Written evidence from the Foreign and Commonwealth Office (GMF0004)
1.1 The FCO welcomes the Foreign Affairs Committee’s inquiry into global media freedom. This is our priority campaign for 2019, through which we will aim to shine a spotlight on the issue of media freedom and raise the cost to those who violate it. Our vision is to be able to reduce the intimidation, harassment and persecution of journalists across the world.
1.2 We have structured this written evidence around the first three of the five areas of inquiry set out by the Committee in its call for evidence, namely:
1.3 On the other areas of focus identified by the Committee, we plan, as a key part of our campaign this year, to test how we prioritise our engagement and our approach to protecting media freedom. We will be measuring the impact our support for this issue has had in the course of this year, with a view to informing our potential further work in the years ahead. The Committee’s conclusions on these questions will be very helpful to us in our forward planning.
1.4 This Memorandum incorporates evidence from the Department for Culture, Media and Sport, the British Council and the Department for International Development.
Attacks on journalists are increasing. Reporters Without Borders (RSF) report that 80 journalist and media workers were killed in 2018, and 702 since 2008. The majority were local journalists. Roughly half were killed in conflict situations. Over half of the attacks were deliberately targeted. Attacks were committed by the police and security services, but also by extremists, terrorists, criminal groups and demonstrators, including those with political connections. Female reporters are particularly targeted. Attacks have been carried out against professional as well as non-professional “citizen” journalists.
2.2. Impunity for attacks on journalists is widespread. The Committee on the Protection of Journalists (CPJ) suggest that from 1992 to 2012, 565 journalists were killed with impunity. They estimate that in most cases where a journalist is killed, no perpetrator is caught.
2.3. Journalists face a range of barriers to carrying out their daily work. These include attacks on and confiscation of property, on-line surveillance, the blocking of websites and the shutting down of the internet, telecoms and messaging services. This occurs especially at times of heightened political tension, during elections and public demonstrations. All prevent journalists covering events, sending and receiving information, which in turn limits freedom of expression.
2.4. In recent years the internet has become an important tool in advancing freedom of expression. We firmly believe that all rights which exist offline must be protected online too. The UK opposes any attempts to restrict access to the internet through internet shutdowns, as this undermines democracy and the legitimate right to free expression. According to Access Now, there were 188 internet shutdowns in 2018.
2.5. Statements by politicians, officials and religious and ideologically-driven groups targeting and demonising the media help to create a permissive environment for attacks and other action against journalists. Where this does not lead to actual attacks it often results self-censorship.
2.6. Vaguely-written laws on defamation, slander, libel, hate speech, blasphemy, apostasy and other poorly-defined offences, such as “misinformation” “distorting the truth” or maintaining public and State interests are also regularly used to intimidate, harass or muzzle journalists.
2.7. Other States use broadly drawn “catch-all” counter-terrorism, security and cyber-related legislation to restrict press freedom. Such laws are used to allow the detention of journalists, excessive and almost indiscriminate powers for the State to interfere with the press (e.g. forcing journalists to reveal their sources). Implementation of such laws is often by State and administrative bodies, and not through judicial decision.
2.8. An additional challenge to media freedom comes in the form of sustaining quality, independent global media, particularly with the rise of social media as a news source in recent years. Sustainable financial models for the media businesses are increasingly difficult, and challenges arise from changing ownership of commercial operators which has an influencing impact on editorial independence.
3.1. There is a growing international consensus on the need to take action against disinformation, the deliberate use of false or manipulated information to deceive audiences for the purposes of causing harm and/or for personal, political or commercial gain. A robust, free, vibrant and varied media landscape is one of the best antidotes to hostile state disinformation, though in some places countering disinformation can be used as a pretext to intimidate or close down the space for media freedom. The UK is at the forefront of efforts to tackle disinformation and limit its harmful impact on democracy, working with a range of like-minded countries. Like restrictions on the media, disinformation also requires a concerted response.
3.2. We are drawing on the experience of our Nordic and Baltic partners, which means taking a whole-of-society approach. This involves working towards three key objectives: first, deterring the use of disinformation by exposing and disrupting the perpetrators; second, increasing transparency and accountability online to make it more difficult and less rewarding to spread disinformation; and third, making people more resilient through education and empowerment. We are investing £100 million in that effort around the world, which includes, at the moment, £8.5 million in Eastern Europe and Central Asia alone.
