report on the jordanian legal - UNESCO

REPORTONTHEJORDANIANLEGALFRAMEWORKFORBROADCASTING

Author:CatherineSmadja-Froguel

May2016

ReportontheJordanianlegalframeworkforBroadcasting-CatherineSmadja-Froguel,May2016 2

TableofContents

Introduction

BackgroundandObjective...............................................................................................................5

Contents..........................................................................................................................................5

PartI:Jordanandinternationalstandardsonfreedomofexpressionandmediaregulation

1.1. TheJordanianlegalframework................................................................................................6

1.1.1.TheConstitution(1952)...................................................................................................6

1.1.2.TheNationalCharter(1991)............................................................................................7

1.2. Internationalagreementsandtreaties....................................................................................7

1.2.1.TheUniversalDeclarationofHumanRights....................................................................8

1.2.2.TheInternationalCovenantonCivilandPoliticalRights.................................................8

1.2.3.TheArabCharteronHumanRights.................................................................................9

1.2.4.TheConventionontheRightsoftheChild....................................................................10

1.2.5.TheEuro-MediterraneanAssociationAgreementbetweenJordanandtheEuropeanUnionanditsMemberStates..................................................................................................10

1.3. Theswitchoverfromanaloguetodigitaltelevision...............................................................10

PartII:Principlesandrulestocreateastrongandindependentmediasector.....................12

2.1. Essentialfreedomsandrespectofhumanrights...................................................................12

2.2. Theruleoflaw.......................................................................................................................12

2.3. Theimpactoftheruleoflawonmediaregulation...............................................................13

2.3.1.Clearandaccessiblelegalrules.....................................................................................13

2.3.2.Theneedforabroadcastingregulator..........................................................................13

2.4. Theconstitution,roleandresponsibilitiesofanindependentregulator..............................14

PartIII:Thelicensingregime...........................................................................................................16

3.1. Whyshouldbroadcastersbelicensed?..................................................................................16

3.2. Principlesforalicensingregimecompliantwithinternationalstandards&bestpractice....16


3.2.1.Legalbasis......................................................................................................................16

3.2.2.Clearandfairlicensingprocess.....................................................................................16

3.2.3.Differenttypesoflicensesfordifferentservices...........................................................17

3.3. Keylicenseconditions............................................................................................................18

3.3.1.Conditionsrelatedtothelicenseitself..........................................................................18

3.3.2.Conditionsrelatedtorelationshipwithregulatoryauthorities.....................................18

3.3.3.Technicalconditions......................................................................................................20

3.3.4.Conditionspertainingtothecontentofthelicensedservice.......................................20

3.3.5.Relationswithaudiences...............................................................................................23

3.3.6.Righttoreplyandrulesonfairness...............................................................................23

3.4. Licensingdigitalterrestrialtelevision....................................................................................23

3.5Definitionandpromotionofcommunitymedia......................................................................24

3.5.1ExampleofFrance..........................................................................................................24

3.5.2ExampleofUK................................................................................................................24

3.5.3.Whichdistributionplatform?........................................................................................26

3.5.4.HowcouldJordanpromotecommunity/associativeradio?..........................................26

3.5.5.Recommendations.........................................................................................................26

Appendix1:Exampleframeworksettingtheconditionsandgeneralrulesfortheawardandoperationofacommunityradioservice..............................................................................................28

Appendix2:Example–PrivateTelevision–GeneralistService..........................................................40

PartIV:AnalysisoftheLawoftheAudioandVisualMedia2015andproposedbylaws51

4.1. Entryinforceanddefinitions................................................................................................51

4.1.1.Keyprinciple..................................................................................................................51

4.1.2.Definitions.....................................................................................................................51

4.2. MediaCommission................................................................................................................52

4.2.1.Itsexistence..................................................................................................................52

4.2.2.CompositionoftheCommission..................................................................................52

4.2.3.Commissionsresources................................................................................................62

4.3. Thelicensingregime..............................................................................................................63

4.4. Recordedmaterials................................................................................................................69


4.5. Punishment/enforcement.....................................................................................................70

4.6. Finalprovisions......................................................................................................................70

PartV:EnsuringasuccessfuldigitalswitchoverinJordan....................................................71

5.1. WhyswitchoverinJordan.....................................................................................................71

5.2. Preparingforasuccessfulswitchover....................................................................................72

5.2.1.Creatingtherightincentivesforconsumers.................................................................72

5.2.2.Creatingtherightincentivesforbroadcasters..............................................................72

5.2.3.Appropriatespectrumplan...........................................................................................73

5.3. Acarefullymanagedtransition..............................................................................................73

5.3.1.Coordinationbetweenstakeholders.............................................................................73

5.3.2.Animplementationbody...............................................................................................73

5.3.3.Firstnecessarysteps......................................................................................................74

5.3.4.Licensingthedigitalmultiplexes....................................................................................74

5.4. Preparingforasuccessfulswitchover....................................................................................75

5.4.1.Creatingtherightincentivesforconsumers.................................................................75

5.4.2.Creatingtherightincentivesforbroadcasters..............................................................76


Introduction

BackgroundandObjective

ThisreporthasbeencommissionedbyUNESCOaspartoftheEU-fundedthree-yearprojectSupporttoMediainJordan,whichaimsatincreasedfreedom,independenceandprofessionalismfortheJordanianmediasector.ThisprojectwasdesignedtosupporttheGovernmentofJordan’sefforttoimplementthemediareformsexpressedintheMediaStrategyadoptedin2011.

Oneofthekeyobjectivesofthesereformsistoensurethatthelegalandregulatoryframeworkforbroadcastmediaisstrengthenedandreviewedsoastosupportthedevelopmentofanindependent,qualitybasedmediasectorservingtheentirepopulationthatisabletofostersocialcohesionanddemocraticdialogueinthesociety.

Contents

Thisreportwillreviewtheexistingbroadcastingsystemandproposerecommendationstoamenditsoastoensureitbalancesfreedomwithresponsibility,inlinewithinternationalstandards.Itiscomprisedoffiveparts:

• PartI:Jordanandinternationalstandardsonfreedomofexpressionandmediaregulation;

• PartII:Principlesandrulestofollowtocreateastrongandindependentmediasector;

• PartIII:Licensingregime

§ Appendix1:Exampleofaframeworkfortheawardandoperationofalicensedcommunityradioservice

§ Appendix2:Exampleofamodellicensetoprovideaprivategeneralisttelevisionservice

• PartIV:AnalysisofJordan’sLawoftheAudioandVisualMedia26of2015andoftheBylawsontheRadioandTVBroadcastingandRebroadcastingLicenseNo.(163)of2003(withproposedamendments);

• PartV:Principlesforasuccessfulswitchoverfromanaloguetodigitaltelevision.


PARTI:JordanandinternationalstandardsonfreedomofexpressionandmediaregulationAnumberoflegalinstruments,andfirstofall,theUniversalDeclarationofHumanRights(UDHR),andtheInternationalCovenantonCivilandPoliticalRights(ICCPR),aswellasregionaltreatiesinAsia,Europe,theAmericas,andAfricatakenaltogetherconstituteabodyofinternationallegalstandardsonfreedomofexpression.Alongwithcomparativebestpracticesintheareaofmediaregulation,theyprovideforminimumrulesandguaranteesStatesshouldrespecttopromotefreedomofexpressionandthedevelopmentoffreemedia.

Inaverytroubledregion,wherethecountryisonerareareaofstability,Jordanhasbeenonajourneytowardsparliamentarydemocracy.However,concernsthatincreasingdemocratizationandfreeexpressionwillbenefitgroupswhowouldbeliketodestabilizetheKingdomhaveledtoanumberofmeasuresrestrictingthefreedomandindependenceofthemediasector.Onthisjourney,Jordanhasinscribedfreedomofopinionandexpressioninitslegalframework.

1.1Jordanianlegalframework

1.1.1.TheConstitution(1952)

TheConstitutionofJordanisthefundamentallawoftheland,whereallactsofpublicinstitutions(legislative,executive,andjudicial)mustconformwithit.1

ItsArticle15providesforfreedomofopinionandexpressionaswellasfreedomofthepress.Itstates:

“TheStateshallguaranteefreedomofopinion.EveryJordanianshallbefreetoexpresshisopinionbyspeech,inwriting,orbymeansofphotographicrepresentationandotherformsofexpression,providedthatsuchdoesnotviolatethelaw.

Freedomofthepressandpublicationsshallbeensuredwithinthelimitsofthelaw.Intheeventofthedeclarationofmartiallaworastateofemergency,alimitedcensorshiponnewspapers,publications,booksandbroadcastsinmattersaffectingpublicsafetyandnationaldefencemaybeimposedbylaw.”1Inahistoricruling,theHigherCourtofJusticedeclaredtheunconstitutionalityofthePressandPublicationsLawno27of1997(ref.JournaloftheBarAssociation,Volume1&2,January-February1998,p.289).AlthoughtheConstitution(inArticle33)doesnotexplicitlydeterminethestatusoftreatiesandagreementsintheJordanianlegalsystem,andwhethertheyareequalofnationallaworoverriding,theJordanianCourtofCassationhasissuedseveralrulingsgrantinginternationaltreatiesahigherstatusovernationallawsinthecaseofaconflictbetweenthetwo.OneexampleistheCourtofCassation’sruling(25/4/2000incaseNo.2426/1999),whichreads:"Bilateralorinternationaltreatiesoragreementsarebindinganditisinahigherrankthanthedomesticlawincaseofcontradiction"..(CassationCourt's(Civil)rulingno.2426/1999.JournalofBarAssociation.7thand8thissue,JulyandAugustpp.1788-1795)TherearealsonumerousrulingsbytheCassationCourt;818/2003in9June2003,1477/2005inSeptember2005,4309/2003in22April2004and1824/1995in25October2005.(RepliesoftheGovernmentofJordantothelistofissues(CCPR/C/JOR/Q/4)tobetakenupinconnectionwiththeconsiderationofthefourthperiodicreportofJordan(CCPR/C/JOR/4)demo.thecodexdesign.com/...ccpr.../CCPR/.../Jordan/CCPR.C.JOR.Q.4.A...).InaveryrecentrulingtheAppealCourtofAmman8495/2016hasreiteratedthesamejudgment,see http://bit.ly/1OKlM1M.


TheConstitutionalsoprovidesforadditionalguaranteesforfreedomofspeechinParliament,andasaconsequence,freedomofthepresswhenreportingonthesematters.

Article87oftheConstitutionstatesthat:“EverySenatororDeputyshallhavecompletefreedomofspeechandexpressionofopinionwithinthelimitsoftheInternalRegulationsoftheSenateorChamberofDeputies,asthecasemaybe,andshallnotbeaccountableforanyvotecast,opinionexpressedorspeechmadetherebyduringmeetingsoftheHouse.Therefore,senatorsordeputiescannotbeliableforopinionsexpressedduringmeetingsoftheHouseorcommittees.Suchpermissibilityextendstoincludethemedia;hence,thereshallbenopenaltyforpublishingorbroadcastingsuchopinions.However,saidpermissibilitydoesnotincludedeliberationsconductedinsecretsessions,nordoesitincludetheHouse’sdocumentsandstatementsunlesslistedontherelevantagendaorreferredtothegovernment.”

1.1.2.TheNationalCharter(1991)

In1990,inconjunctionwiththestartofanewerainJordanmarkedbytheterminationofmartiallawandtheholdingofparliamentaryelections,HisMajestyKingHusseinappointeda60-memberroyalcommissiontodraftguidelinesfortheconductofpoliticalpartyactivityinJordan.Thecommission,whichincludedrepresentativesofallpoliticalgroupsinthecountry,producedawrittenconsensusintheformoftheNationalCharter.InJune1991,anationalconferenceof2,000leadingJordaniansadoptedtheCharter.

Althoughitwasnotabindinglaw,theNationalCharterdemonstratedJordan’scommitmenttofreedomofexpressionandfreedomofthepress.Inthesectionentitled“InformationandCommunication,”theNationalCharterstatesthatmassmedia“playanimportantroleinstrengtheningdemocraticprocesses.”Itcontinuesasfollows:

“Freedomofthoughtandexpressionandaccesstoinformationmustbeviewedasarightofeverycitizen,aswellasofthepressandothermassmedia.ItisarightenshrinedintheConstitutionandshouldundernocircumstancesbeabridgedorviolated.Thecirculationofnewsanddatamustberegardedasanindivisiblepartofthefreedomofthepressandinformation.Thestatemustguaranteefreeaccesstoinformationtotheextentthatitdoesnotjeopardizenationalsecurityorthenationalinterest.Itmustenactlegislationtoprotectjournalistsandotherinformationpersonnelinthefulfillmentoftheirdutiesandtoprovidethemwithmaterialandpsychologicalsecurity.”

1.2Internationalagreementsandtreaties

Inlinewiththefreedomofexpression(FOE)andfreedomofinformation(FOI)principlesenshrinedinitsConstitution,Jordanratifiedseverallegallybindinginternationaltreatiesprotectingandguaranteeingmediafreedoms.

AlthoughtheConstitution(inArticle33)doesnotexplicitlydeterminethestatusoftreatiesandagreementsintheJordanianlegalsystem,theJordanianCourtofCassationhasissuedseveralrulings


grantinginternationaltreatiesahigherstatusthanJordanianlawsandlegislationstothecontrary.2Inparticular,theCassationCourtsetaveryimportantprecedentonMay19,2010,bybasingontheUniversalDeclarationofHumanRightsandtheInternationalCovenantonCivilandPoliticalRightsadecisiontooverturnaverdictbytheAmmanCourtofFirstInstanceagainstacolumnistandaweeklynewspaper.3Itstatedthat:“WhatthejournalistdidiswithintheframeworkofinvestigativereportingasstipulatedbyArticle19oftheICCPRandisinthepublic’sinterestandalegaldutybasedonthefactthatthemediahasanimportantroleindisseminatingculture,scienceandnews…fromdifferentsourcesandinlinewithArticle6ofthePressandPublicationsLaw.”

ItisnowclearfromthisCassationCourtdecisionandotherfollowingrulingsthatinternationallawssupersededomesticlegislation;however,itwouldbedesirabletoreaffirm,inthepreambleorinthefirstarticlesofthelaw,theprinciplesofFOI/FOE,forinstancebyreferenceto,orreuseofthewordingin,Articles19and20oftheInternationalCovenantonCivilandPoliticalRights.5

1.2.1.TheUniversalDeclarationofHumanRights4

Article19oftheUniversalDeclarationofHumanRights(UDHR)statesthat:“Everyonehastherighttofreedomofopinionandexpression;thisrightincludesfreedomtoholdopinionswithoutinterferenceandtoseek,receiveandimpartinformationandideasthroughanymediaandregardlessoffrontiers.”AlthoughtheUDHRisnotalegallybindingdocument,ithasinfluencedinternationalcommonlaw,andhasinspiredmanycovenantsandotherlegallybindinghumanrightsinstruments,includingtheInternationalCovenantonCivilandPoliticalRights.

1.2.2.TheInternationalCovenantonCivilandPoliticalRights5

Asstatedabove,theInternationalCovenantonCivilandPoliticalRights(ICCPR)hasbeenintegratedintoJordaniannationallegislationbybeingpublishedintheOfficialGazettein2006,hencegainingtheforce

2OneexampleistheCourtofCassation’srulingincaseNo.38/91onMay18,1991,whichreads:“Itisjudiciallyagreeduponandestablishedthateffectivelocallawsareapplicableunlessthereisaprovisiontothecontraryinaninternationaltreatyoragreement.Thisruleisnotaffectedbyagivendomesticlawbeingprecedentto,ormorerecentthan,InternationalLaw.”Thebindingforceofinternationaltreatiesandagreementsonhumanrights/UNICEFpublications.3TheAmmanCourtofFirstInstancehadfoundMoussaDweikatandAlMarahweeklynewspaperguiltyofviolatingArticles5and7ofthePressandPublicationsLawandArticle15oftheContemptofCourtLawforpublishingastoryinNovember2008onaShariajudge’sdecisiontoallowacoupletodivorcebecausetheyhadbothbeenbreastfedbythesamewoman.IntheCassationCourtverdict,JudgeMohammadTarawnehsaid“journalistshavetherighttoreportthenews,asthisrightisguaranteedbytheConstitutionandrelevantlegislation,theUniversalDeclarationofHumanRightsandtheInternationalCovenantonCivilandPoliticalRights,afterensuringthecredibilityofthenews,itssocialnatureandobjectivityandthatitwaswritteningoodfaith.”TheverdictalsorecognizedthattheArticlewas“editedandstructuredasanewsstory,”includedsourcesandopinionsbyexpertsinSharia,“whichmeansthattheroleofthedefendantwaslimitedtoreportinginformationforthesakeofpublicinterest,asstipulatedbyArticle15oftheConstitution.4AdoptedbyUNGeneralAssemblyresolutionNo.217(d-3)onDecember1948.http://www.un.org/Overview/rights.html5AdoptedandpresentedforsigningandratificationbyUNGeneralAssemblyresolutionNo.2200onDecember161966.EnteredintoforceasofMarch23,1976.TheICCPRwaspublishedinJordan’sOfficialGazetteonJune15,2006(issueN.4764).


oflaw.6Wherenotalreadyprovidedforbyexistinglegislativeorothermeasures,eachstatepartytotheCovenantundertakestotakethenecessarysteps,inaccordancewithitsconstitutionalprocessesandwiththeprovisionsofthepresentCovenant,toadoptsuchlawsorothermeasuresasmaybenecessarytogiveeffecttotherightsrecognizedinthepresentCovenant.AccordingtoArticle2oftheCovenant,beingpartytothisCovenantshallbeconstruedasastate’sundertaking:

• ToadoptlegislationthatguaranteesrightsprovidedforinthisCovenant,andtoamendexistinglegislationsaccordingly;

• Toensurethatanypersonwhoserightsareviolatedbyanyoneactinginanofficialcapacityshallhaveaneffectiveremedyandthatviolatorsareprosecuted.

Article19oftheICCPRenshrinesfreedomofopinionandexpression,providingthat:

• Everyoneshallhavetherighttoholdopinionswithoutinterference.• Everyoneshallhavetherighttofreedomofexpression;thisrightshallincludefreedomtoseek,

receiveandimpartinformationandideasofallkinds,regardlessoffrontiers,eitherorally,inwritingorinprint,intheformofart,orthroughanyothermediaofhischoice.

• Theexerciseoftherightsprovidedforinparagraph2ofthisArticlecarrieswithitspecialdutiesandresponsibilities.Itmaythereforebesubjecttocertainrestrictions,buttheseshallonlybesuchasareprovidedbylawandarenecessary:

• Fortheprotectionofnationalsecurity,publicorder,publichealthormorals.• Forrespectoftherightsorreputationsofothers.

Moreover,Article20oftheCovenantimposestwofurtherrestrictionsonfreedomofexpression,prohibitionofpropagatingwarandincitementtohatred,statingthat:

• Anypropagandaforwarshallbeprohibitedbylaw;• Anyadvocacyofnational,racialorsectarianhatredthatconstitutesincitementto

discrimination,hostilityorviolenceshallbeprohibitedbylaw.

1.2.3.TheArabCharteronHumanRights

TheArabCharteronHumanRightswasapprovedatthe2004ArabSummitinTunis.JordanwasthefirstArabcountrytoratifythisCharter7,whichcameintoforcein2008,afterbeingratifiedbysevenArabcountries.

Article32oftheCharterstatesthat:

“ThepresentCharterguaranteestherighttoinformationandtofreedomofopinionandexpression,aswellastherighttoseek,receiveandimpartinformationandideasthroughanymedium,regardlessofgeographicalboundaries.

6However,JordandidnotratifytheICCPR’sFirstSupplementaryProtocol,whichallowsindividualstofilecomplaintsbeforetheUNHumanRightsCouncilagainstsignatorystatesforallegedviolationsoftherightsstipulatedintheCovenant.TheICCPRbindseverystatethatispartytheretotorespectrightsrecognizedintheCovenant,andtoenshrinesaidrightsforallindividualssubjecttoitsjurisdiction.7ThisConventionwaspublishedintheOfficialGazettetwice:inissueNo.4658onMay16,2004andinissueNo.4675onSeptember16,2004duetoerrorsinwording.


Suchrightsandfreedomsshallbeexercisedinconformitywiththefundamentalvaluesofsocietyandshallbesubjectonlytosuchlimitationsasarerequiredtoensurerespectfortherightsorreputationofothersortheprotectionofnationalsecurity,publicorderandpublichealthormorals.”

1.2.4.TheConventionontheRightsoftheChild

JordanisalsosignatorytotheConventionontheRightsoftheChild.Article13ofthisConventionstatesthat:

“Thechildshallhavetherighttofreedomofexpression;thisrightshallincludefreedomtoseek,receiveandimpartinformationandideasofallkinds,regardlessoffrontiers,eitherorally,inwritingorinprint,intheformofart,orthroughanyothermediaofthechild’schoice.

Theexerciseofthisrightmaybesubjecttocertainrestrictions,buttheseshallonlybesuchasareprovidedbylawandarenecessary:

• Forrespectoftherightsorreputationsofothers;or• Fortheprotectionofnationalsecurity,publicorder,publichealthormorals.”

1.2.5.TheEuro-MediterraneanAssociationAgreementbetweenJordanandtheEuropeanUnionanditsMemberStates8

Theagreement,whichenteredintoforcein2002,isabindingtreaty.Article2oftheAssociationAgreementstates:“RelationsbetweentheParties,aswellasalltheprovisionsoftheAgreementitself,shallbebasedonrespectofdemocraticprinciplesandfundamentalhumanrightsassetoutintheUniversalDeclarationonHumanRights,whichguidestheirinternalandinternationalpolicyandconstitutesanessentialelementofthisAgreement.”

1.3Theswitchoverfromanaloguetodigitaltelevision

Anoverviewoftheinternationalmediaframeworkwouldnotbecompletewithoutmentioningradiospectrumregulation.TheInternationalTelecommunicationsUnion,theworld’soldestinternationalagency,setJune2015asthedeadlinefor116AfricanandAsiancountries(includingallArabcountries)toswitchfromanaloguebroadcastingtodigital.DigitalbroadcastinginJordanprovidesanopportunityforcreatingnewtelevisionchannelsbothatanationalandataregionalorlocallevel.Inthiscontext,itisessentialthatJordancreatesalicensingregimewhichensuresthattheselectionofthesenewservicesistransparentandbasedonarobustselectionmechanismwhichensuresthosewhowillbestservetheinterestsofJordaniancitizensandofthecountryasawhole.

Recommendation:Aspectrumplanshouldbeestablished,makingsurethatthroughtheuseofthemostefficientplanninganddistributiontechnologies,anumberofnewservices,bothpublicandprivate,canbenefitfromaccesstoairwaves.Whenthisisdone,thelicensesshouldbeallocatedfollowingatransparentselectionprocess,whichwillbesetoutlaterinthereport.

Furtherrecommendationstoensureasuccessfulswitchoverfromanaloguetodigitaltelevisionwillbe8TheJordanianParliamentratifiedtheAssociationAgreementin1999.


providedinPartVofthisreport.

