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Efforts to transform the state broadcaster into a public service broadcaster are directed at increasing the political autonomy of the media (Finding 3.2.6). Although the 1998 Law on Freedom of the Media formally prohibited state control of the media, this change in public policy was never implemented; Mongolian Radio and Television (MRTV) thus remained a state-controlled media outlet. The Law on Public Radio and Television, which came into effect on July 1, 2005, however, transformed MRTV into Public Radio and Television (PRTV). It is now operating under an independent board, the National Council, with a mandate to provide a variety of high-quality programming to the public. The new Public Service Broadcasting (PSB) Law, however, restricts PRTV’s access to advertising, which was formally limited to 2 percent of airtime on July 1, 2005, and then eliminated altogether on January 1, 2006 (see annex 5, Finding MEDIA 3). 40 As a result, serious concerns have been raised about the ability of PRTV to survive let alone to continue its current levels of programming. On the other hand, interviewees pointed out that the old MTVR operated inefficiently, and that PRTV could realize significant savings by establishing more effective systems and by retrenching staff. There have also been problems with the appointment and early operations of the National Council (see Finding MEDIA 2 in annex 5). The Mongolian Press Institute oversaw a wide-ranging and highly participatory process that led to the nomination by civil society of 37 candidates for the 15 positions on the National Council. When the president, government, and parliament made the final selection, however, only 8 of those appointed to the Council were from the list of nominees. The others were selected without any open discussion or democratic process. It was suggested that the Chair of the Council, an MPRP MP until 2004, lacked the requisite independence that his position demanded. 41 Following their controversial appointment, there was also a serious rift in the Council over the designation of the new General Director of PRTV. This led some members to lodge a court case challenging the appointment, although the case was ultimately withdrawn and the appointments ratified. Despite the politicization of the media, CSOs receive a high level of media coverage of their activities as indicated in interviews with CSO leaders and their responses to the CSO Survey. Sixty-five percent reported that they had been interviewed or their organization profiled in the media, and 61 percent said that an activity or event had been covered. Only 44 percent, however, indicated that they received media coverage upon their request, whereas many CSO leaders complained that they had to pay for media coverage, including advertisements for their events. Consequently, some stakeholders from both the media and CSO community described their relations as adversarial. Moreover, CSO leaders as well as various other stakeholders repeatedly stated that adequate coverage of an event was only possible if one were to read all Mongolian newspapers as each report with its own particular political slant. Nevertheless, a number of CSOs indicated that they have worked closely with the media over a number of years to build stronger relationships and thus ensure better coverage (see recommendations in Finding 2.5). Globe International, for example, has cultivated a positive working relationship with the media, in part through its work to defend freedom of expression (see box 3.2.6). 40 The complete elimination of all advertising was added to the PSB Law after a presidential veto of the law originally adopted by the State Great Khural. 41 The Public Service Broadcasting Law prohibits the appointment of elected officials and members of management of political parties to the National Council, but not former MRTV officials or former members of management. 27
Box 3.2.6 Promoting Freedom of Expression: Globe International Globe International is a Mongolian NGO founded in 1999 with a mission to promote freedom of expression, information, and the media. It has been active in promoting an Access to Information Law, as well as the 2005 Law on Public Radio and Television. Globe has undertaken a range of activities aimed both at the media and policy makers. In 2002, Globe published Report on Media Law Reform in Mongolia, an in-depth analysis of legal and other constraints on media freedom, in collaboration with ARTICLE 19, an INGO that promotes freedom of expression (ARTICLE 19 and Globe International 2002). Globe is currently working with two local NGOs, the Press Institute and the Zorig Foundation, on a project to support the role of the media in promoting transparency. The project includes training for investigative journalism and bringing together editors from a range of media outlets to form an editors’ task force, to enhance the role of the media in anticorruption activities. Globe also conducted a media monitoring exercise during the 2005 presidential elections, aimed at exposing political biases in six TV channels, the national radio, and four daily newspapers. Other instances of CSO-media cooperation include the Ongi River Movement, which has cultivated a strong relationship with various media outlets to gain extensive coverage of its events and a greater voice in promoting awareness about environmental degradation (annex 3, Finding ONGI 5). In addition, the Gender Center for Sustainable Development has worked with certain journalists over time and built supportive relationships, while the National Human Rights Commission has awarded media workers for their role in giving Voice to human rights abuses and related issues. 3.2.3 Voice: Findings and Recommendations As a critical enabling element of civic engagement/social accountability, the capacity of citizens and CSOs to Voice their concerns and opinions has dramatically increased since the transition to democracy in the early 1990s. Nevertheless, certain weaknesses remain in both the guarantee of freedom of expression and the various mechanisms for voice. As a remedy, the study suggests the following recommendations. Finding 3.2.1. Mongolians lack awareness of their civil rights, including freedom of expression. Recommendations: Citizens’ understanding about their own democratic rights and obligations should be fostered. There are a wide range of options, including the following: 1) Public officials, CSOs, foreign donors, and the media should collaborate in civic education programs to inform citizens about their rights. Information may be disseminated through public service announcements; literature that uses accessible language and illustrations based on local experiences; and projects that directly involve citizens in exploring their rights and responsibilities, such as community theaters. 2) An innovative educational curriculum should target youth for special instruction on citizenship, including their democratic rights and responsibilities. In addition to current drama and art programs and essay contests, the GoM and education-focused NGOs should explore the experiences of other countries within the region to generate new programs. Finding 3.2.2. The harsh punitive provisions of defamation laws constrict the media’s freedom of expression. Recommendations: 1) In collaboration with other stakeholders, public officials should comprehensively review and reform the criminal and civil defamation regimes in accordance with international standards. At a minimum, the provision of imprisonment for defamation should be removed. International donor agencies, INGOs, and CSOs with an expertise in defamation laws should advocate for these changes, for example, by providing comparative materials on defamation laws in other countries.