3.3. The Department for Culture, Media and Sport (DCMS) is leading work across the UK Government to tackle disinformation, including from overseas, working closely with the Cabinet Office, the Foreign and Commonwealth Office and the Home Office. Together, we are working to reduce the impact on UK society and our national interests, in line with democratic values.
3.4. Protecting citizens’ freedom of expression underpins our work to tackle disinformation. DCMS is leading work in the UK to ensure we have a news environment where accurate content can prevail and high-quality news online has a sustainable future. The report of the independent Cairncross Review, which presents an overview of challenges facing high quality journalism in the UK, made a number of recommendations including: imposing a news quality obligation on platforms and for the Government to launch an innovative fund to improve the supply of public interest news. We will now consider these recommendations and explore how they can inform our approach to these issues.
3.5. One of the core aims of the Digital Charter is to make the UK the safest place to be online and this includes addressing disinformation. The forthcoming Online Harms White Paper will include disinformation as part of the wider spectrum of online harms. The White Paper will include legislative and non-legislative measures to tackle a wide range of harms online and set clear responsibilities for tech companies to keep their users safe.
Bilateral Work
4.1. The UK has a long culture of supporting freedom of expression and a strong independent media, both of which underpin the fundamental values of our democracy. English is a global language and there is a worldwide audience for our media, particularly the BBC, measured in the hundreds of millions. We also have a flourishing academic sector, with world-renowned schools of journalism, and the first ever UNESCO Chair in Media Freedom, Journalism Safety and the Issue of Impunity is held by Professor Jackie Harrison of Sheffield University’s Centre for Freedom of the Media. UK print and online media reaches a wide global audience, with a reputation for quality and strong investigative reporting. The wealth of media expertise and innovation in the UK not only strengthens our own media sector, but is actively supporting the development of a strong and independent media in many countries overseas.
4.2. In a world where the international order in which we have invested so much since 1945 is under threat, we believe that Britain’s role after we leave the EU should be to act as an invisible chain linking together the democracies of the world, those countries which share our values and support our belief in free trade, the rule of law and open societies. A free media is a key part of such societies, holding the powerful to account, helping to expose corruption and lack of integrity, and potentially serving as one of the best antidotes to disinformation.
4.3. Media freedom, as part of wider freedom of expression, is a key part of any functioning democracy: allowing people to discuss and debate issues freely; to challenge their governments; and to make informed decisions. The UK believes freedom of expression is both a human right in itself and an essential enabler for the full range of other human rights. It is through individuals exercising their rights to freedom of expression that attention can be drawn to violations of other human rights. We underline the importance of respect for the right to peaceful protest, freedom of speech and of the press, freedom of assembly and the rule of law.
4.4. The murder of journalist Jamal Khashoggi in Istanbul has brought the threat to these values into sharp focus and highlighted the challenge where the powerful feel they have impunity to act. After his disappearance, the Government made clear that Saudi Arabia must cooperate with Turkey and conduct a full and credible investigation. On 12 November the Foreign Secretary travelled to Saudi Arabia and raised the case of Jamal Khashoggi in meetings with King Salman, Crown Prince Mohammad Bin Salman and Foreign Minister Al Jubeir. During these meetings he conveyed the strong international condemnation of the murder, and the need for evidence that such an act could never happen again. Additionally, the Prime Minister also raised the murder of Jamal Khashoggi when she met the Crown Prince during the G20 summit. Our concerns about freedom of expression are well known by the Saudi authorities.
4.5. The FCO has for a number of years been supporting projects designed to promote and protect media freedom and wider freedom of expression worldwide, including projects focused on state building through strengthening the democratic system, using a range of funds including The Good Governance Fund, The Global Britain Fund, and the Cross-Whitehall Conflict Security and Stability Fund (CSSF). Through the Global Britain Fund £294,000 has been allocated for work on media freedom and £490,000 has been allocated for work on freedom of expression in 2018/19.
4.6. As an example, our Embassy in Mexico is working with the Federal Protection Mechanism and State level protection units for Human Rights Defenders and Journalists to help them to develop prevention plans to address the threats faced by journalists at risk. In Iraq, the Global Britain Fund has trained 300 journalists, social media activists, media professionals and social media activists, including specific sessions for female journalists. The project, run by a local NGO EJAB (Positive for Youth and Media Development) will ultimately bring together all of the participants with relevant members of the Iraqi government.