Takentogether,thefactsthattheKingdomhasenshrinedinitsstatuteallthekeyprinciplespertainingtofreedomofexpressionandinformationandthatthereisatechnicalrevolutionenablingthecreationofmorebroadcastservicesaccessibletothewholepopulationcreatesafantasticwindowofopportunitytofosterthedevelopmentofavibrantandindependentmediasector.


PartII:Principlesandrulestofollowtocreateastrongandindependentmediasector

2.1. Essentialfreedomsandrespectofhumanrights

Freedomofexpressionandinformationisnotinitselfsufficienttoensurethatmediacanhelpfosterthedemocraticprocess.Accesstoinformation,includingbothaccesstogovernmentdocumentsandrighttotravel,visitandreportinallplacesisessential.Otherrelevantfreedomsmustbesecuredtoo,suchaspeacefulassembly,voluntarymembershipoforganizations,therighttoelectrepresentativessothatthereisademocraticdebatethatthemediacanreportonandhelpdevelop.Whilstthisreportwillfocusonmediaregulation,itisimportanttobearinmindthatmediaregulationcannotbeseeninisolation.Inparticular,onemightarguethattherecanbenofreemediainacountrythatdoesnotabidebytheruleoflaw.

2.2 Theruleoflaw

TheSecretary-GeneraloftheUnitedNationsdefinestheruleoflawas9:“Aprincipleofgovernanceinwhichallpersons,institutionsandentities,publicandprivate,includingtheStateitself,areaccountabletolawsthatarepubliclypromulgated,equallyenforcedandindependentlyadjudicated,andwhichareconsistentwithinternationalhumanrightsnormsandstandards.Itrequires,aswell,measurestoensureadherencetotheprinciplesofsupremacyoflaw,equalitybeforethelaw,accountabilitytothelaw,fairnessintheapplicationofthelaw,separationofpowers,participationindecision-making,legalcertainty,avoidanceofarbitrarinessandproceduralandlegaltransparency.”

Anotherdefinitionoftheruleoflawcanbeusefulinourcontext,promotedbytheWorldJusticeProject10,whichisanon-profitorganizationcommittedtoadvancingtheruleoflawaroundtheworld,statesthattheruleoflawreferstoarules-basedsysteminwhichthefollowingfouruniversalprinciplesareupheld:

• Thegovernmentanditsofficialsandagentsareaccountableunderthelaw;• Thelawsareclear,publicized,stable,fair,andprotectfundamentalrights,includingthesecurity

ofpersonsandproperty;• Theprocessbywhichthelawsareenacted,administered,andenforcedisaccessible,fair,and

efficient;• Accesstojusticeisprovidedbycompetent,independent,andethicaladjudicators,attorneysor

representatives,andjudicialofficerswhoareofsufficientnumber,haveadequateresources,andreflectthemakeupofthecommunitiestheyserve.

ThepreambleoftheEuropeanConventionfortheProtectionofHumanRightsandFundamentalFreedomssays"thegovernmentsofEuropeancountrieswhicharelike-mindedandhaveacommonheritageofpoliticaltraditions,ideals,freedomandtheruleoflaw".9WhatistheRuleofLaw?,UnitedNationsRuleofLaw.10Seehttp://worldjusticeproject.org/what-rule-law.


2.3 Theimpactoftheruleoflawonmediaregulation

Consideringtheimpactoftheruleoflawonmediaregulation,wecaninfertwokeyprinciples.

2.3.1 ClearandAccessibleLegalRules

Followingtheruleoflaw,theonlyenforceablelegalrulesmustbethosethathavebeenadoptedpursuanttosystematicprocedures,areclearastotheirmeaning,andareaccessibletothepublic.Asfarasbroadcastinglawsareconcerned,thishasthreeconsequenceslistedbelow.

Thelawmustexplicitlyprotectfreedomofinformationandsetoutthelimitations.Asmadeveryclearininternationalstandards,freedomofinformationandexpressionisnotabsolute.Somerestrictionsarelegitimate,providedtheyarenecessary(a)fortheprotectionofnationalsecurity,publicorder,publichealthormoralsor(b)forrespectoftherightsorreputationsofothers.Theserestrictionsshouldbestrictlyproportionatetotheirobjectives,andinanycasebeveryclearlysetoutinlaws,and,asappropriate,indecreesorregulations.Enforcementoftheserestrictionsmustitselffollowanotherprincipleoftheruleoflawwhichisthat,“theprocessbywhichthelawsareenacted,administered,andenforcedisaccessible,fair,andefficient”.

Thelawmustsetthelicensingregimetoensurethatthescarcepublicresource(thespectrum)isusedforthebenefitofthewholepublic,includingpeoplewithminorityviewsorinterests,andthatavailablelicensesareallocatedinatransparentmanner,followingasetofcriteriadesignedtomaximizethediversityofbroadcasting,bothintermsofprogramcontentandmediaownership.Apureauctionprocesswouldbeentirelyinadequate.

Whilsttheprinciplesofthisselectionandthecriteriausedforselectionshouldbeinthelaw,andpreferablyestablishedfollowingapublicconsultation,theirapplicationandtheselectionitselfmustbelefttoanindependentauthority.Thiswillensureallrisks–orperceptionoftherisks–ofpoliticalinterferenceintheselectionoflicenseesarealleviated,andthattheselectionisdoneonthemeritsoftheapplications.

2.3.2 Theneedforabroadcastingregulator

Ensuringthefreedomofbroadcasters,althoughkeytotheguaranteeoffreedomofexpression,doesnotimplythatthebroadcastmediashouldbeleftunregulated.Awhollyunregulatedbroadcastsectorwouldinfactbedetrimentaltofreeexpression,sincetheradiospectrumusedforbroadcastingisalimitedresourceandtheavailablebandsmustbedistributedinarationalmannertoavoidinterference.

Beingascarceandpublicresourceregulatedbyinternationaltreaties,radiospectrummustbemanagedbytheState.Thefirstsentenceofthe InternationalTelecommunicationUnion(ITU)constitutionfullyrecognizes“thesovereignrightofeachStatetoregulateitstelecommunication”.Effectivespectrummanagementrequiresregulationatnational,regionalandgloballevels.Itistheirresponsibilityunderinternationalregulationstodetermineanationalspectrumplanwhereappropriatebandsareassignedtospecificuses(forinstance,defense,telecommunications,aeronautic,scientificandofcourse,


broadcasting).Thisprincipleiswithoutprejudiceofthefactthatsomespectrumbandscanbeleftunregulatedwhenthereisnoriskofdamaginginterference.

Onceacountryhasestablisheditsnationalspectrumplan,andhasdecidedwhichspectrumwillbereservedforbroadcasting,incompliancewithITUrules,itmustthenensurethatbroadcastingspectrumisusedinawaythatmaximizespublicbenefits.

Therearetwostepstoensurethishappens:

1. Adetailedspectrumplanmustdeterminehowbesttousethecapacityavailableforbroadcasting,acrossthecountries,ensuringthereisamixofnationalandregional/localservices.Inanycase,themovetodigitaltelevisionrequiresacompletereworkingofthisplan,andthiswillenablespectrumplannerstodeterminehowmanybroadcastinglicensescanbemadeavailable.

2. Thesecondstepisthentodecidewhoisgoingtobeallowedtousetheselicenses.ThiscannotbedonebytheStatebutmustbelefttoanindependentregulator,whowillbeempoweredtoselectapplicantsfollowingatransparentprocessandasetofrulesestablishedbylaw.

2.4 Theconstitution,roleandresponsibilitiesofanindependentregulator

Itmightbeusefultorefertoa(non-binding)recommendationofTheOrganizationforEconomicCooperationandDevelopment(OECD),whichsetsoutbestpracticeprinciplesonthegovernanceofregulators.The2012RecommendationoftheCouncilonRegulatoryPolicyandGovernance11recognizesthataneffectiveregulatorypolicyincludes“aconsistentpolicycoveringtheroleoffunctionsofregulatoryagenciesinordertoprovidegreaterconfidencethatregulatorydecisionsaremadeonanobjective,impartialandconsistentbasis,withoutconflictofinterest,biasorimproperinfluence.”Theyhavesetoutsevenprinciplesofgovernance,whichlegislatorsshouldkeepinmindwhenestablishingaregulator:

Roleclarity:aneffectiveregulatormusthaveawell-definedmission,clearobjectives,setoutbylaw,withclearandlinkedfunctionsandthemechanismstoco-ordinatewithotherrelevantbodiestoachievethedesiredregulatoryoutcomes.Thisclearmissionwillensurethatregulatorsonlyintervenewhennecessary,andthattheirinterventionisappropriateandproportionatetotheissuetheyaredealingwith.Preventingundueinfluenceandmaintainingtrust:Thisrequiresnotonlythatanindependentregulatorisestablishedbutalsothataseriesofmeasuresaretakentopreventundueinterference,inparticularfrompoliticaloreconomicinterests,andtoensuredecisionsmadearejustified,predictableandcanbesubjecttojudiciarychallenge.Proposalsshouldbepublishedandallthoseaffectedconsultedbeforedecisionsaretaken.Regulatorsshouldclearlyexplainhowandwhyfinaldecisionshavebeenreached.Decision-makingandgoverningbodystructureforindependentregulators:Membersofregulatoryauthoritiesshouldbeappointmentonmerits,onthebasisoftheirprofessionalskills,experienceinthefieldandreputation.Toensuretheirindependence,theyshouldnothaveanyconflictofinterests;their

11Seehttp://www.keepeek.com/Digital-Asset-Management/oecd/governance/the-governance-of-regulators_9789264209015-en#.


mandateshouldbeforafixedterm,preferablynon-renewable.Itisessentialthattheregulatorbenefitsfromadequateandsecuremeansandresources(financial,human,technical,monitoringandenforcementpowers),whichshouldnotbesubjecttopoliticalinterference.Accountabilityandtransparency:Becausetheyareindependent,regulatorsmustbeaccountable(a)tothegovernmentandparliament,(b)totheindustrytheyregulatedand(c)tothegeneralpublic.Thisdecisionmakingprocessmustbetransparent.Regulationsshouldbeclearandsimple.Decisionsshouldbepredictableinordertogivestabilityandcertaintytothosebeingregulated.Thereshouldbewell-publicized,accessible,fairandeffectivecomplaintsandappealsprocedures.Regulatorsandenforcersshouldestablishclearstandardsandcriteriaagainstwhichtheycanbejudged.Engagement:Itisessentialthatregulatorshaveagoodknowledgeoftheindustrytheyregulate,andhaveopenandtransparentwaysofconsultingtheirstakeholderssothattheydecisionsarewellinformed.Thisshouldbedoneinawaythatpreventsconflictsofinterests.Effectiveconsultationmusttakeplacebeforeproposalsaredeveloped,toensurethatstakeholders’viewsandexpertisearetakenintoaccount.Stakeholdersshouldbegivenatleast12weeks,andsufficientinformation,torespondtoconsultationdocuments.Funding:Fundingshouldbeadequatetoenabletheregulartofulfillitsduties.Fundingprocessshouldbeastransparentaspossible,notbelinkedtothemoneytheyperceivefromlicensees.Thebudgetshouldbeestablishedinatransparentmanner,involvingforinstance,amulti-partycommitteeofParliament.Itshouldbesecureandnotsubjectto“political”cutsduringthefundingperiod.Performanceevaluation:Asallpublicauthorities,theregulator’sperformanceshouldbeevaluatedonthebasisofkeyperformanceindicatorsagreedinadvanceforinstanceatthetimeofthebudgetarydiscussion.Regulationsshouldbesystematicallyreviewedtotestwhethertheyarestillnecessaryandeffective.Ifnot,theyshouldbemodifiedoreliminated.

Inadditionitisalsousefulforlegislatorstobearinmindthekeyprincipleswhichregulatorthemselvesshouldapplywhendevising,implementing,enforcingandreviewingregulations.


PartIII:Thelicensingregime

3.1 Whyshouldbroadcastersbelicensed?

Broadcastingisthemostpervasive,powerfulmeansofcommunicationintheworld.Itprovidesnews,educationandentertainmentandoccupiesseveralhoursoflifeformostindividuals.Itspotentialpowerandinfluenceonindividualsissuchthatgovernmentshavetriedtocontrolit,andeconomicintereststouseitsimpacttopromotetheirproductswithconsumers.Licenseshavebeenrequiredtoensuresomeformofcontroloverthecontentprovidedbyprivateoperators.Inaddition,sinceterrestrialbroadcastinguseaveryscarceandvaluablepublicresource-radiospectrum-itislegitimatetoensurethemostefficientusethroughregulation,usuallythoughthegrantingoflicenses.

Inademocraticcountry,thisregulationcanaimbothatpreventingsomeharmfulcontenttobedistributedtothepublic(negativeobligations)andatensuringsomecontentisproducedandmadeavailabletothepublic(positiveobligations),inparticularthisreferstoinformation,educativeandculturalcontent.Broadcastingcanbeusedtoinformandfosterdemocraticdebate,protectandpromotenationalculture,informandeducatecitizens,developaneconomicsector,andstrengthennationalcohesion.Ofcourseitisalsotheretoprovideentertainment.

Thesepositiveobligations,butalsotoalesserextentnegativeones,arenotallabsolute,andtheycanvarydependingoncountries.Thismeansthereisnouniquemodel,butafewessentialprinciples,andanumberofrulesthatcanbemodulatedaccordingtothesituationofeachcountry.

3.2 Essentialprinciplestosetupalicensingregimecompliantwithinternationalstandardsandbestpractice

3.2.1 Legalbasis

Sincethelicensingsystemisaninfringementonfreedomofinformationandexpression,itisessential(seePartIICabove)thatthebasicconditionsandcriteriagoverningthegrantingandrenewalofbroadcastinglicensesshouldbeclearlydefinedinthelaw.Anymoredetailedregulationsorcodesgoverningthebroadcastinglicensingprocedureorthestandardstoapplyshouldbedraftedafterconsultationwiththestakeholders,writteninaclearandprecisemanner.Theyshouldbepublishedandappliedinanopen,transparentandimpartialmanner,byanindependentregulator.

Decisionsmadebytheregulatorshouldbeabletobeappealedtoacourtoflaw.

3.2.2 Clearandfairlicensingprocess

Theregulatorshouldpublishitsintentionofawardinglicenses,theinformationneededfromtheapplicants,amodeloftheapplicationitexpectstoreceive,theselectionprocessitwillfollow,andthekeycriteriaitwillapplytoselectthewinners.

Itisgoodpracticetopublishadraftforconsultationaswellastheselectionprocessandamodelofthe


application.Theselectionshouldbefairandtransparent.Theregulatorshouldpublishalistofallapplicationsreceivedandthosethatareconsideredascompliant.Licenseapplicationsrejectedasnon-compliantwillbethosethatdonotprovidealltheinformationrequiredorwheretheapplicantisdisqualifiedunderthelaworbylaws.

Theregulatormaycallallcompliantapplicantsforahearingorasecond-stageselection.Thefinaldecisionshouldbemadeinfullindependencebythecommission.Itshouldbepublishedandthebiddersnotselectedwillreceivealettersettingoutwhytheyhavenotbeenchosen,whichshouldbepublishedwiththeirconsent.

3.2.3 Differenttypesoflicensesfordifferentservices

Itisstandardpracticetohaveseveraldifferenttypesoflicenses,accordingto(a)thedistributionmechanismand(b)thefundingmodel.Somepositiveobligations(e.g.dutytospendacertainpercentageoftheirbudgetonoriginalcontentcreatedinthecountry)willonlyapplytosometypesoflicenses,whilstnegativeobligations(interdictiontobroadcastharmfulmaterial)willapplytoall.

Licensesforservicesusingtheterrestrialspectrumwillhavethehighestpositiveobligations,and/orbesubjecttothehighestfees,astheyuseascarcepublicresource.Itispossibleforregulatorstoagreetowaivethefeesinexchangeformeetingacertainlevelofpublicserviceobligations,whenthisisdoneinatransparentmanner.Feesshouldbesetfollowingobjectivecriteria,suchasareaandpopulationcovered,and/orturnover.Publicservicebroadcastersandthirdtier(community)broadcasters,whichdonotmakeanyprofit,shouldbesubjecttosignificantlylowerfees(orevennofeesatallwhentheydonottakeanypaid-foradvertisingandsponsorship).

Amongstthisgrouptherecouldbesubcategories:

o Commercial/publicsector/third(not-forprofit)sectoro Local/regional/nationalo Generalist/specialist(forinstancethelicenseforaserviceprovidingonlymusicwill

notneedtocontainprovisionsonnewsaccuracy,etc.)• Satelliteandcablelicenseswilltypicallyhavelowerpositiveobligations.• Forservicesavailableontheinternet,thereisadifferencetomakebetween:

o Linearserviceswhicharetelevisionorradioservicesprovidingaudiovisualworkssimultaneouslytoanindefiniteaudience,whichhappentobedistributedovertheinternetwherealicense,withminimalobligations,couldberequired,astheyarebynaturebroadcastingservices,and;

o Websiteswhichcarryaudiovisualcontent,whichdonotneedalicensebutmayberequestedbylawtomakeavailableinformationonhowtocontactthemandhowtomakeacomplaintorcommentsregardingtheircontent.


Whenthesameserviceisrebroadcast/simulcastondifferentplatforms,onlyonelicenseshouldberequired,provideditistheonethatcarriesthemostobligations.Thereshouldnotbeadditionalfees.

3.3 Keylicenseconditions

Inordertobeeffectivealicenseshouldcontainanumberofessentialconditions.

3.3.1 Conditionsrelatedtothelicenseitself

Licenseterm:Thelicensemustsetoutthedatebywhichtheserviceshouldcommencebroadcasting,andforhowlongthelicensewillbeinforce.Sufficienttimeshouldbeallowedbetweentheawardandthecommencementofthelicenseinthecaseofanewservice.Licenserenewal:Ifthereisanautomaticpresumptionthatthelicensewillberenewedattheendoftheterm,thisshouldbesetoutinthelicense.Inordertoestablishasoundbusinessbaseforthesector,itisreasonabletoassumethatlicenseswillberenewed,subjecttosatisfactorycompliancewithlicenseconditionsandcontentrequirements.However,whilstthisisentirelyappropriateforsatellitelicenses,whenitcomestoterrestriallicenses,thequestionisworthadebate.Thereisabalancetobemadebetweentheneedtoenablenewentrantstocome,andmakethebestuseofthescarceresourceinthepublicinterestontheonehandandtheneedtoensureflourishingbusinessescancontinueontheotherhand.Inthatcase,forinstance,theregulatorcanconsult,sufficientlyinadvance,withthepublicstakeholderandthelicenseeitselfonappropriateamendmentstoensurethepublicinterestiswellserved,forinstancenewobligations,ordecreaseinotherobligationslessimportantinthelightofthemedialandscapeatthetimeofrenewal.

Thisconsultationmusthappensufficientlyearlybeforetheendofthecurrentlicensetermtoconsideranincumbent’spositionsothat,ifthelicenseistobere-advertised,sufficienttimeisavailabletorunafulllicenseapplicationprocess.Sixto12monthsisappropriate.Amendmentstolicenses:Licensesshouldalsosetoutthetermsuponwhichlicensesmaybeamended,makingthedistinctionbetweenadjustments,orthoserequiredbychangesinthelawandmoresubstantialoneswhichneedtobeproperlyconsultedonandshouldnotchangethesubstantialelementsofthelicense.

3.3.2 Conditionsrelatedtorelationshipwithregulatoryauthorities

Compliancewithlegalrequirements,includingsecondarylegislation:Broadcasterswillbeobligedtomeetcertaincontentstandardsintheiradvertisingandprogramming,asperthelaw,thatisbroadcastinglaw,butalsoanyotherrelevantlaws,inparticularonprivacy,defamation,protectionofconsumers,intellectualpropertyrights.Ofcourse,notallthedetailedstandardscanbesetbylaw.Theprinciplesshouldbeinthelaw(forinstancefairnessandaccuracyofthenews),moredetailedinformationcouldbe


setinthebylaws(forinstancethemechanismtoensurethisisenforced)oroncodesissuedbytheregulatororlicenses(forinstanceprohibitionofusingmodifiedimages).Thelicenseshouldthereforeprovidethatbroadcastersareobligedtomeetthetermsofthelawofanyrelevantsecondarylegislationandanycodesissuedbytheregulator,underthelawandbylaws.Thiscouldberepeatedwithmoreorlessdetailinthelicense.Licensefees:Feescanberequestedfortheapplicationprocess,theawardofanewlicenseandannualregulatorycosts.Allthesefeesshouldbesetattheappropriateleveltocoverthecostofreviewingapplications,preparingalicenseandimplementingregulation.Theprincipleofchargingfortheapplicationandawardfeeswillbesetinthelaw,buttheactuallevelshouldbedecidedbytheregulator.

Annualfeesshouldbeprovidedforinthelicense,withsufficientflexibilitytobeabletovarythefeesdependingonthecostsofregulation,inflation,etc.Theycanvaryfordifferenttypesoflicenses(usuallymoreexpensivefortelevisionthanradio).Theirnon-paymentshouldleadtotherevocationofthelicense.

These“administrative”feesarewithoutprejudiceofotherfeesandtaxeswhichlicensescouldberequestedtopay,whetherforaccesstothespectrum,orasataxoncorporatebenefits.

Asfarasspectrumaccess,itisacceptableandarguablypreferabletowaivethepaymentofaspectrumchargeinexchangeforcontentobligations,spendonproductioninthecountry,aswillbedeterminedinthelicense.Informationrequirement:Thelicenseshouldsetoutthedataandinformationtheregulatorwillreceiveonaregularbasis,orbeabletorequire,frombroadcasters,forinstancefinancialaccounts,informationonprogramcosts,contractswithproducers.Thelicensewillclarifywhatneedstobekeptconfidentialatthelicensee’srequestandwhatcanbepublished.

Thelicenseshouldalsosetwhichspecificdataneedstobeprovidedimmediately(forinstanceproposedsignificantchangesinownershipormanagementstructure,intereststakenwithothermediacompanies,changesofoffices,etc.).

Thelicenseshouldalsosetoutrulesastotherecording,keeping,andprovidingtotheregulatoratitsrequest,ofallprogramsbroadcastfor6months,underArticle21-CoftheAudiovisualLaw.Thisenablestheregulatortomeetitsmonitoringduties.Sanctions:Thelicenseshouldsetoutwhatsanctionstheregulatorcanapplyfornoncompliancewiththeconditions,inaccordancewiththelaw.Therangeofsanctionsincludesfines,suspension,andshorteningorrevokingalicense.Sanctionsmustbefair,proportionate,pronouncedafterdiscussionwiththelicenseeandconsiderationofremediesitcommitstoundertake.Thedecisionsettingoutasanctionmustclearlysetoutthereasonsforthesanctionandtheroutesofappeal.

Thelicensemustalsoenabletheregulatortorequirethelicenseetobroadcastanapologyorcorrection,


whenappropriate(forinstancewheninaccurateinformationhasbeenbroadcast).