Page 2 and 3: Report No. 32584-MN The Enabling En
Page 4 and 5: Table of Contents Acronyms ........
Page 6 and 7: Boxes: Box 2.1.1 Proposed Changes t
Page 8 and 9: Preface This study on “The Enabli
Page 10 and 11: of civic engagement, namely, the ab
Page 12 and 13: Part I. Introduction 1.1 DEFINITION
Page 14 and 15: further and recognizes other types
Page 16 and 17: as resources. 13 The quantitative c
Page 18 and 19: parliamentary elections demonstrate
Page 20 and 21: As figure 2.1.2 clearly illustrates
Page 22 and 23: The Constitution also guarantees th
Page 24 and 25: ise of mass pro-democracy movements
Page 26 and 27: preferences of funders. This has le
Page 28 and 29: Recommendations: 1) The Ministry of
Page 30 and 31: PART III - Assessment of the Enabli
Page 32 and 33: and operations, or demand elections
Page 34 and 35: conferences and workshops, to more
Page 36 and 37: Capacity Building Program,” indep
Page 40 and 41: 2) Given the culture and norms that
Page 42 and 43: Figure 3.3.1 Frequency of CSO Reque
Page 44 and 45: Box 3.3.1 Women for Social Progress
Page 46 and 47: These bureaucratic delays highlight
Page 48 and 49: Other ways for CSOs to generate alt
Page 50 and 51: development initiatives become more
Page 52 and 53: Box 3.4.1 The Community Scorecard:
Page 54 and 55: Negotiation also ensures that legis
Page 56 and 57: Although the Environmental Impact A
Page 58 and 59: Part IV—Conclusion This study on
Page 60 and 61: 4.2 SUMMARY OF FINDINGS AND RECOMME
Page 72 and 73: Currently, the NCAV works in six se
Page 74 and 75: Mongolian Federation of Senior Citi
Page 76 and 77: are reluctant to assume full respon
Page 78 and 79: FINDINGS AND RECOMMENDATIONS: NATIO
Page 80 and 81: WSP-UV’s coordinator remains in c
Page 82 and 83: program officer, the methodology us
Page 84 and 85: critical role in promoting social a
Page 86 and 87: Annex 3: Social Accountability and
Page 88 and 89:
khural chairs who served on the ORM
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is inadequate. Part of the problem
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plans, but there was no follow-up a
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Recommendation: Effective CSO colla
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wide mandate to manage and monitor
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Ulaanbaatar, asking them to identif
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Moreover, after a World Bank Superv
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Annex 5. Mongolian Media: Overview
Page 104 and 105:
they would be unlikely to do so. CR
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discussion below), the director of
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Social and cultural considerations
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Findings and Recommendations: Mongo
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Annex 6. Survey of Civil Society Or
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How frequently has your organizatio
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Computer 95% up to 40 computers, 21
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No response 1% BB1. If you have req
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KK. Over the last year, how frequen
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C. What are the most important soci
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L. How much influence do citizens h
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U. Are most civil society organizat
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Annex 8. Stakeholders’ Map CSO NA
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CSO NAME Gandan Monastery Gandantse
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CSO NAME Liberal Women’s Brain Po
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CSO NAME Mongolian Information Netw
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CSO NAME Ongi River Movement (ORM)
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CSO NAME Press Institute Red Cross
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CSO NAME Women For Social Progress,
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AFFILIATION State Great Khural (Par
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AFFILIATION Mineral Resource and Pe
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AFFILIATION National Legal Center (
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AFFILIATION Mongolian Radio and TV
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AFFILIATION UNDP UNICEF CONTACT ANN
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AFFILIATION Mercy Corps CONTACT ANN
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Bibliography Ackerman, John M. 2004
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Finch, Christopher. 2002. “Mongol
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---. 2004. Rural Government Procure
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National University of Mongolia. 20
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UNDP. 2001. A Strategy for Poverty
Page 164:
Zorig Foundation. 2004. “Monitori
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