CSEP Working Paper-24 February 2022
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About PRRC This paper was published as part of the Property Rights Research Consortium (PRRC), and supported by Omidyar Network India. PRRC is a network of leading think-tanks and research organisations, working to collaborate and drive policy action in the field of land, housing and property rights in India. Support for this research was generously provided by the Omidyar Network. CSEP recognises that the value it provides is in its absolute commitment to quality, independence, and impact. Activities supported by its donors reflect this commitment and the analysis and recommendations found in this report are solely determined by the scholar(s). Copyright © Shishir Gupta, Nandini Agnihotri and Sikim Chakraborty Centre for Social and Economic Progress (CSEP) CSEP Research Foundation 6, Dr Jose P. Rizal Marg, Chanakyapuri, New Delhi - 110021, India Recommended citation: Gupta, S; Agnihotri, N; Chakraborty, S. (2022). What Drives Media Reporting? Reader-Interest May be the Key (CSEP Working Paper 24). New Delhi: Centre for Social and Economic Progress. The Centre for Social and Economic Progress (CSEP) conducts in-depth, policy-relevant research and provides evidence-based recommendations to the challenges facing India and the world. It draws on the expertise of its researchers, extensive interactions with policymakers as well as convening power to enhance the impact of research. CSEP is based in New Delhi and registered as a company limited by shares and not for profit, under Section 8 of the Companies Act, 1956. All content reflects the individual views of the authors. The Centre for Social and Economic Progress (CSEP) does not hold an institutional view on any subject. CSEP working papers are circulated for discussion and comment purposes. The views expressed herein are those of the author(s). All rights reserved. Short sections of text, not to exceed two paragraphs, may be quoted without explicit permission provided that full credit, including copyright notice, is given to the source. Designed by Mukesh Rawat
WHAT DRIVES MEDIA REPORTING? Reader-interest may be the key Shishir Gupta Senior Fellow & COO Centre for Social and Economic Progress New Delhi, India Nandini Agnihotri Research Assistant Centre for Social and Economic Progress New Delhi, India Sikim Chakraborty Research Analyst Centre for Social and Economic Progress New Delhi, India We are grateful to Amb. Shivshankar Menon (Distinguished Fellow, Centre for Social and Economic Progress) and Dr. Namita Wahi (Senior Fellow, Centre for Policy Research) for their insightful comments and feedback on the paper. We express gratitude to a number of experts and leading practitioners for lending their inputs: George Skaria (Communications Advisor, Centre for Social and Economic Progress), Kumar Sambhav Shrivastava (Founding Partner and Project Director, Land Conflict Watch), Mrinali Karthick (Database and Collaborations Lead, Land Conflict Watch), Nitin Sethi (Partner and Editorial Advisor, Land Conflict Watch), Anand Yagnik (senior lawyer and activist), Sheela Bhatt (senior journalist), Dr. Kalev Leetaru (creator, The GDELT Project). We thank Karan Partap Singh Kairon (intern, Centre for Social and Economic Progress) for his assistance, and acknowledge his contributions to the paper. We would also like to thank Land Conflict Watch for their extensive data on land conflicts that has formed an integral part of this paper. We thank Dweepobotee Brahma and Aradhika Menokee for their initial ideation of the paper. Lastly, we offer sincere gratitude to the communications and design team at CSEP. All the errors that remain in the paper are entirely ours.
Table of Contents Executive Summary. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5 Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 Literature Review. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9 Approach and Methodology. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10 Occurrence of Conflicts. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10 Media Reporting of Conflicts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10 Key Findings. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12 Case Study 1: COVID-19 Oxygen Availability . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23 Case Study 2: Farm Bills Protests . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24 Concluding Remarks. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26 Appendix 1: List of 58 unique conflicts. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27 Appendix 2: Unique sources per conflict . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31 Appendix 3: Twitter data extraction and filtering. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34 References. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36 Lists of figures and tables Figure 1: The two pathways of our study. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 Figure 2: Wide disparity between location of occurrence and location of reporting. . . . . . . . . . . . 13 Figure 3: Urban conflicts are much smaller in scale, yet garner significantly more coverage. . . . . 15 Figure 4: Delhi accounted for an inordinately high share of total tweets.. . . . . . . . . . . . . . . . . . . . . 24 Figure 5: Number of tweets saw a spike when the movement launched towards Delhi. . . . . . . . . . 25 Table 1: Disaggregation of 58 conflicts as per region and actors involved. . . . . . . . . . . . . . . . . . . . . 13 Table 2: Total tweets containing keyword ‘oxygen’; total tweets containing ‘oxygen’ and ‘Delhi’ for each given date.. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