3.3.3 Technicalconditions

Coverageandreceptionarea:Thesedifferaspeoplecanbewithinthetheoreticalcoveragebutnotbeabletoreceivetheservicebecausethebroadcasterdoesnotusesufficienttransmittersitesorpower.Thiswillincludethenumberandlocationofthetransmittersitesused,technicalcharacteristicssuchaspower,antennatypesanddirection,etc.Technicalspecifications:

• Forthetypeofbroadcasting(analogue/digital);• Forpictureandsoundquality(includinglevelofsoundduringadvertisingscreens).

3.3.4 Conditionspertainingtothecontentofthelicensedservice

Thelicenseshouldrequirethelicenseetoprovidetheserviceasdescribedeitherasintheadvertisementortender,oraspromisedintheapplication.Thereareanumberofminimalconditions,andfurtheroptionalconditions.

3.3.4.1.PositiveobligationsOneoftherolesoftheregulatoristoensurethattakentogetheralltheservicesbroadcastinthecountrycaterfortheinterestsofeveryoneandall.Dependingonthemedialandscape,theregulatormaydeterminethatthereisaspecificneedfor,forexample,televisionservicesprovidingcontentforchildren,religiousprograms,generalandlocalnews,orradiosofferingsportsinformation,orpromotingnewnationaltalents.Thiscouldbeprovidedbythepublicserviceornotinasufficientmanner.Evensoitcouldbeappropriatetohaveapluralityofoffersinthematter.

Whenadvertisinglicenses,theregulatorshouldsetoutwhicharethesespecificareasofinterest,andwhattheyexpectasaminimumoffer.Thesewillbekeycriteriafortheselectionofapplicants.Itcouldalsodeterminethatthereisaneedforservicescoveringspecificareasorcommunities,whicharenotwellservicedbynation-wideorgeneralistservices.Itwillreservefrequenciesforsuchservicesandcouldprovideforlowerlicenseobligationsandlowerfees,enablingsuchservicestobesustainable.

Whilstthereshouldbeminimumrequirementsinalllicensesforprogramsforpeoplewithhearingorsightimpairments,theregulatormayalsowanttopromotehigherquotas.

Thecommitmentstakenattheapplicationstageshouldbeclearlysetoutinthelicense,asakeyconditiontobemetthroughoutthecourseofthelicense.Nationalproductionquotas:Itisquiteusualtosetminimumquotasofprogramswhichmustbeproducedinthecountry,aswellas(dependingonthemarket)quotasmadebyindependentproducers.Quotasforcontentproducedinthecountryshouldbeatleastat15%invalueandintime,butcommitmentstocomplywithhigherquotascouldbeusedasaselectioncriterion.AsthismaynotbepossibleinJordanimmediately,itcouldbeagreedtogetgraduallytothisleveloverseveralyears,in


ordertoallowthemarkettodevelop.Quotasforcontentmadebyproducersindependentfromabroadcastingcompanymayalsobeset,firstatalowlevel,toencouragethedevelopmentofaproductionsectorworkingforJordanaswellasnonJordanianmarkets.

Culturalprograming:Therecouldalsobeminimumrequirementsforpromotingnationalandlocalculturalevents,newartistsorfolkloricmusic. Obligationsfornewstobeatleastaccurateoraccurateandimpartial:Standardsofgoodjournalismrequirenewstobeaccurate,andtheirsourcestobeverified.

Thereisachoicewhethertoacceptsomedegreeofeditorialorpoliticalbiasforsomelicenseesortorequestimpartialityfromall.Forinstance,somecountriesenablepoliticalpartiestoruntelevisionorradioservices;inthatcasetheyacceptpoliticallybiased,“partial”content,althoughtheyrequestaccuracyoftheinformationprovided.Inanycase,whenthisisallowed,viewersshouldbeclearlytoldthattheywatchingapoliticallybiasedservice,andnotanimpartialone.Therequirementsaroundaccuracyandclearlabelingofsuchcontentshouldalsoapplytopoliticaladvertisingorpoliticalprogramswhentheyareallowedbylaw.Inothercountries,politicalpartiesarenotallowedtoholdorcontroltelevisionorradiolicensesandcannotpayforadvertisingonTVandradio.

Inanycase,politicalpartiesshouldbeallowedtohaveaccesstoairtime,inconditionssetbythelawandundertheregulator’scontrol,duringelectoralcampaigns.

Rulespreventingdiscrimination:Inanycase,thereshouldberulesensuringthatprogramsdonotbroadcastmaterial-includingtheviewsofintervieweesorprogramguests-whichdiscriminateagainstpeople,forexampleonthegroundsofrace,nationality,religionorsex.

Specialrulesonreligiousbroadcastingorprograms;ifreligiousservicesareauthorized,orinanycaseforreligiousprogramscarriedonalicensedservice,specificrulesmaybeappliedtoensurethatduerespectisgiventoallreligiousbeliefs,andthatreligiousintoleranceisnotprovoked.Itshouldbethesamewherepoliticalpartiesareallowedtoprovideprograms. Promotionofnewtechnology:Whenthecountryismovingfromanaloguetodigitalitisalsopossibleforthelicenseestoberequestedtosupportthemove,frominstancebygivinginformationandadvicetotheiraudience.

3.3.4.2NegativeobligationsAdvertising,sponsorshipandproductplacement:Licensesmaycontainlimitsontheamountofadvertisingavailableonbroadcastservices,aswellasrulessettingoutthenumberandsizeofadvertisingbreakswithinprograms,andrulesontheschedulingofadvertising.Amaximumof12or15minutesperhourseemsappropriatetoensurethereissufficienttimeforprograms.

Thereshouldalsobeguidelinesandrulesregardingsponsorshipandproductplacement,aimingatensuringthataudiencecanalwaysknowthataprogramispromotingaproduct.Therecanbestricter


rulestoprotectchildren,forinstancepreventinghostsofchildren’sprogramstoappearonadvertisements,especiallywhentheyareaimedatchildren.Whenthelawprovidesthatadvertisingforsomeproductsorservices(tobacco,medicine,alcohol,politicalparties,gambling,etc.)isforbiddenontelevisionandradio,thisshouldbeclearlyrepeatedinthelicense.

Protectionofchildren:Childrenshouldbeprotectedfromcontentthatmaybeharmfultothem.Suchcontentshouldnotbemadeavailableattimestheyarelikelytobewatchingtelevision.Sincechildrenofdifferentageswillhavedifferentneeds,itisappropriatefortheregulatortoworkwiththestakeholdersandeducationbodiestoprovideguidanceononscreensymbolsthatcanareusedbyalllicenseesandbeeasilyrecognizedbychildrenandtheirparents.

3.3.4.3.OwnershipandPluralityOwnershiprules:Itisimportantforacountrytoensureithasknowledge,andsomeformofcontroloftheidentityofownersandshareholdersofcompaniesprovidingbroadcastservicesinitsterritory.Thisshouldnotbeusedtopreventfreeexpressionbutrathertoensurethatitisabletoenforcelawsandstandards.

Ownershiprulescouldcoverthefollowingelements:

• Needtobealegalentity;• Needfortheentitytobeincorporatedinthecountry;• Needforthelicenseholders,thedirectorsofthecompany,andkeymembersofstafftobe

citizensofthecountry;• Needforthelicenseholders,thedirectorsofthecompanyandkeymembersofstafftobe

freeofcriminalrecord(formostseriousoffenses,withsometimelimitations);• Prohibitionofhavingmorethanacertainpercentageofsharesheldbyforeignersor

percentageoftheincomefromforeignsources.

Pluralism:Pluralityofmediaownershipisimportanttosafeguarddiversityandensurethereisasufficientrangeofsourcesofnews,informationandopinion.Inordertopromoteandprotectpluralism,somerestrictionsareusuallyenforced:

• Restrictionsonpoliticalparties,syndicates,religiousorganizations,localauthoritiestoholdalicense(ruleswillbedifferentforterrestriallicenses,andsatellitelicenseswhicharenotlimitedinnumber);

• Restrictionsontheabilitytohold,control,orhavesignificantsharesinmorethanoneterrestriallicenseservice,orinmorethanoneserviceprovidinggeneralnewsandinformation;

• “Cross-media”restrictions:toensurethesameindividualsorcompaniesdonotcontroltoobigashareofthemeansofinformationinthecountryoraspecificarea;

• “Competition-enabling”restrictions,preventingforinstanceamajoradvertiser(forexample,supermarketchains)toholdaterrestriallicenseifthereisariskthattheywouldunfairlyrestrictitscompetitor’saccesstoadvertisingscreens(althoughrulesonadvertisingcouldalsopreventthisfromhappening);


• Verticalintegration,forinstanceifalicenseholdercontrolstheonlyormainproviderforterrestrialtransmissionservices,orasignificantshareoftheproductionmarket(againthiscouldalternativelyberemediedbyappropriateundertakingsintermsofaccesstothesemarkets).

3.3.5 Relationswithaudiences

Freetoairorsubscription/encryptedservice:Thissubstantivecharacteristicoftheserviceshouldbesetoutinthelicensewithnoabilitytomovefromonetoanotherwithoutanewlicenseapplicationprocess.

Complaints:Thelicenseshouldcontainconditionsastohowcommentsandcomplaintsfromthepublicwillbedealtwith.Areportonthemattershouldbesentonanannualbasistotheregulatorsothattheregulatorcanadvisethelicenseeaswellasalllicenseesofcommonissuesandbestpractice.

TheseconditionsshouldbesetincompliancewithanycodeandrecommendationsmadebytheComplaintsCommitteeoftheMediaCommissionestablishedunderArticle4-JoftheAudiovisuallaw.

3.3.6 Righttoreplyandrulesonfairness

Thelicensewillsetouttheconditionsinwhichthelicenseholderwillrespondtoanypersonororganizationthatclaimstohavebeentreatedunfairlyinaprogram.Itwillalsosetouttheconditionsunderwhich,whentheclaimisupheld,bythelicenseeitself,orbytheregulator,thevictimwillberequiredtoofferapromptrightofreply,andinsomecases,anapology.

3.4 Licensingdigitalterrestrialtelevision

Licensingdigitalterrestrialrequirestwoseparateprocesses:

1. Licensingthemultiplex12operator–itwillgetaspectrumlicenseforthefrequencyused,butwillalsoneedalicensefromtheMediaCommissiontoregulatedtheservicescarriedonit;

2. Licensingtheservicesthatgoonthemultiplexes.Thesearestandardtelevision(orradio,asDTTcancarryradiostationstoo)licenses,withtheexceptionthattheydonotrequiretheirownspectrumlicensesowillhavenorelationwiththespectrumregulator.Alltechnicaltransmissionmattersshouldbedealtwithbythemultiplexlicensee.

Thelawshoulddeterminewhetherthemultiplexoperator,oncelicensed,willchooseitselfhowmanyandwhichservicesitcarries(aspertheUKlaw)oriftheregulatorwilldetermineitselfhowmanyandwhichservicesitcarries(aspertheFrenchlaw).Ineithercase,provisionsshouldsetouthowtheselectionwillbedone.SeePartVformoreinformation).

12Amultiplexisanerror-protectedbitstreamof24,27or40megabitspersecond,whichcanbeusedforalmostanycombinationofdigitally-encodedvideo,audioanddata.Itenablesanumberofservices(between7-10Standarddefinitionto4-6Highdefinitiontelevisionchannels)tousethesamebandwidth(8MHz)asasingleanaloguechannel.


3.5.Definitionandpromotionof“thirdtier”communitymedia

Whetheritiscalledassociative,participative,non-for-profit,communityorthirdtier,theideathatthereisroomforaspecificformofmedia,beyondthemainstreampublicandcommercialsector,islongestablishedaroundtheworld.Forthepurposesofthispaper,wewillcallit“community”broadcasting,whilerecognizingitdoesnotneedtoserveaspecificcommunityatall,whethergeographicorinterest-based.

Moreimportantisthefactthatthistypeofmediahasasocialorpublicinterestpurposeandincentivizescitizenstoparticipateinitsprogramsanditsadministration,isnotcontrolledbybodieswhichwouldeitherbeabletohold,orareholdingneitherapublicservicenoracommerciallicense,receiveslimitedfundingfromeconomicorpoliticalundertakingsthatwouldcompromiseitsindependenceandisestablishedasanon-forprofitentity.Inaddition,dependingontheavailabilityofspectrumitispossibletopreventthesameassociation/organizationfromholdingmorethanonenationallicense,morethanonelocallicenseinthesamearea,orseverallicensescoveringmorethanacertainpercentageofthepopulation.

Insummary,thedefinitionofthisthirdsectorofmediashouldcover(cumulative)thefollowingcriteria:

• SocialPurposeandobjectives;• Participativemanagement;• Participativeandopenprogramming(althoughthelicenseholdermustkeepatalltimes

editorialcontrolofwhatisbroadcast);• Aimtomakeadifferencetothepopulationtheyserve;• Guaranteesofindependence;

o Throughownershipandcontrolo Throughtransparentfundingo Throughthresholdsontheshareoffindingwhichcancomefromeithergovernment

oreconomicentities,oradvertising• Compliancewithalllaws,bylawsandinstructions;• Distinctiveness,inparticularfrombothcommercialandpublicservice;• Specificrulesoncontrolandownershipshouldalsoapply(e.g.nomorethanonelicensein

thesamearea,maximumnumberoflicensesintotal,maximumshareofthepopulationreached,etc.).

Whilstitcanservespecificinterestsitshoulddosoinawaythatfavorsdialoguebetweenallcommunities,doesnotexcludeanyoneandisfullycompliantwithinternationalstandardsonfreedomofinformationandfreedomofexpression.

3.5.1 ExampleofFrance

InFrancetheconceptemergedattheendofthe1970swiththeso-called“radiopirates”or“radiolibres”(dependingonwhetheryouwereagovernmentofficialoranyoneelse).Itwasofficiallyrecognizedandsupportedfrom1986whentheAudiovisuallawcreatedthe“FondsdeSoutienàl’Expression


Radiophonique”(RadioExpressionSupportFund-FSER).Thisfund,whichgetsitsmoneyfromaspecialtaxleviedonradioandtelevisionadvertisingexpendituresandpaidbyadvertisers,isusedtosupporttheactivitiesofnon-commercialradios,so-called“categoryA”.Selectionandlicensingof“radiosassociatives(ClassA)”ThiscategorizationaimstoguaranteethediversityandbalanceofradioineachregionandguidestheworkoftheFrenchregulator,theConseilsuperieurdel’audiovisuel,CSA,whichalsohasamissiontoguaranteethattrulylocal/regionalstationsareavailable.

Thestepsinvolvedinthelicensingprocessareasfollows:

• EveryfiveyearstheCSApublishesalistofareasandcategoriesoflicensesavailableandinvitesapplications;

• ApplicationsareconsideredbyComitésTechniquesRadiophoniques(BroadcastTechnicalCommittees)inaregionalpre-selectionprocess;and

• TheCSAexaminestheapplicationsindetailandawardslicensesforamaximumoffiveyears.Theselicensesmayberenewedfortwoadditionalfive-yearperiods.

SupportingfundEstablishedinthemid-1990s,theFundhadabudgetof£29meurosin2015.QualifiedstationscanreceivebetweenUSD5,000andUSD150,000annually.Qualifiedstations,whicharegranteda“categoryA”licensebytheFrenchregulatorcanreceivebetweenUSD5,000andUSD150,000annually.Theactualamountreceiveddependsuponanumberofcriteria,includingthepreviousyear’sbudget,theamountoffundssecuredfromothersources(stationsthatreceivelocalfundscanreceivemorefromtheFSER),thequalityoftheirprogramming,andthepurposeofthefunds(newradiostationscanreceivemoretohelpfundsettlingupandequipmentcosts).

Inreturnforaccessingthefunds,thestationsmustagreetolimitadvertisingrevenuetonomorethan20percentoftheirtotalannualturnover.Theymustalsobroadcastatleastfourhoursoflocalprogrammingdailybetween06:00and22:00.

SimilarsystemsexistinBelgiumDenmark,Netherlands,Argentina,SouthAfrica,Australia,andIreland.

3.5.2 ExampleofUK

TheUKjoinedthelistofcountriessupportingcommunitymedia,ratherlate,in2003.Ofcom(UKmediaregulator)awardscommunityradiolicensestosmall-scale,not-for-profitradiostationsoperatedforthegoodofmembersofthepublic,orofparticularcommunities,andinordertodeliversocialgain.

Thelicenseapplicationshouldthereforeidentifytheirtargetaudiencebutalsotheexpectedsocialgain,forinstancetrainingyoungpeoplenotonlytoradiobroadcastingandnewsgatheringbutalsotomanageabusiness,scheduleprogramsetc.

Theselicenseescanalsoapplytothecommunityradiofund.Setupundersection359oftheCommunicationsAct2003,andfundedbyGovernment(around£500,000perannum),theCommunity


RadioFundismanagedbyaPanel(ofatleastthreemembers,theChairappointedbyOfcom’sBoard,onenominatedappointedbytheCommunityMediaAssociation,whichwillbeinvitedtonominateamemberofthePanelandanOfcomrepresentative(whomaybeanexecutivecolleagueorapart-timememberofanOfcomBoard,CommitteeorPanel).

TheFundhasbeenestablishedtogivegrantstohelpfundthecorecostsofrunningcommunityradiostations.Thesenot-for-profitradiostationshaveasocialpurpose,andworktoinvolvetheirtargetcommunityinrunningtheservice.Whilesomeoftheactivitiesundertakenbyastation,suchastraining,mayattractfundingmoreeasilythanothertypesofactivity,itisrecognizedthattheessentialcoreworkinvolvedinrunningastationisthemostdifficultforwhichtofindfunding.

TheCommunityRadioFundhasthereforebeensetuptoprovidehelpforthesecorefunctions,whichinclude:• Fundraisingtosupportthestation(e.g.grants,commercialfunding)management;• Administration;• Financialmanagement&reporting;• Communityoutreach;• Volunteerorganizationandsupport.

3.5.3. Whichdistributionplatform?

Whilstcommunityradioshavebeenverysuccessful,communitytelevisionhashadmanymoredifficulties.Exceptwheretherearelocalcablenetworksthatcandistributetheseservicesforfree,oragainstasmallfee,oftenaspartoftheircontractwiththelocalauthoritiesgrantingthecablenetworkauthorizations,communitytelevisionshavenotbeensuccessful.Thisismainlyduetothehighcostsandspecialistskillsrequiredtorunasuccessfulterrestrialtelevisionchannel,whichgomuchbeyondtherequirementsforalocalradioservice.Actually,thebestplatformtodistributelocaltelevisionserviceistheinternet,butthatpresupposesuniversalaccesstobroadbandinternet.

3.5.4. HowcouldJordanpromotecommunity/associativeradio?

Therearealreadysomesuccessfulnon-forprofitradiostationsinJordan.ThereisspaceontheFMbandtoawardmorelicenses.Whilstitmightnotbeeasyforthegovernmenttosetupafund,inadifficulteconomiccontext,therecouldhoweverbewaysofsupportingthedevelopmentofcommunitymedia.

CommunityradiosthatdonottakeadvertisingareexemptedfromtheMediaCommissionlicensefee.Theycanalsorequestarebate(upto50%)ontheTRCfee,whichat15000JDayearcanbeprohibitive.Thisrebateishowevernotautomatic.ItisproposedbytheTRCforapprovalbytheMinistry.

3.5.5. Recommendations

Tosetupaspecific,muchlowerfee(stillbasedoncoverage)forradioswhicharelicensedbytheMCascommunityservices.Thisfeeshouldnotbesetaboveastrictcost-recoverylevel.


Inaddition,itmightbepossibletocreateasmalltax,e.g.0.2to0.5%,ontheadvertisingincomeofalltheotheraudio-visuallicensees,tosetupafundforthosecommunityradios,whichdonotreceiveanyadvertisingincome.

Despitereservationsexpressedaboveitwouldnotbeimpossibletosetupsmalllocaltelevisionservices,broadcastingafewhours(2-4)perday,ondigitalterrestrialmultiplexes,asthiscouldbeanotherincentiveforconsumerstobuythedigitalterrestrialtelevisionequipment(aerialandsettopbox)(SeerecommendationsondigitalswitchoverinPartV).

ThesestationswouldplayamajorroleinhelpingwiththedecentralizationstrategytheJordaniangovernmentisimplementing,byensuringthereisanetworkoflocalmediascoveringlocaleventsandhelpingcitizenstomakethebestoftheopportunitiesofferedintheirregion.


Appendix1toPartIII:ExampleFrameworksettingtheconditionsandgeneralrulesfortheawardandoperationofacommunityradioservice

ChapterI:Generalprovisions

ArticleIThisframeworkisintendedtoestablishtheconditionsandthegeneralrulesforbeinggranteda

licensetoestablishandoperateanationalorlocalcommunityradioserviceinJordan.Article2Thegrantingofalicensetoestablishandoperateanationalorlocalcommunityradioservicein

Jordan,issubjecttothelegislationinforce,thegeneralconditionsandruleslaiddownbythisframeworkandthespecifictermsandconditionsrelatedthereto,whichwillbesubjecttoalicenseagreementthatwillbeconcludedbetweentheJordanianMediaCommission(MC)ontheonehandandtheholderofthelicense,ontheotherhand

Article3TheprovisionsofthisframeworkandthelicenseagreementunderSection2above,constitutea

singledocumentsettingouttherightsanddutiesofparties.

ChapterII:Applicationforthegrantofalicense

Article4Theorganizationapplyingtothegrantingofalicensetoestablishandoperateanationalorlocal

communityradioserviceinJordanmustbecreatedunderJordanianlaw,anditslegalrepresentativeapplyingtoholdthelicenseofJordaniannationality.TheymustprovidetotheMCanapplicationincludingthefollowingdocuments:

• anapplicationsignedbythelegalrepresentativeoftheassociationcreatedorbeingcreatedfortheestablishmentandoperationanationalorlocalcommunityradioservice;

• acopyofthearticlesordraftArticlesofAssociationdatedandsignedbythelegalrepresentativeorthefoundersoftheassociation;

• foranewassociation,thefinancialplanandbudgetestimatesforthenexttwoyears;andforanexistingassociation,thefinancialplanandbudgetestimatesforthenexttwoyearsaswellasthefinancialstatementsofthepreviousthreeyears,orsincetheconstitutionoftheassociation,whicheverisearlier.Thesestatementsshoulddistinguishrevenuefromadvertising,subscription,sponsorship,publicsubsidies,donationsaswellasfrominteractiveservices;

• theidentityofmembersoftheboardorexecutivedirection,specifyingtheirduties,their


names,datesandplacesofbirth,numberofnationalidentitycards,andprofessionsincludingextractsoftheircriminalrecords;

• adetailednotespecifyingthelinksoftheassociationanditsmemberswithotherassociationsandstakeholdersoperatinginthemedia,information,communications,advertisingorpresssector

• abankstatementorpostproofoftheexistenceofanaccountinthenameoftheassociationinabankestablishedinJordan;

• thecommitmenttoemployJordanianorJordan-longtermresidentsprofessionaljournalists,inlinewiththeradioprojectpresented.Thenumberofjournalistswillbesetbythelicenseagreement.

