )ational Co##unications %uthority %ct 199 4%ct 52!5C. 3$. GC0) 4Ghana Co##unity 0adio )et,or35 42---5 Co##ents on &ra"t 0egulations under the )ational Co##unications %uthority %ct 199 4%ct 52!5 3*. GC0) 4Ghana Co##unity 0adio )et,or35 42--!5 Co##ents on &ra"t )ational Teleco##unications (olicyC Bune 2--! 39. %penteng B. State#ent .y Ghana %d'ocacy Co##ittee "or a )ational Broadcasting 2a,C Sta3eholders 7or3shop on Teleco# (olicy and 0egulatory /ra#e,or3 0e'ie,C %ccraC 2! +ay 2--! !-. Guar#yne 7.7.C State#ent .y Ghana Co##unity 0adio )et,or3C Sta3eholders 7or3shop on Teleco# (olicy and 0egulatory /ra#e,or3 0e'ie,C %ccraC 2! +ay 2--! !1. GC0) 42--55 Co##ents o" 0e"erence Group on )C% IGuidelines "or 6peration o" Co##unity 0adio StationsC (u.lic /oru# on I(eople;s access to the air,a'es O To,ards an ena.ling Co##unity 0adio (olicyJC 1! Buly 2--5. $ommentaries and Analysis !2. %#pa,C %. 42--!5 0e'ie, o" legislation on .roadcasting in GhanaK (reli#inary 0eportC 1* 6cto.er 2--! !3. %penteng B. 42--x5C The current and "uture challenges o" "inancing (u.lic Ser'ice Broadcasting in 7est %"ricaC !!. Eusi8%tansah 7. 42--!5 0egulation and +anage#ent o" (u.lic Ser'ice +edia in GhanaC %C0%) 9 0I%0C Con"erence 0eportC Bohannes.urgC South %"ricaC 2--! $omparative e+amples = Benin !5. The Constitution o" 199! . 2a, )o 928-21C enacted on %ugust 21C 1992 on the :aute %utorite de %udio'isuel et de la Co##unication 4:%%C5. !$. Code o" Ethics o" the Bournalists;%ssociation $omparative e+amples = Burkina )aso !*. The Constitution o" 1991. !9. The Code o" In"or#ation 42a, 5*993 enacted on &ece#.er 19935. 5-. %ct o" the )ational %sse#.ly enacted on Banuary 2--- on the Conseil Superieur de l;In"or#ation a#ending &ecree o" %ugust 1995. 51. (residential &ecree o" Banuary 2--1 on the Conseil Superieur de l;In"or#ation a#ending %ct o" )ational %sse#.ly o" Banuary 2--52. +issions and o.ligations o" radio and tele'ision .roadcasters. 53. Broadcasting %uthorisation procedure. 5!. Bournalists; Charter 55. 2a, enacted on Banuary 2*C 2--- on operations and #anage#ent o" the CSI $omparative e+amples = 1ali 5 . The Constitution adopted .y re"erendu# on Banuary 12C 1992. 5$. 2a, enacted on &ece#.er 1992 on the Conseil Superieur de la Co##unication. 5*. 2a, enacted on Banuary 1993 on the Co#ite )ational pour l;Egal %cces aux +edias d;Etat 4C)E%+E5. 59. Content regulation &ecree -. Broadcasting "eesC radio and tele'ision $omparative e+amples = South Africa 1. The Constitution 199 2. The Independent Broadcasting %ctC 1993

0e"erences
3. The IC%S% %ctC 2--!. The Broadcasting %ctC 1999.

%nnex !

%ther references 5. 0eport o" the (reparatory Co##ittee on Independent BroadcastingC %pril 1995 . /unding Independent Go'ernance Institutions o" State "or )ational &e'elop#entC 0eport o" the th )ational Go'ernance 7or3shopC <)&( 2--3 $. I(ri'ate 0adio and TA BroadcastingK 3 Granted Ser'ice authorisationJ &aily Graphic 21 Buly 1995 *. Institute "or (olicy %lternati'esC ICo##unity AoicesJ in Ci'il Society %sses#ent o" pro8poor (olicies Z (rogra##es in Ghana;s (o'erty 0eduction Strategy 4G(0S5 O %nnual Score CardC 2--! O 2--5 9. 7orld .an3C Country %ssistance Strategy "or GhanaC 2--!8$ $-. htt"IJJ8887itu7intJne8sroo*J"ressKre$e'sesJ2005J127ht*$ $1. htt"IJJ8887itu7intJ"u#$i%'tionsJde 'u$t7's"< $2. 7orld Ban3C 2egal and 0egulatory /ra#e,or3s "or +ediaC Aoice and %ccess to In"or#ationC draft Guide of Good PracticeC 2--5 $3. +ti#de 2.C Experiences Z 2essons 0egarding the General 0ole o" a Sector 0egulatorK IC%S% (resentation to (ort"olio Co##ittee on TransportC South %"ricaC -! Bune 2--3 $!. Ghana Bournalists %ssociation 4199!5 Code o" Ethics