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Assessment and Prospects for Improving the Management of Benin's State Aid to the Private Media

Blandine A. KONFO, Jean Euloge GBAGUIDI*

Department of Languages and Communication Sciences, University of Abomey-Calavi, Abomey-calavi, Benin

Abstract: In Benin as elsewhere, the Media has always played a major role in transmitting, explaining and commenting on news of major political, economic, social and cultural, national and international current events. However, the vast majority of media outlets in West Africa in general and Benin in particular are not profitable. Many organs survive on meagre state subsidies or through unsavoury practices. In this essay, we assessed the State's Support to the Beninese Media. The methodology used consisted in analysing the bibliography and carrying out interviews and surveys at the level of the institutions responsible for managing state support for the press. The results show that the allocation of this aid has not fundamentally benefited media outlets, let alone media professionals, who are struggling to develop. The Beninese Media is prey to the evils that are hindering its emergence and which unfortunately discourage the actors in the field from the professionalism they should show. The authorities are aware of this and this has led to the creation of the Media Development Support/Assistance Fund (FADEM), which effectiveness has yet to be demonstrated. It is therefore essential to rethink the ways in which Media is supported.

Keywords: private press, financing, operation, state aid/support

Received September 16, 2019; Revised October 20, 2019; Accepted November 14, 2019

Citation: Blandine A. KONFO, Jean Euloge GBAGUIDI, Assessment and Prospects for Improving the Management of Benin's State Aid to the Private Media. Journal of Linguistics and Literature, 4 (1). 30-39. January 2020. doi:10.12691/jll-4-1-3

1. Introduction

In the modern world, Media have an increasingly important place; the media are much more present in our daily lives. For almost a century, radio, then television and now the Internet have been added to the print media, which is even older [1].

In Benin, the democratic changes of the 1990s marked a spectacular turning point in the media landscape. In the mid-1990s, many newspapers disappeared before the print media experienced its second spring from 1997 onwards.

The search for means of survival in disregard of the ethics of the trade has led to a gradual shift in the profession. Unlike its beginnings, the press soon became more of a business than a matter of vocation. Faced with the nagging problem of employment, it has emerged as the biggest outlet for more than one [2].

The major problems that hinder the growth of the Beninese media are: government threats and pressure, self-censorship, poor quality of journalistic information, press legislation and, above all, the thorny problem of financing and survival that is at the root of all other problems [3]. Indeed, many media outlets are engaged in a real commodification of journalistic work.

This consists in using the media to ensure, not only the financing of the media, but also personal enrichment of certain journalists. Current practices can be summarized as a "corruption complex", which affects both public and private media [4]. It is these difficulties that have led to reflections leading to the adoption of a law on state Aid to the press in many countries.

In the literature, very few studies have focused on the evaluation of aid in different countries [5,6,7,8]. State aid to the press means "any economic or financial support organized by the public authorities and intended for companies, in order to facilitate the management of the media, to ensure their survival if necessary, in the name of the pluralism of and communication activities [8]. It have several aims: "reduction of the expenses related to the operation of the enterprises (tax reductions or exemptions, reduction of various tariffs), partly replacing the failing market by granting subsidies from public funds; participation in the capital of certain companies (as well as in the public service media); financing related media activities (cable, satellite); taking over certain operating expenses of media companies; organization of certain financial circuits that migrate funds from one medium to another; etc. [9].

This study is a contribution to the enrichment of the literature relating to the financing of the press in the world in general and in Africa in particular. We proposed to make an assessment of the state aid management mechanism to the private press in Benin to identify the real issues and effects on the development of the media sector.

The objective of this study is to evaluate the mechanism of state aid to the private media in Benin with a view to propose to Benin a better mechanism for managing state aid to this category of media.

2. Data and Methods

In order to achieve the objectives set, we conducted a documentary research and interviews with the authorities of the High Authority for Audiovisual and Communication (HAAC) as well as influential personalities in the audiovisual world. Thus, scientific publications (articles, memoirs and books) on the subject were read. We also had an interview with advisors at HAAC and with the president of the Media Development Support Fund (FADEM).