Article5Theapplication,asprovidedforinArticle4ofthisframework,mustcontaindescriptionofthe

contentoftheserviceandkeyprogrammingfeatures,aswellasdetailsabouttheareaservedbytheserviceanditstransmissionsites.Itmustalsoincludethetechnicalfeaturesofthebroadcaststationsthattheapplicantorganizationintendstouse,namelythetypeandcharacteristicsofthetransmitterandantennaincludingitsorientation,itsgain,itsdirectionaldiagramanddetailsofitscomposition(thenumberofdipolesornumberandtypeofelements,thetypeandlengthofthecable,thetypeofanyequipmentinsertedbetweenthetransmitterandtheantenna).

Ifthelicenseeispermitted,severalfrequenciesandconductsprogramsofatleastsix(6)hoursto

somespecificauthorizedgeographicareas,indicatingforeachsite,theconditionsofthesestalls,duration,contentofeachissue,includingmusic.Hejoinedthelicenseagreementgridspecifyingtheinsertionofthesespecificprograms.

ChapterIII:thegrantingofthelicense

Article6Thegrantingofalicensetoestablishandoperateacommunityradioserviceissubjecttoalicense

agreement,asprovidedforinArticle2ofthisframework.Article7Itmaybegrantedonlyonelicensefortheestablishmentandcreationandoperationofa

communityradioservicetothesameassociation.TheassociationholingthelicenseanditsleaderscanalsohavecontrolofanadvertisingcompanyoraradiochannelorPrivateTVormeasurementcompanyandaudiencesurveys,orholdmorethanfivepercent(5%)shareinmorethanonecompanyoperatingaradiochannelorprivatetelevision.

Article8


Nopersonshallbeadirectorofmorethanoneassociationholdingalicensefortheestablishmentandcreationandoperationofancommunityradioservice.

Article9Alicensefortheestablishmentandcreationandoperationofacommunityradioserviceisgranted

foraperiodoffive(5)yearsfromthedateofsigningoftheagreementprovidedforinArticles2and6ofthisframework.ItisnottransferablewithoutpriorauthorizationoftheMC.

Article10Thelicenseisautomaticallyrenewed,unlesslegalprovisionspreventit,andsubjecttomodifications

ofitsprovisionswhichtheMCmayreasonableforobjectivereasons,suchasaschangesinlegislationandthemedialandscape

ChapterIV:Licensee’sobligations

SectionI:Generalobligations

Article11Thelegalrepresentativeoftheassociationholdingthelicenseorhis/herdelegatedulydesignated

forthispurposeissolelyresponsiblefortheprogrambroadcast,whatevertheconditionsofitsproduction.Thisprogramwillcomplywiththefollowingprinciples:

• Respectforinternationalconventionsandcovenantsonhumanrightsandpublicfreedoms,

• Freedomofexpression• Equality• Pluralismofideasandopinions,• Objectivityandtransparency.

Theseprinciplesarecarriedoutincompliancewiththefollowingrules:

• Respectforindividualdignityandprivacy• Respectforfreedomofopinionsandbeliefs,• Protectionofchildrenandyoungpeople• Protectionofsecurityandpublicorder,• Protectionofpublichealth,• Promotionofnationalcultureandnationalaudiovisualproduction.

SectionII:Ethicalobligations

Article12


Thelicenseeensurestheservicecomplieswiththegeneralprinciplesoffreedomofexpressionandcommunicationandeditorialindependence,andtheprinciplessetforthinthisframework.

Article13

Thelicenseemustensuretheintegrityandimpartialityofinformation,pluralismofideasandopinions,especiallyinnewsprograms.ItundertakestocomplywiththerecommendationsofthepublicauthoritiesingeneralandthoseoftheMCduringelectionperiods.Italsoundertakestopreservetheindependenceandimpartialityoftheservicevisavisanypoliticalparty.

Article14

Thelicenseeensuresitsprogramscaterfortheneedsandinterestsofthepublicinitspolitical,ethnic,culturalandreligiousdiversity.Itiscommittedtoensurenothingisbroadcastwhichiscontrarytolawortothepublicinterest,orcontainsincitementtodiscrimination,hatredorviolence,especiallyonracialgrounds,ethnicity,sex,religion,customs,national,regionalorlocaloriginoropinion.

Article15Thelicenseeundertakestoensurenoprogramaffectsthedignityofthehumanperson.Itmust

respecttherightsrelatingtoprivacy,honorandreputation,asdefinedbyinternationalconventions,lawsandregulations.Itshallinparticular:

• ensurethatitisactuallyholdingrobustevidencebeforedisseminatingevidencethatmighthumiliateindividuals;

• nottoincentivisediscriminatoryorexclusionbehavioursspiritofexclusion,norencouragedefamatoryinsultsagainstindividuals;-

• toavoidcomplacencyintheevocationofhumansufferingandexploitationofthatsufferingforpromotionalandadvertisingpurposes,andanydegradingtreatmentorloweringtheindividualtoanobject;

• ensurethatthetestimonyofpersonsonfactsintheirprivacyiscollectedwiththeirinformedconsentandrespectfortheirdignityandmoralvaluesofJordaniansociety;

• ensurethatnon-professionalparticipatingindebates,interactivebroadcasts,togamesorentertainmentprogramsarenotrequiredtowaive,irrevocablyorforanindefiniteperiod,theirfundamentalrights,includingtherighttoprivacyofprivacyandtherighttoappealincaseofinjury;

• ensuretheexerciseoftherightofreplyinaccordancewiththelegislationinforce,andtheconditionsofitslicense.

SectionIII:Obligationsasregardsprograms

Article16Thelicenseeundertakestocarryouttheserviceunderthetechnicalspecificationsitagreed,and


whichareannexedtotheConventionunderArticles2and6ofthisframework.Itgivestoitsaudiences,onair,inthemostaccuratewaypossible,thecharacteristicsofits

programming,emissionsandtheirduration.ThelicenseecommitstocontributetotheproductionanddistributionofJordanianworksand

culturalproductions,inparticularrelevanttoaspecificarea,agegroup,gender,community,orspecificinterests.

ThelicenseemustfirstseektheagreementoftheMCpriortoanysignificantchangesinthe

characteristicsandcompositionoftheprogram.ThisagreementmayonlyberefusediftheMCconsidersthattheproposedchangesarelikelytosignificantlychangethenatureorthefinancialequilibriumoftheserviceortoreducetheinterestoftheservicetothebroadcastarea.Inthiscase,theMCsuggeststothelicenseealternativechangestotheprojectitfindsappropriate.Ifthelicenseedoesnotacceptthisproposal,hemusteithercontinuetheoperationoftheradioserviceasperitsexistinglicenseconditionsorenditsexploitation,inwhichcase,thelicensewillberevoked.

Article17TheprogramsarebroadcastinArabic,orwithArabicsubtitlesasspecifiedinthelicenseagreement,

andperthecodesissuedbytheregulatorinthematter.Atthereasonedrequestoftheassociationholderofthelicense,theMCmayauthorizeittodistributeallorpartofitsprograminotherlanguages,particularlyinviewofthepublicinterestofitsbroadcastarea.Thelicenseeagreestocomplywiththeproperuseofthelanguageorlanguagesauthorized.

Article18

Thelicenseeisrequiredtoensurethepromotionofculture,includingthepresentation,freeofcharge,themainculturalandsocio-culturalintheareaservedbyitsprogram,withtheexceptionofthosewhichareofanadvertisingorpurelycommercialnature.

ItiscommittedtopromotingtheworksofJordaniancreatorsandinparticularthoseofindividuals,

whethertheyareofJordaniancitizenshipornotwholiveinhiscoveragearea.Thelicensewillcontainpracticalarrangementsfortheapplicationofthisprovisionaswillhave

beenmentionedinitsapplicationfortheawardofthislicense,andapprovedbytheMC. Article19Thelicenseholderensuresthatthenewsandcurrentaffairsprogramsitbroadcastsmeetthe

followingrequirements:• theinformationisobjectivelyprovidedandtreatmentisgovernedbyinternalruleson

objectivityinthehandlingofinformation;theseinternalruleswillbecompliantwiththe


lawandanycodeestablishedbytheMC;• theinformationisprovidedbyprofessionaljournalists,oradequatelytrainedjournalists,

inasufficientnumberrelativetotheneedsoftheserviceandinaccordancewiththecommitmentsmadeinitsapplicationandthelicenseagreement.

Article20Thelicenseeagreestocomplywiththefollowingtermsregardingadvertisements:

• Itensuresthatadvertisementsareclearlyannouncedandidentifiedassuch.Tothisend,alladvertisingsequencesareprecededandclosedbysoundsandannouncementseasilyidentifiedbytheauditors.

• Whentheyaresponsoredbyathirdparty,emissionsmustnotencouragethepurchaseorrentaloftheproductsorservicesfromthisparty.Allsponsoredprogranmesmustbeclearlyidentifiedandclosedbysoundsandannouncementseasilyidentifiedbytheauditors.

• Advertisingandsponsorshipprogramsmustcomplywithlawsandregulationsgoverningadvertisingandsponsorship.

• Themaximumtimedevotedtoadvertisingiseight(8)minutesperhouronaverage,butmaynotexceedten(10)minutes13inanygivenhour.

• News,currentaffairsandreligiousprogramsmaynotbeinterruptedbycommercialbreaks.Thelicenseeagreestopublisheditsratecardforadvertisingspots,applyitinafairandnon-

discriminatorywaytoalladvertisers,andmaintainitwithoutchangesforatthethree(3)monthsfromthedateofposting,exceptunderexceptionalcircumstancesandwiththeconsentoftheMC.

Thelicenseeagreesnottoselltoasingleadvertisermorethanthirtypercent(30%)ofadvertising

space.Italsoundertakesnottoenterintoexclusiveagreementforagivenproductorservice.Thelicenseeagreesnottodisseminatepropagandaandadvertisingmessagesonbehalfofa

person,apoliticalpartyorofaforeignstate.Itisrequiredtodistributefreeandimmediategeneralinterestreleasestoannouncedangersto

health,personalsecurityandpublicsafety,aswillberequestedbytheMCattherequestoftheMinistry.Article21Thelicenseeagreestocomplywithapplicabletechnicalstandardsandfacilitatethemonitoringof

compliancewiththesestandardsbytheservicesauthorizedforthatpurpose.Itensuresthatthetechnicalmaintenanceofallradiofacilitiesisundertakenbyatleastone

qualifiedtechnician.Aqualifiedtechnicianwillbeabletobecontactedinpermanenceduringthe13Lowerthanforaprivatenonassociative/communityservice)


broadcasthours;itsidentityandthemeansofcontactinghimwillbemadeavailabletotheMCandthecontrolservices.

Article22Thelicenseeagreestocompletethenecessaryformalitieswiththecompetentauthoritieson

frequenciesandbroadcasting,fortheuseoffrequenciesnecessaryfortheoperationtransmissionanddistributionoftheradiostation.

Itundertakestocomplywiththetaxlawsandpaythefeesduetotheaforementioned

organizations.

SectionIV:Obligationsconcerningfinancialtransparency

Article23Thelicenseeundertakestoguaranteefinancialtransparencyinthefinancing.Tothisend,it

providestotheMCupdateddocumentsindicatedinpoints3to5ofArticle4ofthisframework.TheMCmayrequirethesubmissionofanyotherdocumentorinformationusefultothefinancialtransparencyoftherelevantassociation.Anymodificationofthedatarelativetoownership,controlordirectorshipmustbenotifiedwithineight(8)daysfollowingsuchamendment,soastoallowtheMCtotakeallnecessarymeasuresunderthelegislationandregulations.

ChapterV:Relationswithauditors

Article24Thelicenseeprovidestolistenersamailingaddressandawebsitetoleavecomments,observations,

complaintsandcomplaintsaboutprograms.ItiscommittedtorespondtothemunderappropriateconditionsapprovedbytheMC.

Article25Thepersonsinvolvedinaprogramareinformed,totheextentpossible,ofthetitleandsubjectof

theprogramforwhichtheirinvolvementisrequested.Article26Unlessapersonparticipatinginaprogramhasgivenexpressagreementtorevealhisidentityand

speakabouthispersonallife,itisforbiddentogiveindicationscouldidentifythatperson,includingthename,address,phonenumber,acharacteristicsign,ordisclosingpersonalitemsthatcouldmakehimidentifiable.Thehostoftherelevantprogramalsoensuresthatthecommentsarenotlikelytomakepossibletheidentificationofthirdparties,exceptforthementionofpersonalitiesinvolvedinpubliclife,


whichisauthorized,subjecttoregulationinforce.Membersofthepublicrequestedtoparticipateinaprogrammustbegiventhesameinstructions

beforegoingonair.Incasetheyoverstepthem,thefacilitatorshouldinterveneimmediatelysoastostoptheinappropriatecomments.

Article27

Thelicenseeensureslicenseappropriatechildprotectioninallitsprograms,incompliancewiththe

law,regulationsandthecodes.

ChapterVI:Supervisionandsanctions

SectionI:control

Article28ThelicenseeshalldisclosetotheMC,atitsrequestofthelatter,anydocumentorinformation

enablinghimtoexercisecontrolincompliancewithitsobligations.Article29ThelicenseeshallsendtotheMCnolaterthanthe31thofAprileachyear,areportonthe

conditionsofimplementationofitsobligationsduringthepreviousyear,withprogressreportsandstatementsofthelastfinancialyearended.

Thefinancialstatementsmustbecertifiedbyacertified/charteredaccountant.Article30Thelicenseeshallretainforthree(3)monthsarecordofalltheprogramsitbroadcastsonits

antenna.AttherequestoftheMCitprovideswithineight(8)days,strictdeadline,copiesofrequesteditems.

TheMCmayatanytimecheckthecomplianceofthelicensewithitsobligationsunderlawandregulation,underthepresentspecificationsandunderthelicenseagreementprovidedforinArticles2to6above.

Article31ThelicenseeinformstheMCbyregisteredletterwithacknowledgmentofreceipt,ofanychangeof

addressofitsregisteredoffice,itscommunication(telephone,fax,e-mail...)oritsfacilitieswithineight(8)days.

Article32


Asfarasheisabletohaveknowledgeofit,thelicenseemustinformtheMC,ofanyprojectsofchangesofthedatainviewofwhichthelicensewasissued,especiallyregardingthestatutes,thefinancialplan,membersoftheofficemanager,theformatandcharacteristicsofitsprogramming,asdefinedbythelawsandregulationsforceinthepresentspecificationsandthelicenseagreement,itsamendmentsandannexes.

Article33Thelicenseeensuresthatthespecificationsofthetransmissionequipmentitusescomplieswiththe

license.Itiscommittedtouseonlyauthorizedconnections.ItenablestheMCtocontrolanyofitsbroadcastingtechnicalconditions.Itiscommittedtogivingaccesstoitsbroadcastfacilities,toofficialsoftheMCorbodiesmandatedbyit.

SectionII:Penalties

Article34Thepenaltiesprovidedbythisframeworkorthosearisingfromitsimplementationaregovernedby

theprinciplesofrespectfortherightsofdefense,legality,proportionalityandtransparency.Allsanctionsmustbereasoned.

Article35

TheMCmaytorequirethelicenseetocomplywiththeobligationsimposedbythelawsandregulationsit,theprovisionsofthisframeworkandtheLicenseAgreement,itsAnnexesandamendments.Sucharequestispublished.

Article36Incaseofbreachofobligationsimposedbythelawsandregulationsinforce,thepresent

specificationsandthelicenseagreement,annexesandamendments,theMCmayordertheinclusionintheprogramsoftheradiochanneloftheassociationholderofthelicense,ofapressreleaseofwhichitfixedthetermsandbroadcastingconditions.

Article37Withoutprejudiceofthepenaltiesprovidedbylaw,theMCmay,incaseofnon-compliancewith

obligationsimposedbythelawsandregulations,anyprovisionofthisframeworkandlicenseagreement,itsannexesanditsamendments,pronounceagainstthelicenseholderthefollowingsanctions,giventheseriousnessofthebreachandafternotice:

• Sendawarningtothelicenseeandorderitspublicationinnewspapersand/ordistributionofthedataradiosystem,

• Suspendtheproduction,circulationordistributionoftheservice,programcategory,partofprogramoroneormorecommercialbreaks,formonths;

• Reducethedurationofthelicense;


• Imposeafine,followedifnecessarysuspensionofproductionordisseminationtotemporarilyorpermanently.

Inallcasesthepenaltymustbeproportionatetothegravityoftheoffenceandthebenefitthatthe

licenseecoulddrawofit.Itcannotexceedfivepercent(5%)ofitsnetsalesortotalincomefortheyearprecedingtheoffense.TheMCmaydecidetobringthecasetothecompetentjudicialorprofessionalauthorities.

Article38Inthecaseofarepeatoffence,theMCmayorderthetemporarysuspensionordefinitive

withdrawalofthelicense.Article39Incaseofseriousoffensethatisaviolationoftherulesandprinciplessetoutinthelaw206of2015

andwhereitcausesadamagedifficulttorepair,theMCmaydecidetheimmediatesuspensionoftheprograminquestionbyreasoneddecision,afterinvitingthelicenseetoappearandhavenotifiedhimtheobjectoftheoffense.

Inurgentcases,thepresidentoftheMCmayinvitethelicenseetoappearatthedateandtimeit

shalldetermine,evendaysoffandholidays.Thesummonsmustindicatetheoffensetothepersonconcerned.

TheDirectoroftheMCmayafterhearingtheoffenderandfortheopportunitytopresentadefense,orderprovisionalandimmediatesuspensionoftheprogramobjectoftheoffense.Theabsenceoftheoffenderdoesnotprecludethetakingofsuchadecision.TheDirectorsubmitsthecasetotheCommissionwithinamaximumperiodofonemonthfromthedateofnotificationoftheprovisionalsuspensiondecisiontothelicensee.

Ifthelicenseedoesnotmeettheconditionsestablishedforthispurpose,thePresidentoftheMC

addresshimaninjunctiontohalttheseviolationsinwithinfifteen(15)daysifhedoesnotcomply,thechairmanofthebodydirectstheTRCtosuspendfrequencyuseauthorization.

Sanctionscanbeimposedonlyafterinformingthelicenseeandallowinghimtoconsiderthe

accusationandpresenthisdefense.

Article40UnlicensedbroadcastingactivitieswillbesubjecttothefinessetunderArticlexxoftheaudiovisual

law.IncaseoftransferofthelicensewithoutpriorconsentoftheMC,besidesthepossibilityofwithdrawalofthelicense,theMCimposesthefineprovidedforinArticle28ofthelaw26of2015.


Article41On-statevisits,seizureofdocumentsandnecessaryequipmentandthepreparationofrelated

minutesareundertakeninaccordancewiththerulesandprocedureslaiddownunderarticle20ofthelaw26of2015,bycontrollersauthorizedbytheMCandswornforthispurpose.

ChapterVII:Finalprovisions

Article42Nothinginthisframeworkandthelicenseagreement,itsannexesanditsamendmentscanbeseen

aspreventingtheapplicationoflegislativeandregulatoryprovisions.Anychangestothelegislationorregulationwillresultifnecessaryinarevisionofthespecificationsandthelicenseagreement,annexesandamendmentsasnecessary.Eveninthecasewherethesechangesarenotmadethenewlaworregulationwillbedeemedtoapply,unlessspecificallyprovidedforinthatnewlaworregulation.

Article43AnypersonmayrequesttheMC,specificationsandthelicenseagreement,annexesand

amendments,pursuanttotheprovisionsofthelaw26of2015concerningtheaccesstoadministrativedocumentsofpublicbodies.

Article44Thelicenseemustpayinduetimeallduties,taxesandchargeslegallyimposeduponhim.

Article45TheMCandthelicenseeundertaketosettleanydisputerelatingtotheinterpretationor

implementationofthisframeworkandtheLicenseAgreement,itsAnnexesandamendmentsamicably.Intheabsenceofagreement,theymaybringthematterdirectlybeforethecompetentcourtsofAmman.

Thelawapplicabletothisframeworkandthelicenseagreement,annexesandamendmentsisJordanianlaw.

Article46StampsfeesandregistrationofthisframeworkandtheLicenseAgreement,itsAnnexesand

amendmentsaretheresponsibilityofthelicensee.

DoneinAmmaninfiveoriginals,the.....................ThelegalrepresentativeoftheAssociationholderofthelicense


Thepresident,onbehalfoftheAudiovisualCommission(MC)


Appendix2toPartIII:Example–PrivateTelevision–GeneralistService

LICENSEGRANTEDBYTHEMEDIACOMMISSION(MC)TOTHECOMPANYXY,HEREINREFERREDTOASTHECOMPANYTOPROVIDETHESERVICE(NAMEOFTHETELEVISIONSERVICE)

Inblueareelementsofthelicensethatwillvaryaccordingtotheobligationsofaspecificlicensee.

TheresponsibilitiesandobligationsincumbentonthecompanyarisefromthegeneralprincipleslaiddownbytheAudiovisualLawNumber26fortheyear2015(laterreferredtoas“theAudiovisuallaw”)includingrespectforthedignityofthehumanperson,theprotectionofchildhoodandadolescence,pluralisticcharacteroftheexpressionofthoughtsandopinion,thehonestyofinformation,qualityanddiversityofprograms,thedevelopmentofproductionandnationalculturalcreation,thedefenseandtheJordanianlanguageandillustrationoftheJordanianculture.

TheMCinexerciseofthepowersconferreduponitbytheAudiovisuallawherebygrantstoNAME

OFTHECOMPANY(the"Licensee")alicense(the"License")subjecttotheconditionssetoutindocumentandannexedtoprovidetheXXXNameService(asdefinedinthedocument).

ThisLicenseisgrantedonthebasisoftheLicensee’srepresentationsthatthestatementssetoutin

hisdeclarationtotheMCastohisaffairsmadebytheLicenseearetruetothebestoftheLicensee'sknowledgeandbelief.

ThisLicenseisgrantedonthedateappearingbelowandshallcomeintoforceonXXX(the“CommencementDate”)and,subjecttotheConditions,shallremaininforcefortheLicensingperiod,untilXXXX.

I-SCOPEOFTHECONVENTION

Article1

Thisagreementisintended,pursuanttoArticle(XXlicensing)oftheAudiovisuallaw,tolaydownspecificrulesapplicabletotheserviceeditedbythecompanyandthepowersavailabletotheMCtoensurecompliancebytheCompanyofitsobligations.

Thecompanypublishesaprivatetelevisionserviceinthenationalcharacterthatischannelsavailablethroughterrestrialand/orsatelliteand/orinternet.

II-COMPANY

Article2

Atthedateofsigningofthisagreement,thecompanyisincorporatedasacompany(Name)withacapitalof(amount)


Atthatdate,thecompositionofcapitalandthedistributionofvotingrightsareasfollows:Sharecapital:……..Votingrights:……….TheExecutivedirectorofthepublicationis(name,address)

ThecompanymustinformtheMC,withinaperiodofthirtycalendardaysofanychangestothesedata.TheAV,incompliancewithArticle7ofBylawno.163fortheyear2003Cwillverifythatthesechangesdonotleadtotheauthorizationbecominginvalid.Ifthisisthecase,theMCboxwillrequestthecompanytogetincompliancewiththisauthorizationwithinaperiodofthreemonthsortolosethelicense.

