Independence of Regulatory Authority: Türkiye’s Radio and Television Supreme Council

Yıl 2023, Cilt: 16 Sayı: 1, 111 - 129, 30.06.2023

Özgün Akduran Erol Yunus Yiğit

https://doi.org/10.37093/ijsi.1208343

Öz

Independent regulatory authorities are expected to act as apolitical agents to prevent market failures in the sector they regulate. However, according to political signal theory, regulatory authorities cannot escape the interventions and control of the political power. In addition, according to capture theory, regulation is designed and operated for the benefit of dominant capital groups in the sector. This article applies both theories to the case of Türkiye’s radio and TV sector. Based on our analysis we claim that the Turkish Radio and Television Supreme Council is a unique case of a supposedly independent authority being captured by both the political power and dominant capitalist groups in the sector, which are intertwined with this power, by limiting its administrative and financial autonomy. Our findings show that the close relations between capital groups and important political figures, which have been clear since the the sector was first liberalized, have helped these groups gain a privileged position in Türkiye’s media sector. As a result, the main instrument that changed the media ownership structure was the interventions of the political power in line with the propositions of the "political signaling" theory.

Anahtar Kelimeler

Regulation, Independent Administrative Authority, Radio Television Sector, Capture Theory, Political Signal Theory

Kaynakça

• Adaklı, G. (2010). Neoliberalizm ve Medya: Dünyada ve Türkiye’de Medya Endüstrisinin Dönüşümü [Neoliberalism and Media: The Transformation of Media Industries in The World and Turkey]. Mülkiye, 34(269), 67-84.
• Adaklı, G. (2014). Medya Sermayesi ve Ultra-Çapraz Bütünleşmeler.[ Media capital and ultracross media ownership] Perspectives: Siyasi Analiz ve Yorum içinde (18-23), Heinrich Böll Stiftung(8).
• Ayan, V. M. (2019). AKP Devrinde Medya Âlemi. [Media World in the AKP Era] Yordam Kitap.
• Baykal, K. C., & Coşkun, S. (2018). Türkiye'de radyo ve televizyon yayıncılığında reklam yayınlarını düzenleyen ilkelerin ihlâli. [The Violations of the Regulations of Advertisement Codes in Turkey] Electronic Turkish Studies, 13(10), 127-144.
• Bernstein, M. H. (1955). Independence, Responsibility, and the Public Interest. In Regulating Business by Independent Commission (pp. 126-163). Princeton University Press. http://www.jstor.org/stable/j.ctt183pzkt.9
• BIA News Desk. (2021, 12.08.2021). RTÜK first ‘threatened’ then ‘fined’ broadcasters over coverage of fires. Bianet. https://bianet.org/english/politics/248620-rtuk-first-threatened-then-fined-broadcasters-over-coverage-of-fires
• Böllhoff, D. (2005). Developments in regulatory regimes: comparison of telecommunications, energy and rail. Refining regulatory regimes: Utilities in Europe, 15-52.
• Bulut, B. (2019, 15.12.2019). RTÜK Daire Başkanvekili yandaşa uyarı yazısı yazınca görevden alındı. [RTÜK Deputy Head of Department dismissed after writing a warning letter to partisans.] Evrensel. https://www.evrensel.net/haber/371009/rtuk-daire-baskanvekili-yandasa-uyari-yazisi-yazinca-gorevden-alindi