The information sought related to the notion of state Aid, its principles, the mechanism for implementing state Aid to the private media in Benin (selection criteria, methods for calculating the amount allocated, etc.). This study took into account the figures related to the financing of media outlets over 15 years (from 1997 to 2012).

Primary data used were taken from the exploitation of the general report on the management of State aid to the private press in Benin published by the HAAC in targeted period.

However, data from the management of the years 1998 and 2009 to 2011 were not taken into account in this study for reasons of poor archiving.

3. Results

3.1. Management Mode and Selection Criteria

Since its creation, State Aid to the private media has been managed by a commission on which representatives of the HAAC, media professionals and the government sit, in accordance with Decision No. 09-071/HAAC of 15 December 2009 on the establishment, powers and functioning of the commission responsible for studying the terms and conditions for implementing State Aid to the private media in Benin. This commission is made up of fourteen (14) persons containing five (05) representatives from the High Authority for Audiovisual and Communication (HAAC), two (02) representatives from the National Council for the Press and Audiovisual Employers of Benin (CNPA-Benin), three (03) representatives from the Union of Media Professionals of Benin (UPMB), one (01) representative from the Media Ethics Commission (ODEM), one (01) representative from the Media House, one (01) representative from the Ministry in charge of Communication and one (01) representative from the Ministry of Finance. The commission, headed by a board of five (05) members, is in charge of studying the terms and conditions for implementing the state Aid to the private media and is the backbone of the Aid management. It convenes in ordinary and extraordinary sessions, in accordance with its rules of procedure. It deliberates on all matters relating to the management of the Aid, in particular its distribution.

The management of the State Aid to the private media has long been entrusted to the High Authority for Audiovisual and Communication (HAAC). Under Article 6, 12th indent of Organic Law No. 92-021 of 21 August 1992, the High Authority for Audiovisual and Communication (HAAC) "guarantees the conditions of State support for the public and private press". On the basis of this legal provision, it assumed since 1997, at the request of professional media associations, the supervisory role and the management of the three hundred million (300,000,000,000.00) CFA francs that the Beninese State has decided to grant each year to the private press as State Aid. This Aid increased by fifty million (50,000,000.00) CFA francs from the 2009 State Aid, increasing the Funds from 300,000,000 to 350,000,000 CFA francs.

The management is optimized by taking into account the distribution formula proposed by the Media Professionals Association, with however, some modifications and readjustments at the level of certain headings.

There are several types of state Aid/Support for media outlets. These are mainly: support for capacity building for professionals and media organizers, institutional support, support for projects common to the profession, support for the technical committee of the press card, support for the functioning of professional organizations, direct assistance, special support and support for quality, production and management. In this paper/essay we shall focus on the last three types of support.

Media organisations eligible to apply for direct assistance must meet the following conditions: Specify the location (headquarters of the body, District, Block, Plot), a complete list of journalists working on the drafting of the body with photocopies of their press cards, pay slips for the last three months and a complete indication of their status (permanent, employee, trainee) with an indication of the date of their entry into service, specify the body's tax status, declare the staff to the Benin Social Security Office (OBSS), provide a copy of the agreement signed with the HAAC for private television and radio stations, provide a copy of the receipt of the previous year's fee for private radio and television stations, provide a copy of all publications for the print media and programme schedules for the audiovisual media.

Media organizations eligible to apply for special support must justify their existence:

• with a permanent and functional head office;

• for the written press: a permanent editorial committee which list of members must be produced;

• for radios and televisions: an editorial and technical service which nominal lists of staff must be produced.

Table 1 below presents the scoring grids for the selection of media outlets receiving special support and for quality, production and management support.

3.2. State Aid to the Press

The funds allocated to the various press organs are not paid in cash to the beneficiaries. Rather, they are used to pay for the acquisition of goods and/or services of their choice.