III-SERVICEDESCRIPTION

Article3

Thecompanyoperatesitselfanation-wideprivatetelevisionservicewhichis/isnotfree-to–view.

Article4

Forterrestrialbroadcasting,thecompanyshallusethefrequenciesallocatedtoitbytheTRCandshallconcludewiththeTRCaspectrumlicenseagreementtothiseffect.Theseinstrumentsmustbeconcludedbeforethecompanystartstobroadcastitsprograms.

ThecompanymustrespecttherecommendationsoftheMCasregardsthetechnicalqualityofbroadcastingprograms.

TheCompanyundertakestoinformtheBoardofitsprojectstoadoptnewtechnologiesoroffernewservices.DuringtheintroductionofdigitaltelevisioninJordan,thecompanywillproposetotheMCitsplantoswitchfromanaloguetodigitalmode,whichwillbeinlinewithrecommendationsfromrelevantgovernmentdepartments.Theseplanswillsetoutinformationandsupportgiventoconsumerstohelpthemcopewiththechanges.

IV-GENERALOBLIGATIONSANDCOMPLIANCEWITHINTERNATIONALSTANDARDS

Article5

Thecompanyisresponsibleandaccountableforthecontentoftheprogramsitbroadcasts.InaccordancewiththeprinciplessetoutinArticleXXX,includinginternationalcommitmentsofJordanonfreedomofexpressionandcommunication,thecompanycomplieswiththeprinciplessetoutinthefollowingarticles.

Article6

Thecompanyensuresthatanypoliticalandgeneralinformationprogramsitbroadcastsareproducedandcarriedoutinconditionsthatguaranteetheindependenceofinformation,particularlyinrespectoftheeconomicinterestsofitsownshareholdersandfunders,andofpoliticalorideologicalinfluence.ItinformstheMCofthemeasuresitisimplementingtothisend,forexample,thedraftingandimplementationofacodeofethicsforitsjournalistsandproducers.


Pluralismofexpressionofideasandopinions

Article7

Thecompanyensurespluralismofexpressionofthoughtandopinion,particularlyinthecontextoftherecommendationsoftheMC.Itensuresthatthereisapluralityofopinionspresentedintheprograms,representativeofthepoliticalandideologicaldiversityinJordan.Journalists,presenters,facilitatorsorcollaboratorsofprogramsmustensurecontroversialissuesarepresentedinafairandimpartialwayandthatthedifferentpointsofviewcanbesetouton-air.

Publiclife

Article8

Inrespectoftherighttoinformation,thebroadcastingofprograms,images,wordsordocumentsrelatedtolegalproceedingsorfactslikelytogiverisetoacriminalinvestigationrequiresthatspecialattentionbepaidtorespect(a)thepresumptionofinnocence,thatistosayapersonnotyetconsideredisnotpresentedasguilty,(b)secrecyofprivatelifeand(c)righttoanonymityofjuvenileoffenders.

Thecompanyensuresthat,itprovidesinformationondecisionsmadebycourts,theyarenotcommentedinawaythatcouldunderminetheauthorityofjusticeoritsindependence.

Whenprovidinginformationonacurrentjudicialproceedingisreferredtotheantenna,thecompanymustensurethat:

• thecaseisdealtwithmoderation,rigorandhonesty;• thehandlingofthecasedoesnothinderthepropercourseofjustice;• pluralismisensuredbypresentingthevariousargumentsinvolved,includingensuringthatthe

partiesortheirrepresentativesaregiventheopportunitytomaketheirviewsknowntoaudiences.Article9

Thecompanyensuresitsprogram:• containsnoincitationtocrime,civilunrest,orillegalpractices;• respectsthedifferentpolitical,culturalandreligiousopinionsandbeliefs;• doesnotencouragediscriminationbecauseofrace,gender,religion,ethnicity,ornationality;• promotesnationalunity,toleranceandhumanrights;• givesdueconsideration,initsprograms,tothediversityoforiginsandculturesofthenational

community.

Individual’sRights

Article10

Theprotectionofthedignityofthehumanpersonisanimportantaspectofpublicorder.Itcannotbewaivedbyprivateagreementsevenifconsentisexpressedbythepersonconcerned.


Thecompanyundertakestoensurenoprogramsitbroadcastsunderminesthedignityofthehumanpersonasdefinedbylawandjurisprudence.

Thecompanyrespectstherightsrelatedtoprivacy,image,honorandreputationasdefinedbylawandjurisprudence.

TheCompanyshallinparticularendeavour:• toexercisecareandrestraintbeforedisseminatingimagesortestimonywhichmight

humiliateordistresspeople• toexercisecareandrestraintbeforedisseminatingimageswhichconcernavictimof

accident,crimeorapersonindistress;• toavoidcomplacencyintheevocationofhumansuffering,andanydegradingtreatment;• thattestimonyofpersonsandprivateinformationonthemiscollectedwiththeirinformed

consent;• thatwhennon-professionalparticipateinstudioprograms,gameorentertainment,they

arenotrequiredtowaive,irrevocablyorforanindefiniteperiod,theirfundamentalrightsincludingtherighttotheimage,therighttoprivacyofprivacy,therighttoappealincaseofinjury.

Article11

Initsemissions,includinggamesorentertainment,thecompanyundertakesnottoencourageoracceptdefamatoryinsultsordiscriminatorybehavioursagainsttheparticipantsorbetweenparticipants.Ifgamesorentertainmentprogramsinvolveslengthyrehearsalsorrecording,thecompanywillensureparticipantsaregivensufficientrestandadequatesupport.

Participantsmustbeclearlyinformedofwhichinformationwillbecapturedandbroadcast.

Article12

Personsinvitedtoappearinaprogrammustbetoldinadvancethenameandthesubjectoftheprogramforwhichtheyarerequested.Whentheyareinvitedtoalivedebate,theyareinformed,asfaraspossible,oftheidentityandqualityofotherstakeholders.

Protectionofchildrenandyoungpeople

Article13

Thechaindoesnotaskforthetestimonyofminorsindifficultsituationsintheirprivatelife,unlesstheyensurefullprotectionoftheiridentitybyappropriatetechnicalprocessandobtaintheagreementoftheminorandtheconsentatleastoneofthepersonsexercisingparentalauthority.

Article15

Thecompanywillensurethattheprogramspresentedarenotlikelytoimpairthedevelopmentandphysicalandpsychologicalhealthofminors.Inthesetimeswheretheyoungaudienceislikelytobemore


watchingtelevision,between06.00and21.00andevenmoresoforprogramsaimedyouth,violentimagesshouldbeavoidedandviolence,includedofapsychologicalnature,shouldnotbeperceivedascontinuous,omnipresentorpresentedastheonlysolutiontoaconflict.

Thecompanywilltakenecessaryprecautionswhenimageswhicharedifficulttosustainortestimonyrelatingtoparticularlydramaticeventsarebroadcastinnewsprogramsorotherprogramsontheschedule.Inparticular,thepublicmustbenotifiedbeforehand.

Article16

Thecompanywillestablishaviewingcommission,withadequatelytrainedmembersstafforexternaladvisors,toensurethatprogramswhicharenotrecommendedforminorsofacertainageareidentifiedandclearlylabelled.

ThecompanyiscommittedtorespectingtheclassificationofprogramsundertheprotectionofchildhoodandadolescenceasitwillbeadoptedbytheMC.Itwillpromotethisclassificationwithhisaudience14.

Honestyofinformationandprograms

Article17

Thehonestyrequirementappliestoallprograms.TheCompanyverifiesthevalidityandsourcesofinformation.Whereverpossible,originoftheinformationmustbeindicated.Wheninformationisuncertain,itmustbepresentedassuch.

Article18

Theuseofmethodstorecordimagesandsoundswithouttheknowledgeofpeoplefilmedorrecordedmustbelimitedtowhereitisabsolutelyrequiredfortheinformationofthepublic.Itshouldberestrictedtocaseswhereitprovidesinformationwhichcouldnotbecollectedotherwise,andwhenthereisapublicinterestintheprovisionofthisinformation.Theuseofthesemethodsmustberevealedtotheaudience.Peopleandplacesshouldnotbeidentified,withoutexceptionoronlyiftheconsentofthepeoplewasgatheredpriortothebroadcastoftheprogram.

Innewsprograms,thecompanyprohibitstheuseoftechnologieswhichenableimagestobemodified.Inotherprograms,thepublicmustbenotifiedoftheuseoftheseprocedureswhentheirusecanbemisleading.

Article19

Thecompanyisrigorousinthesubmissionandprocessingofinformation.Itensurestheadequacyofthecontextinwhichtheimageswerecollectedwiththesubjecttheyillustrate.Anyuseofarchivefootageisannouncedbyanoverlayonthescreen,possiblyrepeated.Ifnecessary,referenceismadeto14ThiscouldbeoneoftheremitsoftheComplaintscommitteewhichwouldbecomea“ComplaintsandStandardscommittee”.


theoriginoftheimages.Theimagesproducedtoreconstituteorreproducerealfacts,orsupposedfacts,shouldbepresentedassuchtoviewers.Exceptwhenundertakingcaricatureorpasticheclearlypresentedassuch,imagesorsoundsshouldnotbeeditedinsuchawayitcandistorttheoriginalmeaningofwordsorimagesormisleadtheviewer.

Article20

Thecompanyseekstoavoidanyconfusionbetweeninformationandentertainment.Initsnewsprograms,thecompanyemploysprofessionaljournalists.

V-CONTENTOFTHESERVICE

Editorialcontrol

Article21

Thecompanykeepsinallcircumstancescontroloftheprogramsitbroadcasts.

DefenceandillustrationoftheArabiclanguageandJordaniandialect

Article22

ThecompanyshallensureproperuseofArabicorJordaniandialect,asisthecaseinitsemissions,andinadaptations,dubbingandsubtitlingofforeignprograms.ThecompanystrivestousetheArabicinthetitlesofhisshows.AnadvisertotheArabiclanguageisdesignatedbythechain.

Article23

Theprovisionsoftheprecedingarticlearenotintendedtopreventthecompanytoprovideprogramminginotherlanguages,includingFrenchandEnglish,whenitisappropriate,forinstanceineducativeprogramsormovies.Whendoingso,itwillensureaproperuseoftheforeignlanguage.

Respectofschedulesandprogramming

Article23

Thecompanypublishesitsscheduleofprogramsnolaterthantwoweeksbeforethefirstdayofbroadcastingprogramsoftheweekinquestion.Itundertakesnottochangethisschedulewithinlessthan7daysofbroadcasting,includingthisone,exceptrequirementsrelatedtosportingeventsandexceptionalcircumstances:

• newevents;• unforeseenissueregardingintellectualpropertyrights;• decisionofthejudiciary;• technicalincident;• publicinterest;• ifverylowaudiencenumbersofpreviousepisodesrequireaseriesprogramtobecancelled.


Thecompanyrespects,subjecttotheconstraintsoflivebroadcasts,programmingschedules

previouslyannounced.

Article24

Thecompanyensuresthatthesoundlevelofadvertisingprogramsdonotexceedtheaveragesoundleveloftheotherprograms.

Article25

Thecompany,nolaterthan12monthsafterthegrantingofitslicense,providestotheMCanotesettingoutthemeasuresittakestodealwith,andrespondto,audiencecommentsandcomplaints.Thecompanymakeseveryyearareportoncommentsandcomplaintsreceivedfromviewersanditsresponsetothose.ThisreportmustbereceivedbytheMCnolaterthanMarch31ofeachcalendaryear.

Descriptionoftheservice

Article26

TheservicewillbroadcastprogramsforXXhoursaday/week.ThisdurationcanonlybechangedwiththeagreementoftheMC.Theentirescheduleisdesignedorassembledbythecompany.

Article27

Thecompanyoffersadiversegeneralistprogrammingthatcaterstotheentirepublic.Animportantplaceisgiventoinformation,Jordanianaudiovisualandmovieproduction,programsforchildrenandyoungpeople,entertainmentandmostpopularsports.Thecompanybroadcastsconcertsandliveperformances,inparticularfromfestivalsandperformancesgiveninthedifferentareasofJordan.

ItreservesforprogramsproducedinJordanatleasttwothirds(POINTWHICHCANVARYACCORDINGTOLICENSES)ofitsannualbroadcastingtime.

Article28

ThecompanymakesavailableXpercentofitsprogramstothedeaf.ThecompanyalsoundertakestomakeatleastXXhoursayear(notincludingrepeats)ofprogramsaccessiblevisuallyimpairedthroughappropriateaudiodescription.Afurtherreviewoftheseprovisionswillbeheldeveryyear.

Informationandmagazines

Article29

ThecompanybroadcastsdailyatleastXXcompleteeditionsofnewsbulletins.Itdoesnotinsertanyadvertisinginthecourseofitsnewsprograms.Itprovidesregularlypublishesnewsmagazines,includinginprimetime.


AlltheseprogramsrepresentanannualvolumeofatleastXXhours,excludingsportsandweatherforecastprograms.

Thecompanyendeavours,throughitsinformationandcurrentaffairs,political,economic,scientificprogramsanddocumentariestohelpthepublicdiscoverandbetterunderstandingthecontemporaryworld.Itaddressestheeconomic,socialandscientificissuesandpromotessocialcohesion,solidarityandcivicresponsibility.

Programsforchildrenandyoungpeople

Article30

Thecompanyoffersprogramsforchildrenandyoungpeopleduringthetimesanddaystheyareavailable.AtleastXX(5)%ofitsbroadcastinghoursandYY(8%)ofitstotalbudgetaredevotedtotheseprograms.ThecompanyannuallyspendsaminimumofXXhourstomagazinesanddocumentariesforyoungaudiences.Theseprogramspromotethephysical,mentalandmoraldevelopmentofchildrenandprovidethemwithusefulreferencesintheconstructionoftheirapproachtotheworld.Theydealwithdiversetopicswhichhelpchildrentounderstandcurrentissuesandtheevolutionofsociety.

Thehostsandpresentersoftheseprogramsrespecttheyoungaudienceanddonotexploitinexperienceandcredulity.Theyshouldnotappearinanyadvertisingaimedatyoungaudiences.

InvestmentinProduction

Article31

ThecompanyspendseveryyearatleastXX%ofitsbudgetofthepreviousyearinproducingaudiovisualworksinJordan.

VI-ADVERTISING,SPONSORSHIPANDTELE-SHOPPINGEMISSIONS

Article43

Thedurationofadvertisementsmustnotexceedtwelve/fifteenminutesacontinuousperiodofsixtyminutes.Advertisingmessagesareclearlyidentifiedandseparatedfromtherestoftheprogramsbyappropriatemeans.Thisisparticularlyimportantforadvertisingscreensaroundorwithinprogramsforchildrenandyoungpeople.

Article45

Thepresentationorpromotionofobjects,productsorservicesthroughtele-shoppingprogramsmustcomplywithlawsandregulationsrelatingtoconsumerinformation.Theobjects,productsorservicesmustbedescribedaspreciselyandfaithfullyaspossible,inallquantitativeandqualitativeelements.

Article46


Sponsoredprogramsmustbeclearlyidentifiedassuchatthebeginningortheendoftheshow.Toavoidconfusioninthemindsofyoungviewers,thecompanyensuresthatthereisnointerferencebetweenthenameofthesponsororoneofitsbrandsandthatofayouthprogramoranelementthereof.Newsprogramscannotbetheobjectofsponsorship.

Article47

Whenaprogramusesproductplacement,thatfactmustbeclearlydoatthebeginningandendoftheprogram.

Article48

TheCompanywillsetoutitspolicyasregardsadvertisingsponsorshipandproductplacementandwillsubmittotheMCforapproval.

VII-ASSOCIATEDDATA

Article49

Associateddataaredatatransmittedatthesametimeasthemainprogramofthetelevisionserviceandintendedtoenrichandtocompleteit.Teletextandsubtitlingareassociateddata.ThecompanyhaseditorialresponsibilityforassociateddataandcomplieswithallregulationsissuedbytheMCaboutit.

VIII-CONTROL

Article50

TheCompanyshallimmediatelyinformtheMCofanyproposedchangeintheamountordistributionofcapitalorvotingrights,assoonasithasbeendiscussedintheboardofrelevantcompanies.TheCompanyshallimmediatelyinformtheMCofanychangeofitsparticipationorinterestinanotherlicensedcompanyassoonasithasknowledgeofit.Athisrequest,thisinformationmaybekeptconfidentialbytheMC.

Article51

ThecompanyprovidestotheMC,withintwomonthsfollowingtheendofthefiscalyear,adulyauditedcopyofthelicensee'sfinalfinancialstatements,includingdocumentsonitssubsidiaries.

TheCompanyshallprovidetotheMC,atitsrequesttheannualreportsandaccountsfromeachofitsshareholdersholdingatleast5%ofitscapital.

Article52

Forthepurposesofvalidatingitscompliancewitharticles30and31,thecompanyeveryyeartotheMCthecostofprogramsmadeunderthesearticles,andrelevantcontracts.ThecompanyundertakestoprovidetotheMCanannualreviewofplannedspending


Article53

ThecompanyshallprovidetotheMCwithineightdaysoftheirconclusion,allagreementsinforthetotalorpartialtakeoverbyitselforitsshareholdersofanothercompanylicensedbytheMC.

Article54

ThecompanycommunicatestotheMCalltheinformationthecommissionreasonablyrequeststoensurecompliancewithitslegalandregulatoryobligationsaswellasthoseresultingfromthisconvention.Thisinformationincludes,butnotexclusively,contractsforproducingorpurchasingaudiovisualandcinematographicworksandprograms.Thedataprovidedareconfidential.TheMCwillworktopromotetheelectronictransmissionofinformationinaccordancewithgenerallyacceptedstandardsinthisarea.ThecompanyshallprovidetheMCinformationonthecostandfinancingofemissionsotherthancinematographicandaudiovisualworks.ThecompanyshallprovidetheMC,totheextentpossible,audienceresearchitcarriesout

Article55

ThecompanykeepsforatleastsixmonthsarecordofallprogramsbroadcastincompliancewithArticle21-CoftheAudiovisuallaw.TheMCmayrequestcopyoftheseprograms.

Article56

ThecompanyshallannuallysendtotheMCnolaterthantwomonthsaftertheendofthepreviousfinancialyearareportontheexecutionofitsobligationsandcommitmentsduringthatyear,incompliancewitharticle21-HoftheAudiovisuallaw.

IX-SELF-DISCIPLINE

Article57

Withoutprejudicetothecontractualpenaltiesprovidedforbylaw,intheeventtheCompanyhasbreachedanyofitsobligationsandcommitments,itmayproposetotakemeasurestoremedythebreach.TheMCmaytakethisintoaccountwhendecidingontheappropriatepenalty,withintheboundariesofthelaw.

X-CONTRACTUALPENALTIES

Article58

TheMCmaygivenoticetothecompanytocomplywiththestipulationscontainedintheagreementandtheamendmentswhichmightbeannexed.Itshallpublishthisnotice.

Article59


TheMC,intheeventofnon-compliancewithanyprovisionofthislicenseanditsannexesoramendments,afterdueconsiderationgiventotheseriousnessofthebreachandafternotice,decideagainsttheeditoroneormoreofthefollowingsanctions:

• Afinancialpenalty,theamountmaynotexceedtheceilingprovidedforinarticle31oftheAudiovisualLaw,ifthebreachdidnotconstituteacriminaloffense;

• Thesuspensionpublishing,broadcasting,distribution,service,categoryofprogram,partoftheprogramorofoneormorecommercialbreaks,foramonthatmost;

• Thereductioninthedurationofthefrequencyusageauthorizationinthelimitofayear.

IncaseoffurtherviolationofaprovisionofthisAgreementthatledtothedeliveryofasanction,theMCmayimposeapecuniarypenaltythancannotexceedtheceilingsetforrepeatoffensesbyArticle28(b)ofthelaw62of2015.

Article60

Intheeventofbreachoftheprovisionsofthisagreement,theMCmayordertheinclusioninthecompany'sprogramsofastatementinthetermsandundertheconditionstheCommissiondetermines.

Article61

IntheeventthatthecompanywouldnothavecompliedwithmeasurestakenunderArticles58to60,theMCmayitimposeoneofthepenaltiesprovidedforinArticle59.

Article62

ContractualpenaltiesmentionedinArticle58ofthisConventionarepronouncedbytheMCinaccordancewiththesafeguardslaiddowninthelaw.

XI-THEREVIEWOFTHECONVENTION

Article63

NoprovisionofthisAgreementshallprecludethattheprovisionsoflawsandregulationsthatcouldbemade,afterthesignatureofthisConventionareapplicabletotheCompany.

Article64

WithoutprejudicetoArticle63,thisAgreementmaybeamendedbyagreementbetweenthecompanyandtheMC.Inparticular,theobligationscontainedinArticle30and31maybereviewedattherequestofthecompany.

XII-FINALPROVISIONS

Article65

ThepartiesagreethatthisAgreementshallenterintoforceon(date),andwilllastuntilthe(date).


PartIV:AnalysisoftheLawoftheAudioandVisualmedia2015(26)TheAudiovisualLawisdividedinto5mainparts.• Entryinforce(Art.1)andDefinitions(Art.2);• MediaCommission

§ Establishment,composition,roleandresponsibilitiesofalegalentity(Art.3-9),§ Itsresources(Art.10-14).§ Itsroleinissuinglicenses(Art.15-25)

• Recordedmaterials(Art.26-27);

• Sanctionsandenforcement(Art.28-31);

• Consequentialmatters(Art.32-35).

4.1 Entryinforceanddefinitions

4.1.1. Keyprinciple

Itisrecommendedthatimmediatelyafter(orbefore)Article1,aprovisionshouldrestatetheprinciplesoffreedomofinformationasregardsbroadcastmedia.Forinstance:

“TheStateguaranteesfreedomofopinion.EveryJordanianshallbefreetoexpresshisopinionbyspeech,inwriting,orbymeansofphotographicrepresentationandotherformsofexpression,providedthatsuchdoesnotviolatethelaw.

Freedomofbroadcastmediashallbeensuredwithinthelimitsofthelaw.“

4.1.2. Definitions

ThenewlawhasamendedthedefinitionofBroadcastingsothatprogramswhicharetransmittedovertheinternet(programsbeingdefinedas“RadioorTVservicesoranypartthereoftransmittedbythelicenseetothepublic”)whichwerepreviousoutsideofthescopeofthelawarenowcapturedbyit.

Whilstitmakessenseandislegitimatetoensure“technologyneutrality”,thatistotreatingthesameservicesonthesameplatformsinanequitableway,whichmeansthatifdifferencesoftreatmentcanbejustifiedwhentheycorrespondtoobjectivedifferencesofsituation/possibilities,thisprovisionnowmeansthatblogswithaudiovisualmaterialfallunderthesamerulesasatelevisionorradioservice.Regulationswhicharelegitimatetoensureequitablerepartitionofthescarceresource,andtosubordinatetheuseofspectrumtocertaincontentobligationsarenolongerlegitimatewhenitcomestotheinternet,whichdoesnothavethesamephysicallimitations.

ItisalsosuggestedtoamendArticle2and3oftheBylaw163toensurethatallIPTV,OTTcontent


requiresalicense.