• Buğra, A., & Savaşkan, O. (2014). New Capitalism in Turkey : The Relationship Between Politics, Religion and Business. Edward Elgar.
• Carpenter, D. P. (1996). Adaptive signal processing, hierarchy, and budgetary control in federal regulation. American Political Science Review, 90(2), 283-302.
• Carpenter, D. P. (2004). Protection without Capture: Product Approval by a Politically Responsive, Learning Regulator. The American Political Science Review, 98(4), 613-631. http://www.jstor.org/stable/4145328
• Carpenter, D. P. (2014). Corrosive Capture? The Dueling Forces of Autonomy and Industry Influence in FDA Pharmaceutical Regulation. In D. Carpenter & D. A. Moss (Eds.), Preventing Regulatory Capture: Special Interest Influence and How to Limit it (pp. 152-172). Cambridge University Press. https://doi.org/DOI: 10.1017/CBO9781139565875.011
• Constitutional Court Decision, Date of Decision: 21.09.2004 Base No. 2002/100 Decision No. 2004/109 Official Gazette Publication Date: 04.08.2006 No. 26249., (2004).
• Corke, S., Finkel, A., Kramer, D. J., Robbins, C. A., & Schenkkan, N. (2014). Democracy in Crisis : Corruption, Media, and Power in Turkey, A Freedom House Special Report, Issue. F. House.
• Coşkun, G. B. (2020). Media capture strategies in new authoritarian states: the case of Turkey. Publizistik, 65(4), 637-654.
• Cumhuriyet. (2009, 20.10.2021). RTÜK, Doğan Grubu'na 3 ay süre verdi. [RTÜK gave a 3-month deadline to Doğan Group] Cumhuriyet. https://www.cumhuriyet.com.tr/haber/rtuk-dogan-grubuna-3-ay-sure-verdi-93900
• Cumhuriyet. (2010, 22.03.2010). 2006-2008 yıllarında RTÜK'te neler oldu? [What happened at RTÜK between 2006-2008?] Cumhuriyet. https://www.cumhuriyet.com.tr/haber/2006-2008-yillarinda-rtukte-neler-oldu-129342
• Cumhuriyet. (2021, 27.01.2021). 1.1 milyar TL’lik hastane ihalesi Kalyon’a verildi. [The hospital tender worth 1.1 billion TL was awarded to Kalyon.] Cumhuriyet. https://www.cumhuriyet.com.tr/haber/11-milyar-tllik-hastane-ihalesi-kalyona-verildi-1809172
• Finkel, A. (2015). Captured News Media : The Case of Turkey. Center for International Media Assistance. National Endowment for Democracy. https://www.cima.ned.org/wp-content/uploads/2015/10/CIMA-Captured-News-Media_The-Case-of-Turkey.pdf
• Gilardi, F. (2002, 2002/01/01). Policy credibility and delegation to independent regulatory agencies: a comparative empirical analysis. Journal of European Public Policy, 9(6), 873-893. https://doi.org/10.1080/1350176022000046409
• Gordon, S. C., & Hafer, C. (2014). Conditional Forbearance as an Alternative to Capture: Evidence From Coal Mine Safety Regulation. In D. Carpenter & D. A. Moss (Eds.), Preventing Regulatory Capture: Special Interest Influence and How to Limit it (pp. 208-238). Cambridge: Cambridge University Press.
• Haber3. (2009, 19.10.2021). Doğan TV için RTÜK'e şok rapor. [Shocking report submitted to RTÜK regarding Doğan TV.] Haber3. https://www.haber3.com/medya/dogan-tv-icin-rtuke-sok-rapor-haberi-474382
• Hürriyet. (1999). CNN-Türk bugün yayına başlıyor. [CNN-Türk starts broadcasting today.] Hürriyet. https://www.hurriyet.com.tr/gundem/cnn-turk-bugun-yayina-basliyor-39106841
• Hürriyet. (2005, 02.06.2005). Deutsche Bank, 150 milyon dolara Doğan TV’ye ortak. [Deutsche Bank becomes a partner in Doğan TV for 150 million dollars.] Hürriyet. https://bigpara.hurriyet.com.tr/haberler/genel-haberler/deutsche-bank-150-milyon-dolara-dogan-tv-ye-ortak_ID523320/