Table 1. Selection methods of the media benefiting from quality, production and management support

3.2.1. Direct Assistance to Media Organizations

From 1997 to 2004, the government included an annual amount of three hundred million CFA francs (300.000.000.000 CFAF) in the Finance Act as State Aid to the press. This funding is justified by the fact that Article 8 of the Beninese Constitution states: "The State (...) shall ensure its citizens equal access to health, education, culture, information, vocational training and employment". The right to information is thus analyzed as a right in the same way as education and health. These funds were used to organize training courses for journalists, to equip the press organs (ordering and purchasing printing paper, ordering and purchasing computer equipment (computer, printer, camera...), to pay bills and taxes (paying state taxes, settling arrears and bills (water, electricity, telephone, printing and newspaper assembly...) [11,12,13,14,15,16,17]. Table 2 and Table 3 present respectively the amounts allocated to the print and audiovisual press organs benefiting from direct assistance to the organs.

From the analysis of Table 2 and 3, it appears that from 1997 to 2004, the print media outlets that regularly received government assistance were: Les Échos du jour and Le Point au Quotidien (6 years out of 7), Le Matinal, Le Matin and La Dépêche du Soir (5 years out of 7), La Pyramide, L'oeil du peuple, Le Parroquet and La Gazette du Golfe (3 years out of 7). As for the audiovisual press, the most represented channels are: Radio La voix de la LAMA (6 years out of 7), Radio Golfe FM, Radio Non Sina (4 years out of 7). The other selected print or audiovisual media outlets received assistance for only 3, 2 or 1 year.

Table 2. Amount allocated to print media recipient of the Direct Aid to 2004-1997 of newspapers

Table 3. Amount allocated to audiovisual media outlets beneficiary of direct aid from 1997 to 2004 (newspapers)

3.2.2. Media Outlets Receiving Special Support from the State

This support is intended to provide some relief to a large number of media outlets in the form of one-off and transitional support in the form of the provision of small operating equipment, consumables or the payment of invoices from service providers pending the start of the central purchasing office for press inputs. This support is distributed on an equal basis, regardless of the sector of activity and the number of beneficiaries. Table 4 and Table 5 show respectively the print and audiovisual media outlets that received this funding from 2005 to 2012.

Fifteen (15) print media outlets received special support from the State in 2005 to the tune of approximately 665.000.00CFAF. This number increased to 19 in 2006 but was marked by a decrease in the amount (500.000.00FCFA). Between 2007 and 2012, the number of bodies receiving this support increased from 9 to 42 and the amount was 960.525.00CFAF in 2007; 1.144.735.00 CFAF in 2008 and 616.438.35 CFAF in 2012 (Table 4). As for the audiovisual press, the number has increased from 8 in 2005 to 36 in 2012. The financial support was 1.243.720.00 CFAF in 2005; 666.665.00 FCFA in 2006, 960.525.00 FCFA in 2007, 1.144.735.00 CFAF in 2008 and 616.438.35 FCFA in 2012 (Table 5).

3.2.3. Media Outlets Receiving Support for Quality, Production and Management

This category often takes up most of the aid. The objective is to help media owners to establish the foundations of real press companies and thus create better working conditions for media professionals. The aim is to support a selection of media organizations that have made remarkable efforts to comply with laws and regulations and improve their production and management. Table 6 and 7 show the print and audiovisual media outlets with this support from 2005 to 2012 respectively.

Table 4. Amounts allocated to print media recipients of special support to media outlets

Table 5. Amounts allocated to audio-visual media outlets recipients of special state support

Table 6. Amounts allocated to print media recipients of support for quality, production and management

Table 7. Amounts allocated to audio-visual media outlets beneficiaries of support for quality, production and management

The analysis of Table 6 and Table 7 shows that 4 print media outlets had received quality, production and management support for management in 2005. This figure then went from 9 to 2 and then from 3 to 12 respectively from 2006 and 2007 to 2008 and 2012. Audiovisual media outlets were 3, 12, 9, 9, 9 and 14 respectively in 2005, 2006, 2007, 2008 and 2012. The amounts had varied from 1.341.463.00 CFAF to 11.000.000.000 CFAF.