Itisstronglyadvisedtoreconsiderthisnewprovision,inparticularsince,readinconjunctionwithArticle19,itwouldmeanallpublicationscarryingaudioandvisualcontentorlinkstosuchcontentontheinternet,blogs,tweets,etc.needalicense,whichnotonlyiscontrarytofreedomofexpressionbutisalsoentirelyunrealisticinaworldwheretheavailabilityofvirtualprivatenetworks,andothersuchdevicesmakeitimpossibletoregulatetheinternet,indeed,inordertobeeffectivesucharegulationshouldbetargetedtomaterialwhichisreallyharmful,underthecontrolofthecourts.

AdditionaldefinitionsareprovidedintheproposedamendmentstotheBylaw163of2003.Thedefinitionofrebroadcastingisnoted,whichisuseful.

4.2 MediaCommission

4.2.1. Itsexistence

TheexistenceofaMediaCommission,separatefromgovernment,isinitselfaverygoodthing.However,assetoutintheLawitdoesnotseemtobenefitfromalltheguaranteesitwouldneedtobeindependent.Anumberofpointsrelatedtothecomposition,independenceandpowersoftheCommissionshouldbeamendedinordertobringtheLawmorefullyintolinewithinternationalstandards.

Article3(a)doesestablishthiscommissionasafinancialandadministrativeindependentcorporateentitywithlegalpersonalityandtherighttogotocourts.Itisstatedthatthecommissionis“establishedunderthejurisdictionoftheMinistry”;howeveritiswelcomedthattheamendmenttothepreviousLaw,hasremovedformerclause3(b)thatstatedthat,“theCommissionisfinanciallyandadministrativelyaffiliatedtotheMinister.”

However,thefactthattheCommissionisaseparatelegalentitydoesnotguaranteeitsindependence.Wewouldarguethatthisindependencemustbeexplicitlystatedandprotectedguaranteedbythelaw.

Recommendation:ThelawshouldexplicitlysetthattheCommissionshallenjoyoperationalandadministrativeautonomyfromanyotherpersonorentity,includingthegovernmentandanyofitsagencies.TheCommissionshouldalsohaveitsownbankaccount.

4.2.2 CompositionoftheCommission

Theselectionofthemembersofaregulatingbodyisparamounttoensureitsindependence.AccordingtoArticles6and7oftheLaw,theAudiovisualCommissioncomprisesaDirectorandExecutivestaff.

Thegoverningbodystructureofaregulatorshouldbedeterminedbythenatureofandreasonfortheregulatedactivitiesandtheregulationbeingadministered,includingitslevelofrisk,degreeofdiscretion,


levelofstrategicoversightrequiredandtheimportanceofconsistencyovertime.Forindependentregulators,therearethreemaingovernancestructuresused:

1. AGovernanceboardmodel–theboardisprimarilyresponsiblefortheoversight,strategicguidanceandoperationalpolicyoftheregulator,withregulatorydecisionmakingfunctionslargelydelegatedbythechiefexecutiveofficer(CEO)andstaff–forexample,theUnitedKingdom’sOFCOM;

2. ACommissionmodel–theboarditselfmakesmostsubstantiveregulatorydecisions(examplesincludetheUnitedStates’FederalTradeCommissionandtheFrenchConseilsuperieurdel’audiovisuel);

3. ASinglememberregulator–anindividualisappointedasregulatorandmakesmostsubstantiveregulatorydecisionsanddelegatesotherdecisionstoitsstaff.

Asregardsmedia,thislastmodelisnotwidelyusedasitwouldleadtoconcentratingintothehandsofasingleindividualverysignificantpowerspertainingtohumanrights.Inaddition,sinceoneoftherequirementsunderinternationallawistopromotepluralisminthebroadcastmedia,aCommissionoraBoardwithnolessthanfivemembersandnomorethan12/15wouldseembetterabletorepresentapluralityofviewpoints,representativeofthesocietyasawholeandinitsdiversity,butalsoavarietyofcomplementaryexperiencesandskills.

Tothisend,broadcastingauthoritiesinmostcountriesaregovernedbyaboardwithanumberofmembers(usuallybetweenfiveand15),appointedinamannerwhichensurestheyarebroadlyrepresentativeofsocietyasawhole.

WewouldthereforeurgetheGovernmentandParliamenttoconsiderreviewingthestructureandmovetoaCommissionwithatleastfivemembers.

Inanycase,whicheverofthethreemodelsischosen,therearesomekeyconditionstoensuretheindependenceoftheregulator:

• Selectionandappointmentofthemembers;• Termoftheiroffice;• Incompatibilitiesandconflictsofinterests.

Article6(b)providesthat,“TheDirectorshallbeappointedbyvirtueoftheCouncilofMinistersdecisionupontherecommendationoftheMinister,providedthatsuchdecisionshoulddefinehissalaryandotherfinancialrights,andhisservicesshallbeterminatedinthesamemanner.”

Accordingtothelaw,thechoiceanddismissaloftheDirectorisentirelylefttotheGovernment,andtherearenoprovisionsdeterminingthetermofitsoffice,ortheconditionsofitsdismissal.

WhilstthefactthattheformalappointmentismadebytheGovernmentcanbeacceptable,thereshouldbeanopenandtransparentprocedureastotheselectionoftheindividual,andguaranteesastoitsindependencewheninpost.Thisisnotthecasetoday.


Thereareanumberofwaysthismechanismcouldbebroughtclosertotherequirementsofinternationalstandards.Atthesametime,theauthorisawarethatthisrepresentsaverysignificantchangeandneedstobeconsistentwithareviewofthesystemofpublicappointmentsinJordan.

Themechanismdescribedbelowisapplicableforappointmentsinallthreemodels(Governanceboardmodel,CommissionmodelorSinglememberregulator)asdescribedabove.

First,thereshouldbeapublicationofaninvitationtoapplytothepost,withadescriptionofthejob,criteriaforselection(keyexperienceandskillsrequired),andselectionshouldbemadebyanindependentpanel,includingrepresentatives.ApplicantsshouldberequestedtopresentinashortdocumenttheirvisionfortheCommission/andorthenominationauthority(wheremembersarerepresentativesofcivilsocietyorganizations)andtheirstrategytoimplementtherolewhichwouldbegiventothembythelaw.

Second,wheretheappointmentsaremadebygovernment,anindependentpanelshouldbesetouttoconsidertheapplicationsandmaketheselection,onmerits.Dependingonthenumberofapplicants,therecouldbeatwo-stageprocess:itiscommontoestablishashort-listbasedonthewrittenapplications,andthentoinvitetheshortlistedapplicantstoaninterviewwiththepanel.Inthecasewhereanappointmenthastobemadebyacivilsocietybody,thisbodyshouldveryclearlysetoutthemechanismbywhichitwillselecthisorhernominee.

ThecompositionofthispanelcouldvarybutshouldberepresentativeofanumberofdifferentinterestsandpartsofthesocietyinordertoguaranteetheindependenceandpluralismoftheCommission.

Thecommissioninchargeofotherpublicappointments,ifitexists,couldbegiventhisrole.Alternatively,itcouldfalltoanad-hoccommission,comprisingofrepresentativesofthemediasector,orvariouscommunities;whentherearenotmanyrepresentativebodies,norrepresentativestakeholderorganizations,oneoptioncouldbetosetupamulti-partycommitteeofParliamentinchargeofthisselection.TheappointmentcouldthenberatifiedbytheGovernment,incompliancewiththeConstitution.Inthecaseofamulti-membersmodel,aGovernanceboardoraCommission,theChairmanorDirectorcouldbeeitherbeappointedassuch(forinstanceOfcom,CSA)or,onceappointedasamember,chosenbytheotherappointeestotaketheChairorDirector’srole.ThetermandconditionsofthismandateshouldbedecidedbytheBoardorCommissionitself.Onceappointed,itisessentialthatmemberskeepthisindependencebynotbeingsubjecttodismissalatwill.Thedurationofthemandateofmembersshouldalsobesetinthelaw,anditshouldbeafixednon-renewabletermoffourtosevenyears.Dismissalshouldonlyhappeninalimitednumberofcasessetoutbythelaw,asbelow:

• Ifthemembercomestobeinasituationincompatiblewithappointment,or• Ifthememberbecomesincapacitated,or


• Ifthememberceasestoperformhis/herfunctionsinanacceptablemanner.InthiscasethedecisionwillneedtoberatifiedbyParliament.

Non-renewabilityisimportantasitensurestheappointeewillremainindependentfromthenominatingauthority.Itisessentialthattheappointeesremainindependentfromallpoliticalparties,economicenterprises;theguaranteesofindependenceshouldapplynotonlyatthetimeoftheirselection,butbeapplicableforaslongastheyremaininpost,andpreferablyforaperiodafterwards.ItshouldnotbepossibleforamemberoftheCommissiontotakeimmediatelyaftertheendofhis/hermandateaninterestorapositioninabroadcastingentity.

Article6cprovidesthat,“TheDirectorshallactastheheadoftheExecutiveStaffoftheCommissionandshallrepresentitbeforeothersandmaydelegatesomeofhispowerstoanyoftheCommission’sOfficialsprovidedthatsuchdelegationistobewrittenandwelldefined.”

Inasinglemembercommission,itcanbenecessarytodelegatesomepowersofofficialsforpracticalreasons.ItisrecommendedthatthisArticleisreviewedifamultimembercommissionisestablishedasthepowerscouldbesharedonacollegialbasisbetweenthedifferentmembers.

Article6dprovidesthat,“theexecutiveStaffoftheCommissionshallconsistofofficialsandemployeesappointedbyaspecialbylawissuedforthispurposeandtheiremploymentconditions,salaries,allowances,bonuses,rights,responsibilitiesandothermattersshallbedefinedbythatbylaw.”

ItwouldbepreferablefortheCommissiontoappointthestaffitself,throughanunderpinnedandtransparentselectionprocess.Whilstitisacceptabletorecruitcivilservantsoremployeesofmediacompanies,thesameincompatibilitiesformembersoftheCommissionandthedirectorshouldapply,meaningtheyshouldresignfromtheirofficeorjobsinordertobeappointed.EmployeesoftheCommissionshouldhavenoassociationatallwithpoliticalparties,government,parliamentormediacompanies.

Article7furtherprovides,“AnypersontobeappointedastheDirectoroftheCommissionshallmeetthefollowingrequirements:-

• TobeaJordanianCitizen;• TohavetheFirstUniversityDegree,asminimum;• Tobeadequateandexperiencedinthefieldofinformation;• Nottobeconvictedforanycrimeoroffenceofhonororintegrity.

ThisArticlehasthemeritofrequestingthattheDirectorhasadequateexperienceandskillsbutdoesn'tdealwiththeriskofconflictofinterest.Inadditiontheincompatibilityforcrimecouldbemademorespecific.ConflictsofinterestsarealsodealtwithbyArticle9,inanappropriatemannerasfarasinterestsinthemediasectorareconcerned.However,anumberofamendmentswouldreinforceprotectionagainsttheriskofundueinterferenceandconflicts.


Provisionsdealingwiththeriskofpoliticalobedienceshouldalsobereinforced,bytheinclusionofrulespreventingCommissionmembersandseniorstafftohaveanypoliticalroles.Theauthorrecommendsextendingtheincompatibilitiesandobligationstoallstaffmembers,althoughwithpossibleexemptionsfortheirspouseorrelatives’employmentinthesector.(ForinstanceitshouldbepermittedtoadriveroftheCommissiontokeepthepositionifhis/herdaughterbecomesanemployeeinanon-seniorroleinaradiostationsincetherealriskisminimal,providedthissituationisdeclaredandacceptedbytheCommission).Inadditionalldeclarationsshouldberenewedeveryyear,andmadepublicasitisthebestwayofensuringtheirsincerity.AlthoughtheLawstatestheymaybeprosecutedforfalsedeclarations,itisnotstatedthatnotcomplyingwiththeobligationsunderthisArticlewillleadtoimmediatedismissal,

DutiesandpowersoftheCommission

ThelawshouldprovideforacleardefinitionofthedutiesandpowersoftheCommission.ThisisthepurposeofArticle4.

Wewelcomenewprovisionsintroducedbythe2015LawwhichbroadenstheroleoftheCommissiontogiveadvice,recommendationsandorganizediscussionwiththestakeholderssoastofosterthedevelopmentofthemediasector,inparticularclause(j)“Organizingmediaactivitiestoelevatethestatusofmediaprofession,trainingandqualifyingmediapeople,conductingstudiesandresearchesaswellasholdingconferences,seminars,festivalsandotheractivities.”Wenotethisisaveryimportantrole,whichrequiresadequatefundingandwehopetheCommissionwillbegiventhenecessaryadditionalresources.

AnumberofamendmentsarehoweverstillnecessarytobringtheroleoftheCommissionclosertointernationalstandards.

Underinternationalstandards,isitisnotsufficientjusttoprotectfreedomofinformation,freedomofexpressionandpluralismbutsomepositiveactionshouldalsobetakentoencourageandpromotethoserights.ThisroleshouldbeexplicitlygiventotheCommissionbylaw,byextendingtheCommission’soverallresponsibilityassetoutin(a):

• AdditionofadutytopromoteandprotectfreedomofinformationandfreedomofexpressionintheJordanianmediasector;

• AdditionofadutytopromoteandprotectpluralismoftheJordanianmediasector;• Additionofadutytodevelopthequalityofthemediaservicesandensuretheyappealto

thetastesandinterestsoftheJordaniancitizensandofthesocietyasawholeandinitsdiversity;

• PossibleadditionofarequestfortheCommissiontoprepare,followingapublicconsultation,andtopublishareportonthemedialandscapeandtomake


recommendationstothegovernmentandparliament(whichcouldbeanalternativetotheamendmentproposedinthedraftbill).

Wewelcomethenewclause(g)wherebytheCommissionisrequestedto,“implementthegeneralmediapolicyasendorsedbythegovernment”.ThisishoweveronlyaroleininrelationtoimplementingthepolicydeterminedbytheGovernment,whilsttheCommissioncouldplayapro-activeroleinhelpingthegovernmentdevelopthispolicy,includingbymakingproposalsonpotentialactions.Ofcourse,theGovernmentandParliamentwillkeepthedecision-makingpower,buttheirdecisionswouldbeveryhelpfullyinformedandpreparedbytheCommissionusingtheirknowledgeofthesectoranddiscussionswiththestakeholders.Whilenothinginthetextprecludesthisfromhappening,itwouldbedesirabletomaketwoamendments:(a)formallyrequesttheGovernmenttoconsulttheCommissionbeforemakinganyproposalstoamendthelegislation,andtohaveregardstoitscomments;and(b)togivetherightfortheCommissiontomakeproposalstotheGovernment.Allsuchcommentsshouldbepublished.

Clause(b)shouldbesubjecttoacompleteoverhaulasitgivestotheCommissionaveryvagueandlimitedrolethatisonlytostudythelicenseapplications.TheprovisionsprovidingforissuanceoflicensesbytheCouncilofMinistersgototheheartofindependentbroadcastregulationandareparticularlyproblematic.Broadcastlicensesarethekeyinstrumentthroughwhichthebroadcastmediaareregulated,andifthepowertograntandadministerlicensesisnotvestedexclusivelyinanindependentregulatorybody,therecanbenoindependentmedia.Whilethelawshouldgivedirectionastothelicensingregime,thecriteriatoselectapplicants,andkeyelementsofthelicenses,theselectionitselfshouldbetheresponsibilityoftheindependentCommission.

Subsectionbshouldthereforebereviewedsoastoencompassthefollowingduties:

• Establishingthelicensingregime,accordingtothekeycriteriasetinthelaw;• Organizingtheapplicationprocessforavailablelicenses,and• Whereappropriateselectingamongstthecandidatesthroughanopenandtransparent

process.

Itisimportanttonotethatforlicensesusingterrestrialradiospectrum,thescarcityofthisresourcemeansthatitisverylikelytherewillbeseveralcandidatesforagivenlicense.Inthatcase,theselectionprocessisessentialandshouldbeentirelylefttotheCommissionprovideditcomplieswithgeneraldirectionsgivenbylawforinstancetoensurethattheselectioncriteriareflectsthebestinterestsofcitizensandthesociety.Itiscustomarytohaveprovisionsaimedatconsideringthevarietyandrichnessofthecontentofferedtothepublicbytheselectedservicesasawhole,thebalancebetweennationalandregionalorlocalservices,thedutytoensurethereisenoughcontentaccessibletopeoplewithhearingorvisualdisabilities(provisionofaccessservicessuchassubtitling,signingandaudiodescription),theinvolvementineducationandtraining,thepromotionofartsandculture,etc.

Allthesecriteriaandobjectivesshouldhavebeendeterminedfollowingapublicdebate,andbesetoutbylaw.Howeverinthecaseofservicesmadeavailabletothepublicbysatelliteorcable,whereitisrolledout,scarcityisnolongeranissueandmanymorelicenseescouldbegranted,andonlysubjecttorespectofminimalobligations.


Thelegislationshouldprovidefordifferenttypesoflicenses:

• Forterrestriallicenses,whereinexchangefortherighttouseascarcepublicresource,licensescanbegivenadditional“positive”obligationsforinstancetosupportlocalcultureandlocalproduction,promotemusicandartsprograms,providenewsbulletins,etc.,commissionorproducechildren'sprograms,etc.Withinthisbroadcategorythereshouldbesubtypes,forlocalandcommunityservices,whichcouldhavedifferenttypesofobligations.

• Forsatelliteandcablelicenses,these“positive”obligationsshouldbemorelimited.

Alllicensesshouldhoweverbesubjecttothesamerequirementsinmatterofrespectoftheindividuals,protectionofminors,interdictionofincitationtocrimehatredandviolence,etc.

Clause(c)ThisclauseshouldcontaintheprinciplethattheCommissionshouldmonitortherespectbylicenseesoftheLawandoftheirlicensingconditions.AgeneralprovisionshouldbeinsertedgivingtotheCommissionthepowerofenforcingtheregulationandlicenses,tobedefinedatalaterstageinthelaw.

Clause(d)shouldbeannulledasthereshouldbenopriorcensorship.ThispointindiscussedintheanalysisofArticles26and27whichdealwithrecordedmaterial.

Clause(h)istoovague.ItcouldbearequestfortheCommissiontoprepare,followingapublicconsultation,andtopublishareportonthemedialandscapeandtomakerecommendationstotheGovernmentandParliament.

Clause(j)TheconstitutionoftheCommissionismostwelcome.Inanycase,thecomposition,appointmentmechanismandtheroleofthisCommissionshouldbesetoutintheLaw.ThisCommissionshouldbeabletomakedecisionsandnotonlyhaveaconsultativerole,asseemsthecase.However,wheretheregulatorisofamulti-membermodeltype,followingourrecommendationstoguaranteeitsexpertiseandindependence,itwouldbeacceptablefortheCommissiontohaveonlyaconsultativerole,leavingthedecisiontotheregulator.

Itwouldalsobenecessarytoinsert,fortheavoidanceofdoubt,andtorestatetheprinciple,ageneralprovisiontothiseffectofstatingthattheCommissionmustbefreeofanyinterferencewhenfulfillingitsmissions.ThelawshouldmakeitanoffenseforapersonoranentitytoseektoinfluencethemembersorstaffoftheMediaCommissioninthedischargeoftheirduties,ortointerferewiththeactivitiesoftheMediaCommission,exceptasspecificallyprovidedforbylaw.Suchattemptshouldberepressedbylawaswithanyotherattempttobribeapublicofficial.

Article5dealswiththeroleoftheTRCandthedutyoftheCommissiontoadheretoitsdecisions.Becauseoftheverycloselinkbetweenthespectrumlicenseandthebroadcastinglicense,thecoordinationbetweenbothcommissionsisessential.ThisArticledoesnotsetoutclearlyenoughhowtheywillco-ordinatetheirwork.Itdoesnotmakeclearwhathappensifabroadcastinglicenseedoes


notcomplywiththeobligationsofitsspectrumlicenseasgrantedbytheTRC.ItdoesnotmakecleartherespectiveroleofeachCommissionindevelopinglicensesforapplicantsthatintendtocoveraspecificareaofthecountry

Thefollowingrecommendationswouldhelpclarifythecollaborationbetweenthetwoauthorities:

OncetheTRChasestablishedwhichspectrumisreservedforbroadcasting,itwillrequesttheMediaCommissiontoproposehowbesttoplanthisspectruminordertomaximizeitsefficientuse.Sincethesamebandwidthcouldbeusedtoprovideeitherforasinglenation-widelicenseoraforasmallnumberofregionallicensesorforamuchbiggernumberoflocallicenses,withverysignificantimpactonthemedialandscapeinthecountry,thisdetailedplanshouldbedecidedbytheMediaCommission.

IftheTRCfindsthatabroadcastinglicenseisnotcomplyingwiththetechnicalconditionsofitsspectrumlicense,itshouldlettheMediaCommissionknowsothatthiscommissioncanbepartofthediscussionswiththatlicenseeandhelpfindasolution.Inanycase,theirbroaderroleandthefacttheymustdealwithspectrumusedfortelecomsandbroadcastingbutalsobythedefense,police,ambulanceandawidenumberofuses,meansthatauthoritiesinchargeofspectrumregulationareusuallylessornotindependentofgovernment.Thereisthereforeariskthatthegrantandremovalofaspectrumlicensecouldbeusedasameansofcontrollingbroadcastinglicensees.

Toavoidtherisk,ortheperceptionofsucharisk,thelegislationcouldprovideforthefollowingmechanism:

OncetheTRChasdetermined,afterconsultationwiththeMediaCommission,thenumberandconditionsofspectrumlicenses,theCommissionselects,onthemeritsoftheirbroadcastinglicenseapplication,thosewhowillbegivenaccesstoaterrestrialspectrumlicense(ortoashareofitinthecaseofadigitalmultiplexlicense).TheTRCautomaticallygrantstherelevantspectrumlicensetothebroadcastinglicenseeselectedbytheMediaCommissionandmonitorscompliancewithitstechnicalconditions.ShouldanyproblemarisetheTRCwillask,inwritingandpublicly,theMediaCommissiontowarnthelicenseeandtakeactionaccordingtotheenforcementmechanismsetoutbythe(spectrum)law.Ifthelicenseecontinuestodisregarditstechnicalobligationsasperthespectrumlicense,theCommissionmaydecide,incompliancewiththelaw,toremoveitsbroadcastinglicenseandrequesttheTRCtodothesameforthecorrespondingspectrumlicense.

Themechanismwillbeslightlydifferentinthecaseofmultiplexescarryingseveraldifferentbroadcastinglicensees,wheretheMediaCommissionandtheTRCwillworktogethertofindthesolutionwhichensuresonlythoseresponsiblefornon-compliancearetolosetheirrighttobroadcast.

ItisthereforerecommendedthatArticle5isamendedfollowingtheserecommendations,inthelightoffurtherdiscussionswithbothCommissions.ThiswouldalsoimplyamendmentstoArticle19toensureduecoordinationbetweentheTRC,inchargeofradiospectrum,andtheMediaCommission(whichinanycasewillneedtobeamendedfollowingthetransferoflicensingresponsibilitiesfromthe


ministerstotheCommission).