4.7. Investigative journalism in Peru is playing a central role in exposing high-level corruption in business, the judiciary and political circles. In an environment where state relationships with the media traditionally keep a lid on unethical or illegal practice, bands of investigative reporters are shining on light on corruption, galvanising public action and challenging a culture of impunity – all of which has direct benefit to Peruvian prosperity and, ultimately, to the UK. With this in mind, the British Embassy in Lima is utilising a dual track approach to tackling corruption and supporting media freedom to build a sustainable campaign of activity. They plan to run programmes of training for journalists, harnessing UK expertise; support the development of a local code of practice; work to embed media freedom as a theme for a major UK-originated arts and culture festival; and provide a platform – including through public recognition – for investigative reporters to share experience.
4.8. The British Embassy in Manila is leading the way in promoting media freedom in the country. The Embassy has a history of supporting organisations working to counter threats to freedom of opinion and expression posed by misinformation, propaganda, disinformation, trolling and online violence. In the coming year they plan to increase activity working with business, media organisations and civil society in the Philippines to promote media freedom and media literacy through a series of Embassy sponsored events and training sessions.
4.9. The British Embassy in Beijing continues to be active in supporting media freedom in China and the wider Asia Pacific region. This has included hosting a Foreign Correspondents’ Club of China Roundtable on the issue. Additionally, FCO officials attempted to attend the trial of campaigner, Huang Qi. Despite access being restricted, officials stayed to show support. After his trial, the Embassy issued a statement on their social media channels
4.10. We also use our political capital to lobby and raise concerns in individual cases. As an example, following the recent arrest of Maria Ressa of Rappler in the Philippines we were able to shine a spotlight on her case. Both the Foreign Secretary and our Ambassador publicly expressed concern about her situation and the Ambassador also raised her case privately with the Acting Foreign Secretary and the Presidential Executive Secretary. Going forward we will continue to be active on Ressa’s case, this includes taking actions such as attending her court hearings and inviting her to the international media freedom conference we will be hosting in London in July.
4.11. In response to reports about BBC Persian staff in Iran being harassed and subjected to asset freezes, the Foreign Secretary raised his concerns during his visit to Tehran on 9 and 10 December 2018. Officials at the British embassy in Tehran have also twice raised concerns with leading figures in the Iranian Government. In December 2018, we once again co-sponsored the UN General Assembly’s resolution on the human rights situation in Iran, specifically highlighting the poor record on freedom of expression.
4.12. We are concerned about the situation in Turkey. We have long encouraged Turkey to work towards the full protection of fundamental rights, particularly in the area of freedom of expression. We will continue to engage the Turkish government on these issues and to urge respect for freedom of media, which is essential to the long-term health of Turkish democracy. The British Embassy in Ankara provides project support to a number of Turkish civil society organisations working in the area of fundamental freedoms. Currently in the financial year 2018/19 we are funding a range of projects covering issues from LGBTI rights, freedom of expression, minority rights and women’s rights.
Global Initiatives
4.13. We have also been using the Chevening Scholarships programme to support young journalists. In March, Chevening will welcome 17 fellows to the South Asia Journalism Fellowship. This bespoke fellowship, ‘Good Governance in a Changing World: the Media, Politics and Society,’ is delivered at the University of Westminster.
4.14. Chevening welcomed nearly 100 journalism and media scholars to the UK in 2018. These scholars will join an influential alumni network of journalist and media activists. Chevening also partners with the BBC World Service to offer 15 scholars each year a 4 month internship. The 2019 internship will start in September and scholars will be placed in one of a number of areas of World Service Group activity, including: BBC Media Action, BBC Monitoring or Solutions-Focused Journalism.
4.15. The FCO has also been working with the British Council to support media freedom by drawing on its range of programmes aimed at young people. For example, Future News Worldwide is a partnership programme between the British Council and some of the world's leading media organisations which aims to identify, train and connect the next generation of global journalists. Partners include Google News Initiative, Reuters, The Herald, Facebook, and STV. Additionally, the British Council is piloting a new programme in wider Europe which will adapt and develop their current digital media literacy programme to make it accessible online and also through their Schools teacher training programmes and Teaching Centres, (e.g. Connecting Classrooms). This will enable them to reach a potential audience of 20,000 school leaders, 100,000 teachers, 10m students, and up to 50m young people digitally.