4. Discussion

4.1. Perception of State Aid to the Press by Beneficiaries

The main objective of this study is to propose a better mechanism for managing the State Aid to the private press in the Republic of Benin. To achieve this, we carried out documentary research and interviews with media actors in order to understand the real difficulties related to the management and granting of state aid to private media companies. It appears that almost all the actors interviewed are not satisfied with the way the Aid is managed. The main problems raised are: the late release and insufficiency of the allocated funds. According to Mr. Maurille CARLOS, Director Public Relation of Radio CAPP FM, "the State Aid to the private media is practically insignificant and cannot even pay the salary of staff for three (03) months" while other expenses such as electricity bills, maintenance of equipment; payment of various taxes must be met. He adds that "media owners do not rely on assistance to run the radio". For François AWOUDO, former president of the Media Ethic Commission (ODEM), "the objective set for the creation of the Aid has not been achieved. This Aid is not managed in the best interests of the beneficiaries. It is essential to make it an important tool for professionalizing media staff. In the long term, it must be a contribution to safeguarding and promoting press freedom.

It should be noted that the majority of the media actors deplore the amount of $300 million they find insignificant. The fund amount has been three hundred million dollars since its creation in 1997 and has never seen an increase despite the complaints of the media actors and the promise of the one billion cultural fund made by government from 2006-2016.

State Aid to the private press has not been released for two years," said Jérôme CARLOS, Beninese journalist and writer and promoter of Radio CAPP FM. He deplores the fact that there is no law requiring the High Authority for Audiovisual and Communication (HAAC) to release the aid at the appropriate time. Finally, Mr Cyrille Videkon KOSSOUHO, journalist and editor-in-chief of "la radio Tonnasse", also joined his friends and colleagues in denouncing the delay and the insufficiency of the funds.

In sum, journalists are calling for an annual subsidy to, they say, "stabilize our editorial staff and guarantee salaries", like in Senegal (CFAF 3.6 billion, €5.4 million), Burkina Faso (€1.1 billion, €1.6 million) or Ghana (€4 billion, €6.1 million) [18].

In addition, for the public authorities, the Aid is provided to improve the living and working conditions of journalists. However, for many media managers (Radio and Television Directors and Private Sector Publishing Directors), it [the Aid] is perceived as a repayment of the investment already made. This is why the majority make personal use of it. The money is reinvested in other sectors of activity considered more profitable. This perception means that even for equipment that is directly purchased by HAAC, some private press managers sell it to use the money from the sale on other investment sectors (Creation of schools, opening of hairdressing salons for their wives, etc.).

Like in Benin, investigations among journalists and press owners on this issue in Senegal revealed that no structural improvement of the media enterprise has been identified as the partial or total result of state support to the press. On the contrary, most media companies continue to operate in an informal way. In many of them, structures essential to the functioning of a company, such as accounting, are not taken into consideration, even in press groups that are considered serious. Nor has state support for the press led to improved governance of media companies. However, this should be the case per the spirit of the initiative [8].

4.2. Reactions from the Press Actors after Distribution of the Aid

It is common for disqualified media outlets or those that got a paltry amount to show dissatisfaction and sometimes very sharp criticisms of the members of the commission in charge of allocating the state aid funds to the press a day after its distribution to the beneficiaries.

According to an independent survey commissioned by HAAC in 2002, the various training courses organized in this context have had a definite impact on the competence of the various categories of information professionals, which has resulted in an improvement in media services [11]. The study also highlighted some notable shortcomings in the press: sensational headlines unrelated to newspaper content, insufficient investigation, prominence of political information and breaches of ethics in the journalistic profession. The results of this survey led to reforms that moved from direct support to the other two forms of support cited in this research.