Article8dealswiththeresponsibilitiesofthedirector.Itshouldbesignificantlyamended.Asexplainedabove,theseshouldbetheresponsibilitiesofthemultimembercommissionandnotasingleindividual.TheCommissionshouldbethebodygranting,monitoringandremovinglicenses,ratherthansimplyadvisingtheministryonthematter.

TheconditionsandselectioncriteriashouldbesetoutintheLaw.Wherebylawsarenecessary,theircontentshouldbeveryclearlysetoutsothattheycannothavetheeffectofamendingtheLawinasubstantivemanner.

Independencedoesnotmeanlackofaccountability,onthecontrarythemoreindependentandpowerfulabodyis,themoreaccountabletothecitizensitmustbe.Thisaccountabilitydutycouldbefulfilledbytheestablishmentofanannualpublicreport,senttotheMinisteranddiscussedwiththeMinister’soffice,aswellasinParliament,andwiththemediasector.Thiswouldnotonlysetoutprogressanddifficultiesbutalsomakeproposalsforfurtheradvancement.TheLawshouldalsogivetotheCommissiontherightandthedutytoconsultwithstakeholdersandthepublic.

ThepowersoftheCommissioninmattersofeditorialstandardsandofadvertisingaretoovaguelydescribed.Thisshouldbethesubjectofadebatewiththesectortodeterminewhatisappropriate.Itisgoodpracticetolimitthetimedevotedtoadvertisingtoamaximumofafifthorafourthofascheduling.ButasaminimumtheCommissionshouldberequestedtoensurethatadvertisingandcommercialsareclearlyidentifiedassuchsothattherecanbenoconfusionforthepublic.

ThefeesandchargesshouldbesetbytheCommissionunderaratecardapprovedbytheMinistry.Sinceitispublicmoney,itisabsolutelyfairthattheratecarditselfshouldbeapprovedbytheMinistry,afterconsultationwiththeCommission.Howeveritsapplicationtoindividuallicenseesshouldbedoneinafairandnon-discriminatoryway,withoutanydiscretionlefttotheMinistry.

Thepowertocloseanunlicensedchannel,addedin2015,isstandard,butappropriateguaranteesshouldbeadded,toguaranteethattheunlicensedserviceisgivenappropriatenoticeandpossibilitytoobtainalicense,andunderthecourts’control.

Wenotethatsuchguaranteesexistasregardsthesecondnewclause,althoughthetotalinterdictionofpornographiccontentisattheleastcontroversial,provideditisreservedtoadultsandappropriatelyencrypted.Thereisnospecificdutytoensureawiderangeofprogramsaremadeaccessibletothosewithhearingorvisualdisabilities.

TheLawshouldthereforegivethefollowingdutiesandresponsibilitiestotheCommission:

• ManagingtheCommissionandsupervisingitsaffairs;• CoordinatingwiththerelevantauthoritiesinassistingtheCommissiontocarryoutitsduties;


• FollowinguptheexecutionoftheGeneralMediaPolicyandthenationalplansdeterminedthereunder,reporting,atleastonceayear,ontheprogresstowardsthispolicyandrecommendanyamendmentsornewmeasures.TheannualreportoftheCommissiontobesubjecttoapublicdebatewithstakeholdersandlicensees,andapublicdebateinParliament;

• Invitingapplications,granting,renewing,amendingorcancellingbroadcastinglicensesundertheprovisionsofthisLawandrelevantbylaws;

• SigningthecontractsandagreementsconcludedbytheCommissionwithothersincludingthelicensingagreements;

• PreparingthedraftbudgetandfinalaccountsoftheCommission,andreferringittotheMinistertobesubmittedtotheParliamentforratification;

• SetthechargesandfeesfortheservicesprovidedbytheCommissionsothattheyarefair,equitableandtransparent,setatareasonablelevelanddonotestablishunduediscriminationbetweenlicensees;

• TakingtheproperprocedurestoforcethelicenseestocomplywiththelicensingtermsandtoadheretotheAudiovisualMediaGeneralPolicy;

• Consideringthecomplaintspresentedbythepublicagainstthelicensees,andtakingtheproperproceduresforthatrespect.TheCommission’sannualreportwillcontainasectiononthecomplaintsreceivedandhowtheyhavebeenresolved;

• Consideringthecomplaintspresentedbyonelicenseeagainstanother,orbyalicenseeintheaudiovisualmediasectoragainstanotherinthetelecommunicationssectororviceversa;aswellastakingtherequiredproceduresandissuingtheproperdecisionsinthatregard,incoordinationwiththespecializedauthorities,withtheexceptionoffinancialdisputes.TheCommission’sannualreportwillcontainasectiononthecomplaintsreceivedandhowtheyhavebeenresolved,subjecttotherespectofbusinesssecretswhereappropriate;

• Issuingtheinstructionsoftheprograms,advertisementsandcommercials,includingforinstanceamaximumnumberofminutesperhourdevotedtocommercials(nomorethan12),rulesensuringthatsuchcommercialsareveryclearlylabeledandseparatedfromtherestoftheprograms;

• Productioncodes(afterconsultationwiththeindustry)settingouteditorialandtechnicalstandardswhichlicenseesshouldcomplywith.Thisshouldincludearequirementthatasufficientnumberandvarietyofprogramsbroadcastinthelicensedservicesaremadeaccessibletopeoplewithhearingorsightimpairmentsthroughaudiodescription,signingandsubtitling;

• ExecutinganyassignmentsordutiesentrustedbytheMinisterandrelatedtotheimplementationoftheprovisionsofthisLaw,providingthatthesedutiesarecompatiblewithitsindependence;

• Closinganyunlicensedsatellitechannelorradiostationorshowroom,whenthepersonresponsibleforthisservicehasnotcomplied,withinonemonth,withtheCommission’srequesttoapplyforalicense;

• Suspendthebroadcastofanyitemorprograminexceptionalcaseswherenationalsecurityorsocietalpeaceareatjeopardyorthatbroadcastpornographicmaterialwhichcouldbeaccessedbyminors,afterobtainingajudicialwarrantissuedbythecompetentjudge.Intheeventofanemergency,theCommissionmaysuspendthebroadcastbeforeobtainingthejudicialwarrant


provideditrequestsitassoonasitispractical.

4.2.3 TheCommission’sresources

Thereisnoindependencewithoutadequateresources,guaranteedoverafixedperiod,anddeterminedinawaywhichensurestheregulatorwillbeabletosetoutwhichresourcesheneedstofulfillhismission,andobtainthem.Theriskthatagovernmentdecreasestheresourcesofaregulatorwhichitconsidersastooindependentisalwayspresent.Articles10to14thatdealwiththeadministrativeandtechnicalaspectsoftheresourcingoftheCommissiondonotgiveenoughassuranceinthematter.Theyshouldincludetheprincipleofadequate,guaranteedandsufficientfundingaswellasstaffing.

Forinstance,RecommendationNo.23oftheCouncilofEurope’sCommitteeofMinisters15states,initsArticle9-11,“Arrangementsforthefundingofregulatoryauthorities-anotherkeyelementintheirindependence–shouldbespecifiedinlawinaccordancewithaclearlydefinedplan,withreferencetotheestimatedcostoftheregulatoryauthorities’activities,soastoallowthemtocarryouttheirfunctionsfullyandindependently.10.Publicauthoritiesshouldnotusetheirfinancialdecision-makingpowertointerferewiththeindependenceofregulatoryauthorities.Furthermore,recoursetotheservicesorexpertiseofthenationaladministrationorthirdpartiesshouldnotaffecttheirindependence.11.Fundingarrangementsshouldtakeadvantage,whereappropriate,mechanismswhichdonotdependonad-hocdecision-makingofpublicorprivatebodies.”

Thefollowingmechanismcouldberecommended:

TheCommissionwritesandapplicationforresources,(adraftbudget)explaininghowitintendstofulfillitsmissionsandwhichresourcesitneeds,includingappropriatestaffing,training,equipmentformonitoring,fundingforadequateconsultationandresearch.ThisdraftbudgetwillbepresentedtotheMinistryfordiscussion,whichwillmakerecommendations.BoththedraftbudgetandtheMinistry’sobservationsshouldthenbediscussedabytheappropriatecommitteeoftheParliamentwhichwillmakeadecision,andensuretheadequatebudgetisapprovedaccordingtothegeneralrules.Thebudgetwillbefixedfortheperiod.

ThebudgetwillbemadeofgrantsfromtheTreasury’sgeneralfunds,butalsoofthefeespaidbythelicensees.Itisappropriatetoensurethatregulatedauthoritiescontributetothecostofregulation,butthisshouldbedoneinawaywhichensurestheregulatordoesnotonlyrelyontheindustryforitsexistence,orthattheregulatorhastoincreasethefees(andworse,givefines)tomaintainitsresourcesatanappropriatelevel.Thebudgetshouldthereforebedeterminedunderobjectivecriteria.

AllmoniesraisedbytheregulatorinfinesandlicensesshouldbelessthantheKingdom’sTreasuryhastofindbutshouldnotchangethetotalamountavailablefortheregulator.Whentheregulatorisgiven

15RecommendationNo.23oftheCouncilofEurope’sCommitteeofMinisterstoMemberStates,ontheIndependenceandfunctionsofRegulatoryAuthoritiesfortheBroadcastingSector,20December2000.


anyadditionalduty,relevantgrantsshouldbedeterminedandapprovedinthesamewayasthebudget.Thereshouldbenoadditionalmoneygivenbythegovernmenttotheregulatorunlessthedueprocessisfollowed.

WenotethatArticle10providesfortheabilityfortheCommissiontoreceivedonationsandgratuities.Whilstthiscanbepossibleandlegitimateinsomecircumstances,particularcautionshouldbetaken.Firstifthebudgetisappropriate,thereshouldbenoneedfordonations;however,forinstanceawealthyindividualoracompanycouldwanttheCommissions’helpinsupportingatrainingprogramorpromotingmedialiteracytoahigherextentthanallowedbytheCommission’sbudget.Butsecond,thereistheriskthatthesedonationsjeopardizetheCommission’sindependence.Allsuchdonationsshouldthereforebedeclared.Itcouldfurtherbestatedthatnosuchdonationscouldbeacceptedformanyindividualorcompanywithaninterestinthemediasector.AtleasttheacceptanceofsuchdonationsshouldbesubjecttoParliamentarycommitteeapproval.

TherearenocommentsonArticles12,13and14.

4.3 Thelicensingregime

TherearenocommentsonArticle15.

ClausesaandbofArticle16havethemeritsofgivingsomedetailsastothelicensingprocess.Howevertheyareveryincompleteinthat:

• Theyseemtopreventassociationsfromholdingalicense;• Theydonotprovideforsufficientinformationastothecontentandthequalityoftheservices

tobelicensed.WewouldthereforerecommendtheadditionofanewclauseinArticle16tothiseffect,requiringtheapplicanttoprovidedetailedstatementsdescribingitsproposedservice,includingtypesofprogramsproducedorcommissioned,budgetandhoursofprogrammingallocatedtospecificgenres;

• Thereisnothingtopreventacompanyoranindividualtoholdtoomanylicenseswhenthiscanbedetrimentaltopluralism.WewouldrecommendtheadditionofanewclauseinArticle16tothiseffectrequiringtheapplicanttoprovideaccurateinformationrelatedtoanyothermediainterestorbroadcastinglicensetheapplicant’sshareholdersorpartnersmayhaveintheKingdomorabroad(aninteresttobedescribedaseithertheholdingofmorethanfivepercentofthecapital,oraremunerationreceivedforemploymentorotherservices).

• ThereisnopossibilityfortheCommissiontotakeintoaccountwhengrantingaspecificlicensetheimpactitwouldhaveontheoveralllandscape:pluralityofmediaownership,diversityofviewpointswhicharelegitimateconcernstheCommissionshouldbeallowedtohaveregardto;

• Inaddition,Article16cshouldbeentirelyredraftedtogivefullresponsibilitytotheCommissionfortheselectionandlicensingprocess.Ofcourse,theCommission’sdecisionsshouldbesubjecttothesamerulesasotherpublicauthoritiesinmatterofappeals(publicationofthedecisionwithitsgrounds).

Tosummarize,theLawshouldprovidethatwhenassessingthemeritsofanapplication,theCommission


shouldhaveregardto(a)Thefollowingduties:• Promoteawiderangeofviewpointswhichfairlyreflectsthediversityofthepopulation;• Preventundueconcentrationofownership;and

(b)Thefollowingcriteria:• Quality,breadthandrangeofservicesandprogramsprovidedtothepublic,including

entertainment,sports,educativeprogramsforbothchildrenandadults,andprogramsaimedatfosteringthedemocraticdebate;

• Measuresaimingatensuringprotectionofminorsfrompotentiallyharmfulcontent;• Measuresaimingatensuringawiderangeofprogramsaremadeavailabletothosewithsightor

hearingimpairmentsthroughappropriatesubtitling,signingandaudiodescription;• Abilitytopromotenationalandregionalculture,artsandtraditions;• MeasuresproposedtosupportthedevelopmentofanaudiovisualproductionindustryinJordan;• Measuresproposedtoguaranteetheavailabilityofimpartialinformationofinternational,

nationalandlocalnature,inparticularmeasuresprotectingtheindependenceofjournalists;• Measuresproposedtoensureadequatestaffing,bothinnumbedandasregardstheirskills;• Financialcapacityandstrengthofthebusinessplan,overthedurationofthelicense;• Technicalcapacityoftheapplicantanditsabilitytouseadequateequipment.

Article17setsoutthefinancialconditionstobemetbytheapplicant.Clause(a)thatdealswithbankruptcyisfine,butthenotionofperformancebondisnotclearenough,andcouldleadtopreventsmallersizeapplicantsfromapplyingandstartingaservice.Whilstitislegitimatetoensureapplicantshavesufficientfundingtodeliverontheirpromises,thelevel,orhowitwillbecalculated,shouldbeclearlysetoutbylaw.Inanycase,thelevelshouldbefairandnon-discriminatory.Therearetwofurthercomments,whichrelatetotherelevantprovisionsoftheBylawandproposedamendments.ThecombinationofthedefinitionofArticle2andnewproposedArticle5seemtomeanthatthesameservicesimulcast/rebroadcastonterrestrial,satelliteandinternetshouldhavethreedifferentlicensesandpaythreetimesthefees.Thisisnotright.Rathertheserviceshouldhaveonelicense(fortheterrestrialservice)enablingthemtosimulcasttheserviceonsatelliteatthesameprice.

Thecombinationoftheveryhighleveloffeesforlicenses,therequirementtohavesignificantsocialcapitalinadditiontothelevelofperformancebondscouldbeadeterrent.Thesefeesshouldbereviewedtobelinkedtothelicensee’sturnover,butalsotoprovideformuchlowerfeesfornon-forprofitservices(community/thirdsector).

ThenewArticle3Bprovidesthatneithertheapplicationfeenortheannualfeeshouldbereturnedifthe


licenseisnotgranted.Whilstitisabsolutelynormaltomaintaintheapplicationfeeforalicensewhichisnotgranted,itseemstoomuchtoalsokeepthefullannualfee.

Article18dealswiththegrantingandtransferoflicensesandshouldbeamendedtoprovidefortheCommissionratherthantheMinistertobetheleadingauthority.

Clausesaandb:Wewelcometheamendmentmadein2015toprovideforjustification,andrightofappeals,ofadecisiontorefusethegrantingofalicense.However,sincetheregulatorinsteadoftheGovernmentshouldbefullyresponsibleforthelicensing,Article18aandbshouldberedrafted.

Weunderstandthereisafearthatanon-“fitandproper”personisgivenalicense,andthat,forthisreasontheCouncilofMinisterswantstoretainarightofvetoonthegrantingoflicenses.EvenifthisuseofsuchavetoissubjectedtoParliament’sapproval,thisisnotbestpractice.Thispower,whichexistedforinstanceintheUKlegislation,hasbeenremovedwiththeCommunicationsAct2003,astheGovernmentbelievedthatthecreationofastrongandindependentmulti-memberregulatorwouldmakesuchanoccurrencevirtuallyimpossible.InthemostunlikelyeventtheCommissionwouldevergrantalicensetoapersonwhichtheCouncildeemsnotfitandproper,itwouldbeopentoanymemberoftheGovernmentorParliamenttochallengetheCommission’sdecisionincourts.

Thefollowingmechanismcouldthereforeberecommended:

• TheCommissionpublishesitsdecisiontoapprovethegranting,renewal,modifyingor

cancellationofabroadcastinglicensetoanamedapplicant,aswellastherationaleforitsdecisionandthelicenseitplanstoissue.

• Thisdecisionwillbecomedefinitiveaftertwoweeksunlessitissuccessfullychallengedincourt.Itisappropriatetoprovidethatlicensescannotbetransferredorsoldwithouttheconsentoftheregulator,whichcanonlybegivenifthenewapplicantisnotdisqualifiedandiscommittedtocomplywiththesamelicenseobligations.Wethereforerecommendtokeepsectioncbutamendedasbelow.

SectioneseekstoensurealevelplayingfieldbetweenJordanianandforeignchannels,aswellasproperregulationofallsatellitechannelsaimedatthekingdom’saudiences.Itshouldhoweverbedevelopedinparticularsoas

• tocreatealighterregulationregimeforsatellitechannelssincetheydonotuseascarcepublicresource.WenoteonlytheTRCnottheMCisinvolvedinthelicensing.

• todeterminewhichchannelswillbeconsideredas“aimedatJordanianaudiences• todeterminehowthisprovisionwillbeenforcedinpractice”.

CommentshavealreadybeenprovidedonArticle19above.

Article20providesforthecontentofthelicense.Itisbroadlyadequatebutcouldbeenrichedtoensureitcoversallessentialmattersandleaveslessroomfornegotiationwiththelicenseesonkeymatters.


Inparticular,thedurationofthelicenseandtheconditionsforrenewal,ifpermittedshouldbesetoutinthisarticle.Twocasesshouldbeenvisaged;whenthenumberofpossiblelicensesisfinite(terrestrialTV,FMradio)andwhenthereisvirtuallynolimittothenumberoflicensesthatmaybegranted(satellite).

Forsatellitelicenses,itisdesirabletoprovideforanindefinitedurationsubjecttoprovisionsenablingtheregulatortoamendthelicenseincompliancewithnewlawsandbylaws,andtocancelthelicenseshouldthelicenseenotmeetitsobligations(asprovidedforinthelaw).

Forterrestriallicenses,grantingindefiniteslicenseswouldnotbefairfornewentrants;norwoulditbeanefficientuseofthepublicandscarceresource;anindefinitelicensewouldbeakintoaprivatizationofapublicgood.Suchlicensesshouldthereforebeforafiniteterm,setbylaw.Thedurationshouldbesufficienttoenableanappropriatereturnoninvestment,atleast7years,althoughshorterdurationscouldbeagreed,forinstancewiththirdtierlicenseeswhowanttoprovideaservicelimitedintimebynature(e.g.aradioserviceforarefugeecamp).

Thereshouldalsobeprovisionstodealwiththecomingofalicensetotheendofitsterm.Thisisaverycomplexissue.Ontheonehand,therecouldbeaneedforenablingnewentrantstosubmitproposalsandterrestriallicensesshouldnotbeindefiniteinpractice;ontheotherhand,wherealicenseehasdoneagoodjob,hasalwayscompliedwithitsobligationsandisappreciatedbyaudiences,itshouldbeallowedtocontinueprovidingtheserviceandshouldnotloseitsbusiness.Onemightarguethatinrealityiflicensesareissuedforthedurationof7to12years,theworldwillhavechanged.

Oneoptionwouldbetoprovidethatoneyearbeforethetermofitslicense,theregulator,afterpublicconsultationsuggestsamendmentstotheconditionsofthelicensetheythinkappropriatetoincreasethequalityoftheserviceandpromotethepublicinterest.Theincumbentwillhavetheirlicenserenewedifthenewconditionsareaccepted.Otherwise,anewopenselectionwillbeorganized,towhichtheincumbentwillbeenabledtotakepart,butincompetitionwithotherapplicants.

Thefeesshouldbeofanominalnature,andinanycasehigherthannecessarytothecostofregulation.ThisiswithoutprejudiceofanypaymenttotheTRCforaccesstoaspectrumlicensenorofanytaxesonbenefitsmadebythelicensees,inaccordancewiththegeneraltaxationofbusinesses.

Someprovisionscouldbeclarifiedtoavoidgivingopen-endedpowerstotheregulator,andpreventinganyundueinterferenceintheconductofthebroadcaster’sbusinessorcontentofitsservice.Agoodmeansofensuringthisdoesnothappenistoprovideforallsuchdirectionstobepublished,subjecttoconsultationwiththestakeholders,andbeapplicabletoallinthesamesituation.

Whilstweunderstandthespiritofsubsectionm,itcouldbeclarifiedtoavoidhavingachillingeffectonbroadcastersandjournalistsandcreateaself-censorshipeffect.Onesolutionwouldbetodeletethose,andrelyonthegeneraldutytocomplywithalllawstoensurebroadcastersdonotbroadcastmaterial


whichwouldfallundercriminallaw.Ifhowever,theseprovisionsweretobemaintained,itcouldbeusefultoaddaprovisionprovidingforadequateprotectionofchildrensothattheyarenotexposedtocontentwhichcouldbedetrimentaltothem(violenceandcontentofasexualnature).Itwouldalsobenecessarytoaddaprovisiontoavoidasmuchaspossiblethechillingeffect.

Tosummarize,theprovisionstobeinsertedinthelawtodeterminetheconditionsofthelicenseanditscontentcouldbeasfollows.

Durationandrenewalofthelicense

- Satellitelicenses:indefinitesubjecttocompliancewiththelicensee’sobligationsandtheabilityfortheCommissiontoamendthelicenseincompliancewithnewlaw.

- Terrestriallicenses:grantedforaperiodof7(to12)years.