What Drives Media Reporting? Reader-interest may be the key Executive Summary Media plays an important role in informing and shaping public opinion around major issues. Amartya Sen has argued that “it is not likely that India can have a famine even in years of great food problems. The government cannot afford to fail to take prompt action when large-scale starvation threatens. Newspapers play an important part in this, in making the facts known and forcing the challenge to be faced” (Sen, 1981, p.84, as cited in Besley & Burgess, 2002, p.24). Besley & Burgess (2002) further put forth that Indian states that have a higher newspaper circulation perform better in terms of providing calamity relief and distributing food under the Public Distribution System. Media, thus, has the ability to impact large-scale outcomes through its reportage. This, then, begs the question: how does the media decide which issues to raise? The answer commonly veers from the media picking sensational topics to ideological inclinations of the media houses to covert or overt pressure from stakeholders like the government, businesses, and communities. The demand side—what the readers prefer and want to read—is largely missing in this narrative. Being a competitive and profit-making industry, the demand dynamics play a pivotal role in deciding what gets covered by the media, and what issues get more space than others. There is a significant and persistent trust deficit between the people and the media in India; only 38% Indians trust most news, compared to 65% in Finland, 54% in Brazil, 50% in Thailand, and 43% in Australia (Aneez, Neyazi, Kalogeropoulos, & Nielsen, 2021). Low trust is usually ascribed to media bias. This conclusion comes naturally for a country where close to 70% of media revenue comes from advertisements and 30% from reader subscriptions (The Hindu, 2021). Focussing on the English media, using land conflicts involving Focussing on the English media, communities1 as the focal point, and comparing the occurrence using land conflicts involving of conflicts vis-à-vis coverage, we argue that media reporting communities as the focal point, is linked to reader interest. Reader interest, in turn, is driven and comparing the occurrence by the location of the conflict and of the reader, the intensity of conflicts vis-à-vis coverage, of the conflict, and the involvement of a known entity (person, we argue that media reporting is corporation, etc). The argument is not that reporting may not linked to reader interest. Reader be ‘influenced’ or ‘sensationalised’, but instead that there are interest, in turn, is driven by the other, more objective reasons2 as well which play a key role in location of the conflict and of deciding coverage. This is a crucial finding, helping reinforce the reader, the intensity of the faith in the institution of the fourth estate which is critical conflict, and the involvement for a well-functioning democracy, while at the same time of a known entity (person, highlighting the need for introspection and caution. corporation, etc). We gauge the location of 7143 ongoing land conflicts involving communities tracked by Land Conflict Watch (2021). We find that conflicts occurring in rural areas account for more than two-thirds of the total. This seems intuitive, since larger conflicts involving communities most likely pertain to issues such as land acquisition, and these are more likely to occur in rural areas than in areas that are already urbanised. However, when we turn our gaze to the location of the conflicts reported in the media, we see the opposite. Leveraging arguably the world’s most comprehensive database4 monitoring news media, we derive a list of 58 land conflicts that are covered by the media5 and find that 39 of these 58 conflicts are located in urban areas. Thus, while rural areas account for 70% of the actual occurrence of land conflicts, the media reports nearly 67% of such conflicts from urban centres. 1 Community conflicts are defined as those where at least one party involved is a community of people. 2 From the media’s point of view. That is, reasons that will continue to affect media reporting even without other potential sources of bias such as ideology/ influence. 3 These conflicts are a subset of the total ongoing conflicts reported by LCW (779 at the time of reference). We use these 714 since there exists a clear rural-urban location demarcation for these. 4 Global Database of Events, Language, and Tone (GDELT). 5 Reported between 2015 and 2019. 5
What Drives Media Reporting? Reader-interest may be the key Not only is the frequency of media reporting on urban We deep-dive into seven of the 58 conflicts greater, but each urban conflict is also covered conflicts and find that the four rural much more extensively than those in rural areas; this is conflicts in our sample are about despite the fact that a much larger number of people are 15-20 times as large as the three potentially impacted in the latter. We deep-dive into seven urban conflicts in terms of the of the 58 conflicts and find that the four rural conflicts number of people affected, and yet, in our sample are about 15-20 times as large as the three they garner about 20% less media urban conflicts in terms of the number of people affected, attention as compared to the latter. and yet, they garner about 20% less media attention as compared to the latter. It is natural to question the reasons for this apparent disconnect. We argue that this may be happening since a majority of the 40 million English newspaper readers reside in metropolitan centres, whereas the 470 million readers of regional newspapers are largely concentrated in smaller towns and rural areas (Kumar & Sarma, 2015). For example, The Times of India, Hindustan Times, and The Mumbai Mirror are the three most widely read dailies in Mumbai; however, the most widely read dailies in all of Maharashtra are three regional newspapers, Lokmat, Daily Sakal, and Pudhari (Media Research Users Council India, 2019). Since a majority of the readership of the English- language media is centred in and around urban areas, covering issues occurring in close proximity to the readers’ surroundings is of more importance to them than conflicts that may be much bigger in scale, but unfolding in a distant, rural setting. We go on to test our framework of reader interest driving coverage by applying it to other platforms and issues and find that the framework holds up to the test. We scrape data from the Twitter handles of nine6 prominent media houses for two