• Hürriyet. (2008, 08.08.2008). RTÜK ATV'nin satışına CHP'siz vize verdi. [RTÜK gives 'visa without CHP' to ATV sale.] Hürriyet. https://www.hurriyet.com.tr/gundem/rtuk-atv-nin-satisina-chp-siz-vize-verdi-8190314
• Kadıoğlu, Z. K. (2001). Küresel Medya Sermayesinin Hareketliliği ve Türk Medyasına Etkileri [Global media capital and it's effects on the Turkish media] (Publication No. 106633) [Master Thesis, Marmara University]. The Council of Higher Education Presidency Thesis Center.
• Kaya, B. (2020, 13.10.2020). İhale Kanunu 191. kez değişiyor. [The Public Procurement Law is being amended for the 191st time.] Sözcü. https://www.sozcu.com.tr/2020/ekonomi/ihale-kanunu-191-kez-degisiyor-6078261/?utm_source=dahafazla_haber&utm_medium=free&utm_campaign=dahafazlahaber
• Kleizen, B., Verhoest, K., & Wynen, J. (2018). Structural Reform Histories and Perceptions of Organizational Autonomy: Do Senior Managers Perceive Less Strategic Policy Autonomy When Faced with Frequent and Intense Restructuring? Public Administration, 96(2), 349-367. https://doi.org/https://doi.org/10.1111/padm.12399
• Laffont, J.-J., & Tirole, J. (1991). The Politics of Government Decision-Making: A Theory of Regulatory Capture. The quarterly journal of economics, 106(4), 1089-1127.x
• Maggetti, M. (2007). De facto independence after delegation: A fuzzy-set analysis. Regulation & Governance, 1(4), 271-294. https://doi.org/https://doi.org/10.1111/j.1748-5991.2007.00023.x
• Maggetti, M. (2009). The role of independent regulatory agencies in policy-making: a comparative analysis. Journal of European Public Policy, 16(3), 450-470.
• Makkai, T., & Braithwaite, J. (1992). In and out of the revolving door: making sense of regulatory capture. Journal of Public Policy, 12(1), 61-78. doi:10.1017/S0143814X00005006
• Münir, M. (2001). Doğan Grubu İlk Sırada. [Doğan Grup ranks first.] NTV News. http://arsiv.ntv.com.tr/news/130566.asp?cp1=1#BODY
• Münir, M. (2005, 24.06.2005). Doğan, Deutsche Bank işi için yargıya gidiyor. [Doğan is taking the matter with Deutsche Bank to court.] Vatan. https://www.gazetevatan.com/yazarlar/metin-munir/dogan-deutsche-bank-isi-icin-yargiya-gidiyor-55871
• Münir, M. (2008, 23.05.2008). AKP neden Kamu İhale Yasası’nı elli defa değiştirdi? [Why has AKP changed the Public Procurement Law fifty times?] (2). Milliyet. https://www.milliyet.com.tr/yazarlar/metin-munir/akp-neden-kamu-ihale-yasasi-ni-elli-defa-degistirdi-2-758221
• Oda TV. (2014, 24.08.2014). Kanun 11 yılda 113 kez değiştirildi. [The law has been amended 113 times in 11 years.] Oda TV. https://odatv4.com/kanun-11-yilda-113-kez-degistirildi--2408141200.html
• Özelleştirme İdaresi Başkanlığı. (2021). Faaliyet Raporu, [Activitiy Report] 2020. Hazine ve Maliye Bakanlığı. [Ministry of Treasury and Finance of Türkiye] https://ms.hmb.gov.tr/uploads/sites/6/2021/03/2020-Faaliyet-Raporu-04.03.2021-14.29.pdf
• Özkök, E. (2002, 23.04.2002). Neden susma hakkımızı kullanıyoruz? [Why do we exercise our right to remain silent?] Hürriyet. https://www.hurriyet.com.tr/neden-susma-hakkimizi-kullaniyoruz-67156