4.16. The Department for International Development (DFID) has been a significant media development funder over the last decade. There has been extensive engagement with the media across DFID countries and regions. Media organisations have been mainly engaged within governance programming, used to communicate with large populations and support improved accountability. Further DFID support to media freedom is currently in development. This includes a new Building Open Societies UK Aid Connect programme which will address shrinking civic space; pressure on independent media and civil society; and data, transparency and accountability failures. A further Aid Connect programme is currently in development. DFID is also considering how further programming might support the development of independent, quality, public interest media in developing countries.
4.17. The FCO strongly supports the BBC’s mission to bring high quality and impartial news to global audiences, including where free speech is limited. The World Service brings the UK to the world, providing a link to the UK for people and communities who wouldn’t otherwise have this opportunity.
4.18. The government is investing £291m during 2016-March 2020 to support the BBC World Service through the World 2020 Programme. The new language services are distinctive and tailored to the audiences needs. The World 2020 Programme expands the BBC World Service’s digital, TV and audio offering. 12 new language services have been launched since 2017 and are Yoruba, Pidgin, Igbo (Nigeria) Amharic, Oromo (Ethiopia), Tigrinya (Eritrea) Marathi, Gujarati, Punjabi, Telugu (India), Korean and Serbian. The FCO’s investment has also resulted in enhanced TV services for Africa; more regionalised content for BBC Arabic; enhanced services for Russian speakers in Russia and surrounding countries and the enhancement of World Service English. The BBC opened new and expanded bureaux in locations such as Dhaka, Mumbai, Nairobi, Delhi, Seoul, Bangkok, Yangon, Tunis, Cairo, Beirut and Belgrade. This is one of the largest expansions of the BBC World Service in over 70 years.
Work within International Organisations
4.19. On the international stage, we aim to embed the issue of media freedom in the agendas of multilateral organisations, including the UN, and to broaden the debate within regional organisations such as the African Union. We have been working more generally to promote greater understanding of and adherence to international agreements and commitments. As an example, at the recent EU-League of Arab States Summit (24-25 February) we made sure that the draft communique contained wording that “renewed our commitment to effective multilateralism and to an international system based on international law” and “reiterated our full commitment to the universal 2030 Agenda for Sustainable Development”, as well as referring to “the upholding of all aspects of international human rights law.”
4.20. The normative framework on media freedom is well established at the UN, with clear provisions on freedom of expression in the core human rights treaties and multiple resolutions and international days on the safety of journalists. The UK has long defended and pushed for language on freedom of expression and media at the UN, deflecting attempts by Russia, China and others to impose unacceptable limitations.
4.21. The UN plan of action on the safety of journalists and the issue of impunity was agreed in 2012 and updated in 2017 following consultations on progress with stakeholders. Its delivery is led by UNESCO in cooperation with OHCHR and the UN Secretariat in New York. A 2017 progress report set out a range of positive steps taken in implementing the plan of action since its inception, but acknowledged there was still work to be done, including in galvanising the entire UN system on the issue.
4.22. Existing human rights frameworks and instruments such as the UN Convention on Journalist Protection provide, in theory, for sufficient protection for all. The problem is one of implementation rather than one of standards. With this in mind, the UK is considering how best to add value and reinforce existing mechanisms, including those of the UN and other international organisations. There is a proposal for a new UN Special Representative on Media Freedom, though it is still under consideration whether, given limited resources in the UN and the well-established frameworks, this is desirable or necessary.
4.23. At the UN General Assembly a resolution on media freedom runs every two years in the Third Committee (Human Rights) of the General Assembly (3C). The UK is traditionally a co-sponsor, though the resolution is led by others. It highlights the need for protection of journalists and end to impunity. There are also multiple references to freedom of expression and the media in other resolutions, for example a new US-led resolution on freedom of assembly at 3C in 2018.
