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Power and the News Media: The Press and Democratic Accountability

2009, Politik in der Mediendemokratie

Two interesting dimensions emerge from investigations of press-state relationships in the western democratic nations: consistently strong norms favoring press freedom and independence at the journalistic level, contrasted with markedly different media cultures defining the social responsibility of the press and its positioning vis-à-vis audiences and public officials (Hanitzsch 2007). These different dimensions of the public interest role of the press may explain why some observers (e. g. Deuze 2005) see marked similarities across democratic media systems, while others (Esser 1998; Donsbach/Patterson 2004; Hallin/Mancini 2004) tend to see important differences. Thus, Deuze (2005) concluded that journalists across many different systems embrace common norms of autonomy, fairness, and accuracy, while Donsbach (1995) compared U.S. and German newsrooms and concluded that they represent two very different worlds in terms of how reporters and editors approached stories. Hanitzsch (2007) offers a useful typology for thinking about similarities and differences in journalism cultures. One prominent category in his framework involves how the market orientation within a media system affects how publics are addressed in news content. He contrasts two markedly different conceptions of news audiences: "In journalism cultures that give priority to the public interest, the audience is clearly addressed in its role as citizenry. It is assumed that the primary purpose of journalism is to provide citizens with the information they need to be free and self-governing" (Hanitzsch 2007: 374). "When market orientation is high journalism gives emphasis to what the audiences want to know at the expense of what they should know. Journalism cultures on this pole of the [market] dimension champion the values of consumerism; they focus on everyday life issues and individual needs. Audiences are not addressed in their role as citizens concerned with the social and political issues of the day but in their role as clients and consumers whose personal fears, aspirations, attitudes, and emotional experiences become the center of attention" (Hanitzsch 2007: 375).

Power and the News Media: The Press and Democratic Accountability W. Lance Bennett Two interesting dimensions emerge from investigations of press-state relationships in the western democratic nations: consistently strong norms favoring press freedom and independence at the journalistic level, contrasted with markedly different media cultures defining the social responsibility of the press and its positioning vis-à-vis audiences and public officials (Hanitzsch 2007). These different dimensions of the public interest role of the press may explain why some observers (e. g. Deuze 2005) see marked similarities across democratic media systems, while others (Esser 1998; Donsbach/Patterson 2004; Hallin/Mancini 2004) tend to see important differences. Thus, Deuze (2005) concluded that journalists across many different systems embrace common norms of autonomy, fairness, and accuracy, while Donsbach (1995) compared U.S. and German newsrooms and concluded that they represent two very different worlds in terms of how reporters and editors approached stories. Hanitzsch (2007) offers a useful typology for thinking about similarities and differences in journalism cultures. One prominent category in his framework involves how the market orientation within a media system affects how publics are addressed in news content. He contrasts two markedly different conceptions of news audiences: “In journalism cultures that give priority to the public interest, the audience is clearly addressed in its role as citizenry. It is assumed that the primary purpose of journalism is to provide citizens with the information they need to be free and self-governing” (Hanitzsch 2007: 374). “When market orientation is high journalism gives emphasis to what the audiences want to know at the expense of what they should know. Journalism cultures on this pole of the [market] dimension champion the values of consumerism; they focus on everyday life issues and individual needs. Audiences are not addressed in their role as citizens concerned with the social and political issues of the day but in their role as clients and consumers whose personal fears, aspirations, attitudes, and emotional experiences become the center of attention” (Hanitzsch 2007: 375). These two ways of thinking about audiences are by no means exclusive. Indeed, they are easily combined and may be increasingly mixed together even in public service systems (Hanitzsch 2007). Many scholars and concerned journalists have concluded that news organizations in different nations may abuse their power to enhance popular debate and understanding, not because they typically take extreme or biased positions, but because they so often substitute diverse and critical news content for a thinner mix of drama, sensation, consumer features, and official spin (McChesney 2004; Patterson 1992, 1993; Petersson et al. 2007; Bennett 2009). The growing concern is that big corporate media treat news much as they regard entertainment programming: as a profitable product that generates greater revenues if it can be produced at low cost and aimed at the audience demographic segments that are most attractive to advertisers. Nations such as the United Kingdom, Germany, and most northern European and Nordic countries have maintained commitments to public service broadcasting and relatively strong public interest regulations on the press. Yet even in these cases, market Power and the News Media: The Press and Democratic Accountability 85 pressures take indirect paths, forcing public broadcasters to compete for audiences with commercial channels. As younger demographics become less interested in serious news, and large media corporations press governments to reduce unfair subsidies to their public competitors, the future of journalism is uncertain. Whether in more heavily commercialized or mixed public service systems, the growing marketing logic that drives public affairs content may exclude large segments of the public who are either of little interest to mainstream advertisers (poor, immigrant and ethnic populations), or those, such as younger demographics, whose information tastes are changing and hard to adapt to conventional news formats. Meanwhile, prime advertising demographics (such as working women between the ages of 25 and 40) are targeted with more soft news features on fashion, celebrity, health and travel. The result is a narrowing and segmenting of the democratic public sphere (Hamilton 2004). In theory, there are good reasons to maintain a media sphere that is free of such restrictive commercial interests in order to maximize communication values such as being inclusive, open and appealing to all citizens (Habermas 1989). The problems of a heavily commercialized public sphere are most pronounced in the United States, which undoubtedly has the most private, concentrated, and least regulated media sector among the top tier of OECD democracies. In the U.S. the commercialization of news has become so pronounced that daily content is driven by a mix of highly dramatized stories, while issue reporting and investigative journalism even in elite news organizations is increasingly displaced by official spin (Kovach/Rosenstiel 1999; Bennett et al. 2007). As profit demands rise, newsroom budgets have become so tight that investigative reporting is a luxury more often pursued to win awards and create prestige for brand-conscious news organizations than to routinely hold authorities accountable or to serve the interests of publics (Underwood 1993; Bennett/Serrin 2005). Perhaps the most common academic account of the erosion of the relationship between news and democratic responsibility is the difficulty of defining and implementing standards of public accountability when news is a market commodity protected by otherwise reasonable standards of press freedom (McChesney 2004). 1. Beyond the Market: The Democratic Dilemma of Public Accountability There is little disagreement that freedom of the press is a necessary condition to provide publics with common communication spaces in which ideas can be exchanged and opinion independent of official spin can develop. However, the uneasy relationship between market forces and the public interest makes it equally clear that freedom to publish or broadcast is not a sufficient condition to hold media institutions accountable to some standards of the public interest, which are usually defined in terms of public affairs content reflecting a diverse range of voices (news sources) representing various public interests (Hallin/Mancini 2004). If press freedom is not sufficient to create public accountability, then some sort of (state) regulation and control becomes necessary to prevent media organizations from abusing their public responsibilities. Yet, as McQuail (2003) has pointed out, press freedom and public accountability are curiously independent and poorly articulated ideals in democratic life. Without