Despite these reforms, several difficulties hinder the effective implementation of the various forms of the State Aid. Indeed, despite the many measures taken by the High Authority for Audiovisual and Communication (HAAC) to ensure the participation of beneficiaries in the management and to guarantee all the transparency and rigor required, the management of the State Aid to the private press has often been the subject of criticism and frustration. For some professionals and observers, these criticisms reflect divergent and antagonistic interests in the press. For others, it reflects a lack of understanding of the objectives of the State Aid to the private press, both at the level of press owners and other actors in the sector [15].

In addition, the way the Aid is managed is often questioned by the Union of the press professionals'. For example, the National Union of Private Press Professionals of Benin (Synaprop-Bénin) often sends open letters to the President of the High Authority for Audiovisual and Communication (HAAC). These professionals often condemn the non-objective decisions that the regulatory institution constantly takes for the management of the State Aid to Benin's private press [19]. For Synaprop-Benin, with regard to the management of the 2006 financial year, it is not known by what miracle the institution was able to distinguish in the Print Media section, the three bodies that received respectively 7.039.300.00 CFAF, 6.034.200.00 CFAF and 4.425.080.00 CFAF as worthy. The union notes that even these three bodies use journalists to whom they promise remuneration, their leaders do not pay any salaries to any of them and therefore do not understand how HAAC has managed to recognize the merit of their support, quality, production and management, since the body must have a determined number of salaried professionals registered with the national social security fund. The same union says it knows that these bodies provide invented documents in their application for assistance. These executives, even if they declare journalists, do not pay their contributions to the fund. It is on the eve of the submission of the files to the HAAC that they arrange to have documents available. And all professionals representing the press in the aid management committee are aware of this. For them, the aid management method eliminates bodies that regularly have salaried staff [19].

4.3. Impacts of the Aid on the Living and Working Conditions of Journalists and Prospects

From the information collected during this study, government support to the press had little impact on the working conditions of journalists in media companies. Journalists' working conditions continue to be difficult and even dangerous. On the other hand, the aid has not been a factor in encouraging the regularization and improvement of journalists' social conditions. On the contrary, many Beninese journalists are in a very precarious social situation.

To overcome these problems, several proposals are made, including creation of a fund. Thus, several studies have already been carried out as part of the implementation of this tool, which remains for the media community a panacea through which the press could regain its credibility. This work led to the creation of the Media Development Support Fund (FADEM), established by law 2015-07 of 20 March 2015. The members for this Fund's management committee have already been officially installed in their functions through a ceremony presided over by the President of the HAAC. The fund is held in a bank account managed by the committee, which must ensure that it is included in the State budget [20].

In terms of prospects, the idea of merging media outlets is worth considering in order to have viable businesses and to ensure that the amount of government support for the press is no longer dispersed to a multitude of small, unprofitable media outlets struggling to survive in the market through covert financing which traceability cannot be proven. With a view to substantial funding for the press, it would also be essential to consider other forms of funding. Indeed, in some countries, the press is allowed to accept external funding provided that it is brought to the attention of the public authorities. The objective is to ensure that the media do not receive financing from terrorism.

In addition, actions with equally important effects could also be considered, such as: tax rebate, training of journalists, best journalist award competition, creation of a fund for the best reporter or columnist, election and award of the best media outlets of the year.

5. Conclusion

This study highlighted the mechanisms for implementing of Benin's state aid to the private media, mainly: direct aid, special support and support for quality, production and management. The results revealed the selection criteria are based on the tax situation, the annual fees, and the relationship with the National Social Security Fund, the publications and program schedule, the respect of the deontology... The general trend shows that year after year, the number of media beneficiaries and the amounts allocated increase. Some media benefit continuously while others receive this support in a discontinuous manner. It should be noted that Benin's state aid to the private media has fundamentally not improved the effectiveness of the media, let alone the media professionals who run them. As a result, these media outlets are struggling to develop. The Beninese press is prey to the evils that are hindering its emergence and which unfortunately discourage the actors in the field from the professionalism they should show. The authorities seem to be aware of this and this has led to the creation of the Media Development Support Fund (FADEM), which is currently being implemented.

Acknowledgements

The authors warmly thank all the media professionals who allowed the effective realization of this study.

References

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