4.24. At the UN Security Council, France and Greece led Resolution 1738 (2006) which condemned attacks against journalists in conflict situations and recognised the importance of protecting journalists in armed conflict. Resolution 2222 (2015) rehearses many of the same themes as 1738 and calls on Member States to ensure accountability for crimes committed against journalists in conflict situations and strengthens the reporting framework by requiring updates in the annual report on Protection of Civilians and in Peacekeeping and Special Political Mission reporting. Resolution 2222 was drafted by Lithuania and adopted at the beginning of an Open Debate during their Presidency of the Security Council.
4.25. At the United Nations Human Rights Council the UK continues to use its influence to support media freedom, the safety of journalists and freedom of expression. We regularly use the United Nations universal periodic review (UPR) to raise media freedom concerns. For example, in the review (November 2018) relating to Mexico, a country that has been named by Reporters Without Borders as among the world’s five most deadly countries not at war, we raised concerns about limitations to freedom of expression and violence against journalists and human rights defenders. The UK engaged actively with civil society organisations, other countries and the Mexican government to formulate comprehensive recommendations and questions. We also organised a roundtable with specialised civil society organisations on freedom of expression and Humberto Padgett (a prominent threatened journalist) to offer an assessment and useful tips to other countries that were due to participate in Mexico’s UPR. This enabled a number of countries to make recommendations related to media freedom in the UPR. We will continue to identify opportunities to use the UPR process to highlight media freedom concerns through advanced questions, country recommendations and country statements.
4.26. The UK has set out its intention to join the Group of Friends (GoF) on the Safety of Journalists in New York, chaired by France, Greece and Lithuania. Other members are: Argentina, Austria, Brazil, Bulgaria, Cape Verde, Chile, Costa Rica, Jordan, Latvia, Lebanon, Republic of Korea, Sweden, Switzerland, Tunisia, United States and Uruguay. The GoF’s first objective is to drive implementation of relevant resolutions, and ensure accountability. They do not do advocacy on individual cases, or at least have not to date, as they want the UN to take the lead on that, but run events several times a year to raise awareness on the issue. They work closely with Reporters Without Borders (RSF) and Committee to Protect Journalists (CPJ).
4.27. The Council of Europe (CoE) launched its Platform to promote the protection of journalism and the safety of journalists in 2015 with strong support from the UK. The Platform is run by key NGOs. We have evidenced our support for the Platform over time by our quick and thorough responses to alerts about threats to media freedom in the UK. Our aim in so doing is to encourage other member states to reply in a timely manner.
4.28. UK support of the CoE Commissioner for Human Rights’ reports, which often highlight where member States are falling short of their media freedom obligations, is consistent with this position. Where member States such as the Russian Federation and Turkey have sought the dismantling of the Platform, the UK has worked to assure its preservation and continued promotion of media freedom.
4.29. The UK Delegation to the CoE regularly raises cases of detained media representatives in the Committee of Ministers, the governing intergovernmental body of the Council of Europe, to place or maintain pressure on culpable governments.
4.30. The Council’s Steering Committee on Media and Information Society (CDMSI), which involves the active participation of a large number of NGOs, is a forum for sharing best practice and guidance, among several strands of work, in the area of media freedom for the 47 member States of the Organisation. The work of the CDMSI is actively supported by UK expert participation (DCMS lead) at all levels of its work and by the UK Delegation’s defence, support and dissemination of its work.
4.31. We are also active on media freedom in the Organisation for Security and Co-operation in Europe (OSCE). In 2017 and 2018, the UK Ambassador to the OSCE chaired the OSCE’s Human Dimension Committee (HDC), the main human rights body of the OSCE. As well as organising monthly committee meetings on thematic human rights issues, the UK chaired the negotiations on potential new Ministerial Decisions for both years, working closely with the Austrian (2017) and Italian (2018) Chairmanships. This culminated in the adoption by consensus of all 57 OSCE participating States of the Ministerial Decision on Safety of Journalists at the Milan Ministerial Council on 8 December 2018. The Decision was the first dedicated media freedom commitment in the OSCE, and the first specific human rights decision since 2014. The OSCE Representative on Freedom of the Media (RFOM) described it as a “landmark decision” and “a major step forward”. Adoption of this politically-binding commitment demonstrates the link between the safety of journalists/media freedom and security.
4.32. In addition to securing consensus on the Decision, the UK organised meetings of the HDC on media freedom during our chairmanships. In March 2017, the Committee discussed issues around freedom of expression, and the right to seek, receive and impart information in a climate of distorted and false information. In March 2018, the Committee discussed the role of self-regulation in ensuring media freedom. Both meetings included speakers from civil society and from the RFOM.