Oneyearbeforeitsterm,thecommissionshall,afterconsultationwiththelicensee,stakeholdersandthepublic,proposeanyamendmentstotheconditionsofthelicenseitthinksfittopromotetheprinciplesandobjectivessetoutbylaw.Ifthelicenseeacceptstheserevisedconditionswithinaperiodofthreemonths,hewillbegrantedanewlicenseforafurtherperiodof7(to12)years.Otherwise,hewillloseitslicenseattheendofitsterm.Assoonasthecommissionhasnotedtherefusaloftheincumbentlicenseetoaccepttheserevisedconditions,itwillstartthere-advertisingandselectionprocess.Conditionsofthelicense:thelawshouldprovidethatthelicensesshouldcontainconditionsasfollows

i. Financialobligationsa. FeesduetotheCommissionagainstgrantingthebroadcastinglicense,aswellas

itsvalidityandrenewalfeesandanyfinancialrightspayablebythelicense.Thefeesshouldbesuchastoonlycoverthecostofregulationandshouldbesetatthesamelevelforeachtypeoflicensees.

b. LevelofanyfinespayablebythelicenseetotheCommissionincaseofhisbreachofthetermsofbroadcastinglicense.

ii. Thelicensee’scommitmentsinrelationtoitsrelationwiththecommissiona. tocomplywiththetermsofthelicensingagreementaswellasanyinstructionsor

decisionsissuedbythecommissionfollowingconsultationwiththelicensee,otheraffectedpartiesandthepublic,andprovidedthesedecisionsdonotrepresentasubstantialchangeinthelicenseandaretakeninordertofosterthepublicinterest;

b. toprovidethefacilitiesrequiredbythecompetentauthoritiestopracticetheirresponsibilities;

c. toprovideinformationanddetailsrelatedtobroadcastingandre-broadcastingworksrequiredbythecommissionfromtimetotimeorperiodically,whichthecommissionofficialsshouldbeenabledtoexaminetochecktheauthenticityof


theseinformationanddetails;d. tocooperatewiththeCommissionandtheotherlicenseesintheAudiovisual

MediaSectoraswellasthetelecommunicationsector.e. Thelicenseshouldalsoprovideforthemannerofresolvinganydisputearising

betweentheCommissionandthelicensee.;

iii. Technicalmattersa. therightofthelicenseetoestablishandinstallthetowersandassemblethe

equipment,appliancesandstationsrequiredforthebroadcastingandre-broadcastingworksinsidethebuildingsandlandsownedbyothers;aswellastheproceduresforthesameandtheprinciplesandrulesofagreementwiththeproprietorincludingtheproprietor’srighttorequestforcompensation;

b. thelicensee’scommitmenttocomplywiththeCommission'stechnicalspecificationsinrelationtobroadcastandre-broadcastingequipment;

c. thelicensee’scommitmenttoprovidetherequirementsfortransmissionandretransmissionworksintermsofhumanresources,programs,places,fixtures,equipment,studiosandstations.

iv. Contentoftheservice.Thelicenseshouldsetoutthelicensee’scommitment

a. tohonortheliterary,technicalandintellectualrightsofothers;b. torespecthumandignityandpersonality,freedomandrightsofothers,the

pluralisticnatureofexpressionofthoughtsandideas;c. nottobroadcastorre-broadcastallthatwhichmayviolatepublicdecency,incite

hatredorterrorismorviolence,orincitesectarianorracialdisputesoranythingthatmayunderminethenationalsecurity;

d. toensurethatnewsonwhateverformisreportedwithdueaccuracyandpresentedwithdueimpartiality;

e. nottobroadcastanymediaitemsorcommercialsthatmightmisleadpublic,blackmailanddeceivethem;

f. toensurethatcontentwhichmightseriouslyimpairthephysical,mentalormoraldevelopmentofminorsisonlymadeavailableinsuchawayastoensurethatminorswillnotnormallyhearorseeit.

v. Generalcommitmenttocontributetothedevelopmentofthenationalindustriespertainingtothenationalproductionofaudioandvisualmaterials.

TherearenospecificcommentsonArticle21.

Article22enablesthegovernmenttoexemptpublicinstitutionsfromthelicensingfeeprovidedtheydonotbroadcastcommercials.Whilstthisisacceptable,caremustbetakentoavoidallavailablefrequenciestobetakenupbypublicbodies.Another,moretransparentoptionshouldbetorequestpublicbodiestoparthesamechargesasprivatecompanies,buttoensurethattheyareappropriatelyfunded.Thisoptionwillgivethemanincentivewhentheyarereviewingtheirbudgetstoonlykeepalicenseifitdelivers


valueformoney.

Article23dealswiththesituationwherealicenseefailstoprovidethelicensedservice.Thisisastandardprovision,necessarytoensureanefficientuseofspectrum.Itcouldhoweverbeusefultoprovideforpriorwarningof,andappropriateconsultationwith,thelicensee.Thiswouldactasaremindertothelicensee,butsocouldgetotherpotentialapplicantstothinkoftheopportunity,andavoidlosingmoretimeshouldthelicensebere-advertised.Shouldthelicenseesnotcomplywiththeirobligations,thelicenseshouldbecancelled,andthelicensingprocessstartagain.

TherearenocommentsonArticle24asitiscommonpracticetoensurethatthepublicservicebroadcastershavesufficientaccesstospectrumandreceivetheappropriatelicenses.However,itisrecommendedthat,asaseparatepieceofwork,acompletereviewofthepublicservicebroadcastingsystemismadetoensureitsindependencefromgovernmentbutalsoitsabilitytoprovideauniversalserviceofquality,actingasareferencefortherestoftheaudiovisualsector.

Article25providesfortherighttosharematerialandequipment.Suchcooperationcanonlyleadtomorediverseapplications,comingfromlesswealthycompanies,andhelpthemspendmoremoneyonprograms.Sucharrangementsshouldhoweverthereforebeknownoftheregulatorwhichwillensuretheydonotleadtoalackofrealindependenceofalicenseevis-a-visanother,hencedecreasingpluralism.

4.4 Recordedmaterials

Articles26and27oftheLawdealwith‘software/recordedmaterials’,definedinArticle2as“anyvisualoraudibleitemorboth,recordedonanysortoftechnicalmeanssuchastapes,records,compactanddigitaldiscsaswellasothers.”Theyestablishingapriorcensorshipregimefortheimportationofmaterialsintendedforbroadcastingorcirculationthroughothermeans.Inaddition,theystatethatthebasisforapprovingtherecordedmaterialsaswellasthetermsforgrantingtheircirculationlicenseshallbedefinedunderaregulation.Itisdifficulttoadviseonthematterwithoutconsideringthecontentofthisregulation.

However,asamatterofprinciple,itisnotedthatsuchacensorshipregimeisveryunlikelytofallwithintheparameterssetbyInternationalstandardstopromotefreedomofexpressionandinformation.Asfarasrecordedmaterialscomingfromabroadtobedistributedbymeansofalicensedservicethiscontrolisentirelyunnecessarysincethelicenseewilltakefullresponsibilityforthecontentofitsservice.Theprovisionshouldbedeleted.

Whilstadeletionofthesearticleswouldbepreferred,andtheestablishmentofanaposterioricontrol,itcouldbeconsideredasacceptablethatrecordedmaterial,softwaregameswhicharesolddirectlytothepublicaresubjecttoalabelingmechanismensuringthattheycarryanyappropriateguidancetoindicateiftheyshouldnotbeaccessedbyminorsofacertainage.ThislabelingsystemshouldbedeterminedbytheCommissioninagreementwiththeindustry.


4.5 Punishment/enforcement

Itisdifficulttocommentonthelevelofthefines,assetinArticles28and29,andinthebylaw.However,asageneralrecommendation,thefinesshouldnotonlybesetasanabsolutenumberbutalsoinrelationtotheturnoverofthelicenseetohavetheirfulldeterrenteffectonthemostwealthylicenseeswithoutoverpenalizingthelessaffluentones,inparticularlocalorcommunityones.

Wewelcometheamendmentsmadein2015,whichremovetheimprisonmentpenalties.

Article30isimportantasitgivestotheCommissionsufficientpowers.However,thispowershouldbeexercisedunderjudiciarycontrol,andbelimitedinsuchawaythatitdoesnotgivetotheCommissionthepowerofgainingaccesstojournalisticsources.Thisshouldbereviewedtothiseffect.

Article31shouldbedeletedasitcouldleadtoanon-transparentandinappropriatenegotiationbetweentheCommissionandthelicensee.TheestablishmentoftheRegulationofanAudio-VisualComplaintsCommitteewhichlooksintocomplaintsifthereisaviolationofthecodeofethicsisaveryusefulandawelcomestep.TheCommitteemayrecommendthattheGeneralDirectortakesoneofthefollowing:

a. Correctionandreplayb. Apologyc. Deletingthematerialofthecomplaint

4.6 Finalprovisions

Itisappropriatetosetoutclearlyallbylawswhichneedtobetakenasaresultofthelaw,however,Article32isamereenumerationoftheforthcomingbylaws,butdoesnotgiveanyindicationastotheircontentnoradoptionprocedure.Whilstthiscouldbesufficient,itwouldbemoreappropriatetogivemoredetailastothecontentofthesebylawsinthelegislation,followingapublicconsultation.Inaddition,andimportantlytheLawshouldgivetotheCommissionakeyroleintheirdrafting.Themechanism,tobesetoutinthelaw,couldbethattheCommissionholdsconsultationswithstakeholdersandthenmakespublicrecommendationstotheMinisterforthesebylaws.Thishasbeenaddressedinourrecommendationonthelicensingregime(PartIII).


PartV:HowtoensureasuccessfuldigitalswitchoverinJordan–afewrecommendations

Anoverviewoftheinternationalmediaframeworkwouldnotbecompletewithoutmentioningradiospectrumregulation.TheInternationalTelecommunicationsUnion,theworldoldestinternationalagency,setJune2015asthedeadlinefor116AfricanandAsiancountries(includingallArabcountries)toswitchfromanaloguetodigitalbroadcasting.

DigitalbroadcastinginJordanprovidesanopportunityforcreatingnewtelevisionchannelsbothatanationalandataregionalorlocallevel.Inthiscontext,itisessentialthatJordancreatesalicensingregimewhichensuresthattheselectionofthesenewservicesistransparentandbasedonarobustselectionmechanismwhichensuresthosewhowillbestservetheinterestsoftheJordaniancitizensandofthecountryasawhole.

5.1 WhyswitchoverinJordan

Inmanycountries,thebenefitsofswitchover(themovetodigitaltelevisionenablingtoswitchoffanalogueterrestrialtelevision)aregreatforbothcitizensandtheeconomy.

Indeed,inmanycountriesthathavealreadycompletedDigitalSwitchover(DSO),orareonthevergeofcompletingit,DSOhasbroughtmanybenefits:

Tocitizens:• Moretelevisionschannelscanbecarriedinlessspectrum,withinteractivedata;• Moreelectroniccommunicationsservicescanbecarriedonfreedupfrequencies

Totheeconomy:• Freeupfrequenciesarebeingusedforincreasedavailabilityofmobilebroadband,whichwill

boosttheeconomy• TheirsaleandusehasorwillgenerateusefulproceedsforTreasury.

Broadcastersalsobenefitedfromswitchover,albeitthebenefitsgreatlyvaried.Incumbentswereabletolaunchnewservices,creatingafamilyofcomplementaryservices,buttheyalsofacedmorecompetitionwhilsthavingtofundsimulcastingtheirservicesonbothdigitalandanalogueforaperiodoftime.Fornewentrants,launchingaserviceonlyavailableonthenewdigitalterrestrialplatformwasalsodifficultwhilstconsumerswereonlygraduallytakinguptheservice.

Now,Jordaniancitizensalreadyenjoymanytelevisionschannelsthroughsatellite,whichisthemainmeansofreceivingtelevisionfortheveryvastmajorityofhouseholds(c95%),andtheonlyoneforaveryvastmajority.

Jordanianbroadcastersmightbenefitfromlowerfeesondigitalterrestrialthanonsatellite,soappropriatelysupportedduringthemigration,theycouldbenefit.


Sinceconsumerswillneedtospendmoneytopurchaseequipmentandinstallorupgradetheirantenna,theyarethemainstakeholderstoconvinceofthebenefitsofswitchovertothem.However,thenumberandvarietyofchannelswillnotbeanincentivesincetheycanalreadyreceivelotsofchannelsbothJordanianandinternational.

Inaddition,sinceveryfewpeopleactuallyrelyonterrestrialtelevision,itcouldbeenvisagedtoentirelyswitchoffanaloguetelevisionandfreeupthefrequenciesituses.

However,thereareverysignificantdownsidestothisapproach:

-Jordanianaudiovisualmediawouldbecomeentirelydependentonsatellitebroadcasting,andin

particularonasatelliteinfrastructurebasedinaforeigncountry.Inaperiodofunrest,thiscouldcreateanationalsecurityissue.

-Satellitedoesnotcover100%ofacountry;thereareareaswhereitisnotavailable,inparticular

inmountainousareas.Consumerslivingtherearelesslikelytohaveaccesstoverygoodbroadbandenablingthemtowatchtelevision,sotheycouldleftwithnotelevisionatall.

-ServicesbroadcastonsatellitehaveamuchwiderfootprintthanJordan,andthereforeface

veryhighfeesintheywanttobroadcastinternationalsports,seriesormovies.Inordertowatchthishighlyappreciatedtypeofcontent,Jordanianswillmovetoglobalchannels,deprivingJordanian-basedservicesfromvitalaudienceshareandadvertising.

Althoughcreatingasuccessfuldigitalterrestrialplatformwillbemorechallengingthaninsome

othercountries,itwillhoweverbeverybeneficiaryforJordan.Whatisabsolutelynecessaryistoplanitcarefullyandundertakeamanagedtransition.

5.2 Preparingforasuccessfulswitchover

5.2.1 Creatingtherightincentivesforconsumers

Asnotedabove,consumersarethosewhowillhavetospendtheirownmoneyandupgradetheirtelevisionandaerialswithlimitedobviousbenefits.Theywillthereforeneedeitherreallyattractivenewservices,ortobefullysupportedtomakethechange,adpotentiallyboth. ThekeydifficultyisthatthecurrentJordanianplanonlyprovidesfor4televisionsservices.Thisisabsolutelynotsufficienttoincentivizecustomerstomakethemove.

5.2.2. Creatingtherightincentivesforbroadcasters

Broadcasterscurrentlypayhighchargestoprovidetheirserviceonsatellite.Terrestrialtransmissionwillbecheaperforthem.However,theywillonlymakethemoveiftheydonotlosealltheiraudience,thatisifconsumerstakeupdigitalterrestrialtelevision(DTT).


5.2.3. Appropriatespectrumplan

Tosolvethisissue,theTRCshouldberequestedtoplanformoredigitalmultiplexes,usingtheentirespectrumthatisallocatedtoJordan.Thespectrumplanshouldensurethatthoughtheuseofthemostefficientplanninganddistributiontechnologies,anumberofnewservices,bothpublicandprivate,canbenefitfromaccesstoairwaves.Withfiveorsixmultiplexes,allornearlyallthe40orsoJordanianservicescurrentlyonsatellitecouldbeaccommodatedontheDTTplatform.ItisourunderstandingthatJordanhasonlyplannedforonemultiplexcarryingonlyfourservices.WhydoesJordannotuseitsspectrumrights?HowcouldthemovetoDTTbesuccessfulifitrequiresconsumerstopayextratoreceiveonlyfourservicestheycanalreadyreceiveonsatellite?Thisseemstobethemainissuewiththecurrentswitchoverplan.

5.3. Acarefullymanagedtransition

5.3.1. Coordinationbetweenstakeholders

Thetechnicalandsocialscaleofpreparationfordigitalswitchovershouldnotbeunderestimated.Comprehensiveandlongtermplanningwillbevital.Itisessentialtosetoutatthestartoftheprojectaseriesofactionsthatneedtobeundertakentoensuretheswitchoverfromanaloguetodigitaltelevisiontakesplace;toidentifywhoshouldleadonthoseissuesandtosettargetdatesfordelivery.

Government,regulators,broadcasters,manufacturers,retailersandconsumersallneedtogetinvolvedandworktogether.Withsomanydifferentparties,itmightbeusefulforthegovernmentappointa“digitalczar”,chosenamongsthighlyrespectedindividualswithagoodknowledgeofthemediasectorandofconsumersissues.Hisrolewillbetoleadthedevelopmentoftheabovementionedswitchoverplan,involvingallstakeholdersandensureeveryonewillimplementitinacoordinatedway.

5.3.2. Animplementationbody

Oncethisplanisfinalizedandapprovedbygovernment,itwouldbeusefultosetupanorganization(SwitchCo),toberesponsiblefortheeffectivecompletionofswitchover.Inparticular,SwitchCoshould:

• highlightthebenefitsofswitchover;• providepublicinformation;• providesupporttoconsumerswhenswitchoverstarts;• makesureproductsareclearlylabelled;• workwithalltheinterestedparties.

Manyinterestedparties-theGovernment,regulators,thebroadcasters,manufacturersandretailers-willcontinuetohaveimportantrolestoplayindeliveringswitchoverandmustagreetotheprocess.However,SwitchCoshouldbeindependentenoughsoitcanrepresenttheconsumereffectivelyandavoidconflictsofinterest.


TheGovernmentshouldmakesureSwitchCohasenoughresourcestoachieveitstasks.Itwillneedfundingforrunningcosts,spendingonmarketingandconsumersupportaroundswitchover.Fundingcouldcomefromanumberofpossiblesourcesincludingdirectpublicspendingasanadvanceonspectrumauctionproceeds.

5.3.3. Firstnecessarysteps

Televisionsets andset-topboxesAssoonaspracticable,thegovernmentshouldmandatethesaleofdigitaltelevisionandensurenomoreanalogueonlysetsaresoldinJordan,asisalreadythecaseinmanyothercountries.SettingafirmdateAtthesametime,afirmtimetableshouldbeestablishedwhichwillgivecertainty

• tobroadcastersandtransmissioncompaniesforupgradingtheirtransmissionnetwork• toconsumerswhoshouldbemadethattheiranalogueequipmentwillnolongerwork

withoutanappropriateset-topbox.• totheequipmentmarket(aerialsinstallers,televisionmanufacturers)sotheygetready

withappropriateequipmentinstoresandtrainedstaff.Thisdateshouldbefirmbutachievable.Itshouldensurethereisenoughtimeforbroadcastersandconsumerstogetready,butthereshouldbe“momentofcompulsion”,forbothconsumersandbroadcasters,wheretheservicesstop.

5.3.4. Licensingthedigitalmultiplexes

Aspectrumplanshouldbeestablished,makingsurethatthoughtheuseofthemostefficientplanninganddistributiontechnologies,anumberofnewservices,bothpublicandprivate,canbenefitfromaccesstoairwaves.

Whenthisisdone,thelicensesshouldbeallocatedfollowingatransparentselectionprocess.

Asexplainedabove,licensingdigitalterrestrialrequirestwoseparateprocesses:

1. Licensingthemultiplex16operator:itwillgetaspectrumlicenseforthefrequencyused,

butwillalsoneedalicensefromtheAudio-visualcommissiontoregulatedtheservicescarriedonit.

2. Licensingtheservicesthatgoonthemultiplexes.Thesearestandardtelevision(orradio,asDTTcancarryradiostationstoo)licenses,withtheexceptionthattheydonotrequiretheirownspectrumlicensesowillhavenorelationwiththespectrumregulator.Alltechnicaltransmissionmatterswillbedealtwithbythemultiplexlicensee.

16Amultiplexisanerror-protectedbitstreamof24,27or40megabitspersecond,whichcanbeusedforalmostanycombinationofdigitally-encodedvideo,audioanddata.Itenablesanumberofservices(between7-10Standarddefinitionto4-6Highdefinitiontelevisionchannels)tousethesamebandwidth(8MHz)asasingleanaloguechannel.


Thelawshoulddeterminewhetherthemultiplexoperator,oncelicensed,willchooseitselfhowmanyandwhichservicesitcarries(aspertheUKlaw)oriftheregulatorwilldeterminehimselfhowmanyandwhichservicesitcarries(aspertheFrenchlaw).

Thefollowingsystemcouldberecommended:

- TRCisrequiredtoplanfor5or6nationalmultiplexesandtoconsideralsocreatinglocalmultiplexes.Usingthemostuptodatetechnologiesthenationalmultiplexesshouldbeabletocarry6HighDefinition(HD)servicesor10-12StandardDserviceseach.Localmultiplexescouldalsocarryadditionallocalservices.ThechoicebetweenHDandSDcouldbelefttobroadcasters.ThemostpopularchannelscarryingsportsandmovieswouldrequireHDbutsmallerlocalservicescouldfinditeasiertobroadcastinSD.TRCmightfindusefultohavediscussionswithspectrumplanningexpertsfromothercountrieswhohavealreadycompletedswitchover.

- TRCcommunicatestotheMCthenumberofnational/localmultiplexesandavailable“channelslots”oneach.

- TheGovernmentmaydecidetopreemptonemultiplex(ortwomaximum)forpublicservice

broadcasting.(includingtheoneallocatedtoJRTVwhichmayneedtobereplanned)

- TRClaunchesaninvitationtoapplyforlicensestooperateoneorseveraloftheremainingmultiplexes(theselicenseeswillbethepeopleresponsibleforthetransmissionNetworkandtheMultiplexing/encodingsystem,enablingtocombinethedifferentservicesintoonesignaltosendovertheairwaves).Thelicenseshouldcontaintechnicalconditionsoncoverage/poweretc.aswellasconditionsensuringafairtreatmentoftheoperatorsoftheservicescarried.

- MClaunchesaninvitationtoapplyforslotsonthesemultiplexes.Theseoperatorswillreceivea

“digitalservicelicense”whichwillbeverysimilartotheiranalogueorsatelliteoneexceptforthetechnicalconditionsoncoverage.

5.4. Preparingforasuccessfulswitchover

5.4.1. Creatingtherightincentivesforconsumers

ContentandservicesAsnotedabove,consumersarethosewhowillhavetospendtheirownmoneyandupgradetheirtelevisionandaerialswithlimitedobviousbenefits.Theywillthereforeneedeitherreallyattractivenewservices,ortobefullysupportedtomakethechange,andpotentiallyboth.

Thestrictminimumrequirementistheabilitytoreceivethemostpopularservices.

Then,theabilitytoreceivebetterserviceswilldefinitelyhelp.OneargumentisthattheJordanianservicescurrentlyonsatellitestruggletobroadcastinternationalsportsandmoviesduetotheveryhighcostsofbuyingtherightsforthewholesatellitefootprintwouldnolongerfacethisrestrictiononDTT,coveringonlytheJordanianmarket.Anotherargumentcouldbetheavailabilityoflocalandcommunityservices,


butitshouldbeassumedthatthiswillnotbeamajorincentive.CommunicationplanSwithcoshouldoperateacommunicationplanensuringeveryoneisawareoftheswitchover,whenithappens,whattheyneedtodoandwhichsupportisavailabletothem.

Nationaladvertisingonpublictelevisionandonprivatebroadcastersoperatingtheswitchwillhelpgiveearlywarninganddriveoverallawarenessofswitchover.SupportforthemostvulnerableFinally,ifthegovernmentisconvincedmovingtoDTTistherightthingforthecountry,itcouldprovidesupportforconsumersonlowincome,forinstanceforaserviceprovidingconsumerswithafreesettoboxandaerialasnecessary.Conditionsforeligibilitywillneedtobedecidedbythegovernment.

Oncethevastmajorityofconsumersisequipped,followingthecommunicationcampaignandprovisionofappropriatesupportforvulnerablegroups,itwillbepossibletoswitchoffbothanalogueterrestrialchannelsandsomeofthesatelliteones.

5.4.2. Creatingtherightincentivesforbroadcasters

BroadcasterswhowishshouldbeabletoexchangetheirsatellitelicenseagainstaDTTone.Theywouldcertainlyhavetosimulcasttheservicesforaperiodoftimetoavoidlosingsatelliteaudienceswhilstterrestrialtakeupincreases.Inexchangeofstoppingtheirsatelliteserviceinordertoincentivizeconsumerstomakethemove,theycouldbeofferedreducedlicensefeesforfiveyears(asperthegradualmechanisminthedraftbylaws).Inanycasedigitalswitchoverisacomplextaskthatrequirescarefulplanningandmanagementinliaisonwithallthestakeholders.

ENDS

report on the jordanian legal - UNESCO

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