• Presidency. (2002). 4756 sayılı "Radyo ve Televizyonların Kuruluş ve Yayınları Hakkında Kanun, Basın Kanunu, Gelir Vergisi Kanunu ile Kurumlar Vergisi Kanununda Değişiklik Yapılmasına Dair Kanun"un kimi maddelerinin iptali ve yürürlüğünün durdurulması istemi. [Request for the annulment of certain articles of Law No. 4756 on "the Establishment of Radio and Television Enterprises and Their Broadcasts, Press Law, Amendments to the Income Tax Law and Corporate Tax Law, and Suspension of Its Enforcement.] https://www.tccb.gov.tr/basin-aciklamalari-ahmet-necdet-sezer/1720/5184/4756-sayili-radyo-ve-televizyonlarin-kurulus-ve-yayinlari-hakkinda-kanun-basin-kanunu-gelir-vergisi
• Presidency. (2018). Presidential Decree on the State Supervisory Board, 15.07.2018, No:5, 30479. https://www.resmigazete.gov.tr/eskiler/2018/07/20180715-2.pdf
• RTÜK. (2010). 05.04.2010 Yeni RTÜK Yasasıyla Kitlesel Yayınlardan Kişisel Yayınlara, Yayıncılıkta Yeni Mevsim: İsteğe Bağlı Yayınlar Başlıyor [With the new RTÜK Law, a new season begins in broadcasting: from Mass Broadcasts to Personal Broadcasts, Optional Broadcasting is starting.] https://www.rtuk.gov.tr/05-04-2010-yeni-rtuk-yasasiyla-kitlesel-yayinlardan-kisisel-yayinlara-yayincilikta-yeni-mevsim-istege-bagli-yayinlar-basliyor/3320
• RTÜK. (2012). Radyo ve Televizyon Üst Kurulu 2011 Yılı Faaliyet Raporu. [2011 Annual Activity Report of the Radio and Television Supreme Council]
• RTÜK. (2013). Radyo ve Televizyon Üst Kurulu 2012 Yılı Faaliyet Raporu. [2012 Annual Activity Report of the Radio and Television Supreme Council]
• RTÜK. (2014a). Radyo ve Televizyon Üst Kurulu 2013 Yılı Faaliyet Raporu. [2013 Annual Activity Report of the Radio and Television Supreme Council]
• RTÜK. (2014b). Radyo TV Yayıncılığı Sektör Raporu. RTÜK Strateji Geliştirme Dairesi Başkanlığı. [Radio and Television Broadcasting Industry Report. Presidency of the RTÜK Strategy Development Department]
• RTÜK. (2015). Radyo ve Televizyon Üst Kurulu 2014 Yılı Faaliyet Raporu. [2014 Annual Activity Report of the Radio and Television Supreme Council]
• RTÜK. (2016). Radyo Televizyon Üst Kurulu 2015 Yılı Faaliyet Raporu. [2015Annual Activity Report of the Radio and Television Supreme Council]
• RTÜK. (2017). Radyo ve Televizyon Üst Kurulu 2016 Yılı Faaliyet Raporu. [2016 Annual Activity Report of the Radio and Television Supreme Council]
• RTÜK. (2018). Radyo ve Televizyon Üst Kurulu 2017 Yılı Faaliyet Raporu. [2017 Annual Activity Report of the Radio and Television Supreme Council]
• RTÜK. (2019). Radyo ve Televizyon Üst Kurulu 2018 Yılı Faaliyet Raporu. [2018 Annual Activity Report of the Radio and Television Supreme Council]
• RTÜK. (2020). Radyo Televiyon Üst Kurulu 2019 Faaliyet Raporu. [2019 Annual Activity Report of the Radio and Television Supreme Council]
• RTÜK. (2021). Radyo ve Televizyon Üst Kurulu 2020 Yılı Faaliyet Raporu. [2020 Annual Activity Report of the Radio and Television Supreme Council]
• Stigler, G. J. (1971). The Theory of Economic Regulation. The Bell journal of economics and management science, 3-21.
• Shive, S. A., & Forster, M. M. (2016). The revolving door for financial regulators. Review of Finance, 21(4), 1445-1484. doi:10.1093/rof/rfw035
• Sözeri, C., & Güney, Z. (2011). Türkiye’de Medyanın Ekonomi Politiği: Sektör Analizi. [Political economy of the media in Türkiye: Sector analysis.] https://www.tesev.org.tr/tr/research/turkiyede-medyanin-ekonomi-politigi-sektor-analizi/