4.33. In 2018, the UK was one of the founder members of the Safety of Journalists Group of Friends at the OSCE and has been instrumental in organising events and discussions on issues around journalists’ safety, as well as in speaking at OSCE events.
4.34. The UK Delegation has worked with EU and other partners to raise concerns in the OSCE Permanent Council on media freedom issues, ensuring strong EU statements on, for example, attacks on journalists or threats to media freedom.
4.35. From late 2016 until August 2018, the UK seconded an independent media freedom expert to the office of the RFOM. The secondee provided legal advice and policy guidance on media freedom issues in Europe.
5.1. Through the campaign, the UK will aim to send a strong signal to Governments and others who abuse media freedom.
5.2. The Campaign will press for legislation to protect, not constrain, media freedom, a challenge we have in the UK as much as in other countries. We will aim for commitments to adapt negative legislation, with enhanced mechanisms for addressing cases of journalists in distress.
5.3. We will also work to boost existing mechanisms such as the effective tools developed by the Council of Europe and OSCE, replicating them in regions such as the Americas and Africa. We need multilateral bodies to apply existing levers more effectively at country level. We plan to give increased support to the work of Special Representatives and other mechanisms, as well as exploring options around the Commonwealth Principles of Freedom of Expression and the Role of the Media in Good Governance in the Commonwealth. We will use other multilateral meetings, such as the G7 Foreign Ministers’ meeting in April, provide opportunities for coordination and amplification.
5.4. In the area of development, the emphasis in the Sustainable Development Goals, (SDG16.10 in particular) on ensuring public access to information and protection of fundamental freedoms, including numbers of cases affecting individual journalists, is an important international lever that we can use. At the High Level Forum on the Sustainable Development Goals in July we will aim for improved use of and reporting against SDG16 to advance media freedom.
5.5. To change the political calculations made by those abusing media freedom, we will aim to create better deterrence and effective legal mechanisms, applying appropriate legal means to hold people to account, including, if possible, sanctions where relevant. We will agree with partners the most effective means for identifying and raising cases so that unresolved cases are addressed and journalists released from detention. Finally, we will press for increased action when media outlets are closed due to state pressure, both multilaterally and bilaterally.
5.6. Through the Campaign the UK aims to deliver impact across the world: in countries with an egregious record, those where there is a window of opportunity to make improvements and those at risk of deterioration. A series of mini-campaigns will pilot elements of this approach and reinforce messages. We will have a particular focus on female journalists who are too often targeted because of their gender.
5.7. We recognise that we cannot do this alone. For this reason we are also calling on governments, broadcasters, media outlets and civil society to join us in shining the spotlight on media freedom across the globe. Collectively, we need to be more vocal on raising cases of abuse and stressing the unacceptability of attacks on journalists.
5.8. The media itself has a key role to play in systematically raising awareness, which will lead to greater recognition of the benefits of a free media. The UK aims to kick-start national conversations on media freedom and, as part of this, we will be using World Press Freedom Day on 3 May to put on a series of events across the globe. This year World Press Freedom Day will take place in Addis Ababa and we will be partnering with Ethiopia, the African Union and UNESCO to promote the key messages of this year’s theme: “Media for Democracy - Journalism and Elections in Times of Disinformation”.
5.9. In July 2019 the Foreign Secretary will host an international conference in London, as a key element of the Campaign, where we will invite commitments to do more in this area. We will also be using other key moments throughout the year, such as the UN General Assembly Ministerial Week in September and the International Day to End Impunity Against Journalists in November to shine a spotlight on the issue.
5.10. The campaign is scheduled to run throughout 2019. Building on the initial impact of the campaign we aim for an increased level of engagement on this issue through an expanded team in our Human Rights Policy Unit and also in the form of stepped up activity at our posts across the world. We will also be aiming to secure the agreement of another like-minded country to host a follow on international conference in 2020. Only through a sustained campaign of action can we expect to reverse the worrying trend of recent years.
5.11. Parliamentarians play a key role in upholding media freedom. We welcome the Committee’s inquiry into this issue and their advice on how to make a success of the campaign so that it has tangible, lasting impact.
March 2019
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