• Sümer, B., & Adaklı, G. (2007). Evaluation Report on the Law No. 6112 on the Establishment and Broadcasting Services of Radio and Television. İletişim : Araştırmaları, 5(2), 18.
• Tartanoğlu, S. (2017, 03.05.2017). OHAL havuzu büyüttü... Cemaat medyası yandaşa gitti. [SoE enlarged the pool... Community media went to partisans.] Cumhuriyet. https://www.cumhuriyet.com.tr/haber/ohal-havuzu-buyuttu-cemaat-medyasi-yandasa-gitti-733298
• T24. (2013, 12.06.2013). RTÜK’ten Halk TV ve Ulusal Kanal’a Gezi cezası. [RTÜK fines Halk TV and Ulusal Kanal for Gezi.] T24. https://t24.com.tr/haber/rtukten-halk-tv-ve-ulusal-kanala-gezi-cezasi,231874
• T24. (2020a, 18.06.2020). Hangi medya patronu, hangi ihaleleri aldı?[ Which media bosses received which tenders?] T24. https://t24.com.tr/haber/hangi-medya-patronu-hangi-ihaleleri-aldi,885014
• T24. (2020b, 09.07.2020). RTÜK tarafından en çok ceza alan kanallar Halk TV, FOX TV ve Tele1 oldu.[ Halk TV, FOX TV and Tele1 were the most penalized channels by RTÜK.] T24. https://t24.com.tr/haber/rtuk-tarafindan-en-cok-ceza-alan-kanallar-halk-tv-fox-tv-ve-tele-1-oldu,889630
• Terman, J. (2014). Evaluating Political Signals: The Nature of Bureaucratic Response in Minority Preference Purchasing. The American Review of Public Administration, 44(5), 522-549. https://doi.org/10.1177/0275074012471890
• Thatcher, M. (2002). Regulation After Delegation: Independent Regulatory Agencies in Europe. Journal of European Public Policy, 9(6), 954-972.
• The Law on Supporting Investments on Project Basis and Amending Certain Laws and Decree Laws, 6745. (2016). https://www.resmigazete.gov.tr/eskiler/2016/09/20160907-1.htm
• The Law on the Establishment of Radio and Television Enterprises and Their Broadcasts, 4756. (2002). https://www.resmigazete.gov.tr/Eskiler/2002/05/20020521.htm#1
• The Law on the Establishment of Radio and Television Enterprises and Their Media Services, 6112. (2011). https://www.rtuk.gov.tr/audiovisual-media-law-/4046/en
• Viscusi, W. K. (1992). Fatal Tradeoffs : Public and Private Responsibilities for Risk / W. Kip Viscusi. Oxford University Press.
• Wynen, J., Kleizen, B., Verhoest, K., Lægreid, P., & Rolland, V. (2020). Keeping a Watchful Eye in Times of Turmoil? How Repeated Structural Reform Leads to More Attention to Political Signals. Public Administration, 98(3), 570-590. https://doi.org/https://doi.org/10.1111/padm.12653
• Yanatma, S. (2016) Media capture and advertising in Turkey: the impact of the state on the news. Reuters Institute for the Study of Journalism Fellowship Paper, University of Oxford.https://turkey.mom-rsf.org/uploads/tx_lfrogmom/documents/2-101_import.pdf
• Yeni Şafak. (2005, 06.06.2005). Deutsche Bank-Doğan Tv ortaklığı kafaları karıştırdı. Yeni Şafak. https://www.yenisafak.com/gundem/deutsche-bank-dogan-tv-ortakligi-kafalari-karistirdi-2688466
• Yeşil, B. (2018). Authoritarian turn or continuity? Governance of media through capture and discipline in the AKP era. South European Society and Politics, 23(2), 239-257.
• Yılmaz, R. (2019, 04.11.2019). Pazarlık bahane ‘21/b’ şahane.[ Bargaining is an excuse, '21/b' is great.] Cumhuriyet. https://www.cumhuriyet.com.tr/yazarlar/olaylar-ve-gorusler/pazarlik-bahane-21b-sahane-1700004