recent crises, the COVID-19 oxygen crisis and the protests in response to the passing of the three ‘Farm Bills’. During the second wave of the pandemic in India from March to July, 2021, several fault lines such as inadequate provisions of medical-grade oxygen came to light. We find that of all the scraped tweets mentioning ‘oxygen’ during this time, Delhi’s share was about 30%. Considering that Delhi accounts for about 1% of India’s population (Office of the Registrar General & Census Commissioner, 2011), a 30% share seems inordinately high. The paper has two main conclusions. First, reader interest plays a key role in shaping coverage. Second, what readers want to consume may or may not be in consonance with reality and with what needs more urgent redressal from a larger, country-wide perspective. For example, by highlighting Delhi’s oxygen shortage, the media exerted its influence and pressure to force a response from policymakers. However, an improvement in Delhi’s oxygen situation may not necessarily have reflected a pan-India improvement of the crisis, which is what the tweeting pattern would appear to suggest. In a sense, the system was let off the hook by the media once the crisis neared resolution in Delhi, even though scrutiny of public health management should have continued until the problem was fully addressed for the entire country. This may have been sub-optimal from a societal perspective. It is, thus, a tough balancing act for the media industry—how to stay profitable by giving people what they demand, while simultaneously covering information that people ought to know. These findings serve as a timely wake-up call for policymakers not to rely only on English-media coverage as a means of staying informed about the key issues facing the country, given its urban skew. How and what the media reports have a significant bearing on how people perceive the world around them. More research and deliberation are, thus, required to understand media reporting and assess its potential impact in order for policy discourse to thrive. Strengthening this key pillar of accountability that upholds the fundamentals of democracy is all the more vital in the present age. 6 Hindustan Times, PIB India, Press Trust of India, The Indian Express, The Hindu, The Quint, The Telegraph, The Times of India, The Wire. 6
What Drives Media Reporting? Reader-interest may be the key Introduction Land, especially in and around urban centres, is a scarce resource in India. This scarcity is reflected in abnormally high property prices in big cities. In 2019, Mumbai’s price-to-income7 ratio was 39, the fifth-highest in Asia, Delhi’s was 15.8, while the ratio was 21.56 for Singapore (Numbeo, 2019). The limited supply-high price equilibrium in land markets needs to change if we are to grow faster and lift people out of poverty in the near term (McKinsey Global Institute, 2020). There are multiple reasons for this sub-optimal equilibrium, key among them being the lack of clearly defined and documented property rights, coupled with weak administrative and judicial capacity to resolve conflicts. Consequently, land disputes account for a substantive proportion of cases in Indian courts—25% of all cases decided by the Supreme Court, and 66% of all civil cases in India are related to land or property disputes (Wahi, 2019). Additionally, “the average pendency of a land acquisition dispute, from creation of the dispute to resolution by the Supreme Court, is 20 years” (Wahi, 2019, p. 1). Thus, poorly defined titles and rights, and poorly enforced property rights lead to a higher frequency of conflicts, and each individual conflict is prolonged due to delays in conflict resolution (Wahi, 2019). Given the significance and scale of land-related conflicts, the media8 is instrumental in informing and shaping public opinion around land-related issues. It shapes discourse primarily through its discretion in choosing what to report, and the frequency with which it covers each issue. This brings us to the fundamental question—how does the media decide what to report?9 Studies of this nature are inherently complex because they require independent information on ‘reality/occurrence’ of conflicts as well as ‘media coverage’ of similar conflicts to be able to compare and contrast the two, see if there exists a disparity between the two, and study the drivers of this disparity. In this paper, we study exactly these two pathways, of reality and media reporting; and attempt to evaluate the existence and causes of a possible wedge between the two. Focussing on the English media, using land conflicts involving communities10 as the focal point, and comparing the occurrence of conflicts vis-à-vis their coverage, we argue that media reporting is linked to reader interest. Reader interest, in turn, is driven by the location of the conflict and the reader, the intensity of the conflict, and the involvement of a known entity (person, corporation, etc). We test the veracity of our framework by analysing and scraping data from the Twitter handles of nine11 prominent media houses for two recent crises, the COVID-19 oxygen crisis and the protests in response to the three ‘Farm Bills’, and found the framework to be robust. 7 ‘Price’ refers to median apartment prices in the city. ‘Income’ refers to median familial disposable income. Sourced from Numbeo, which is a global, crowd-sourced database that gives information on the cost of living in different cities. 8 Media refers to English-language media, unless otherwise stated. 9 Since we are interested in exploring media coverage of land conflicts given they have a significant role in growth and development of the country, our focus is only on large conflicts that involve communities of people, as opposed to millions of property feuds between families and businesses that are languishing in the courts. 10 Community conflicts are defined as those where at least one party involved is a community of people. 11 Hindustan Times, PIB India, Press Trust of India, The Indian Express, The Hindu, The Quint, The Telegraph, The Times of India, The Wire. 7
What Drives Media Reporting? Reader-interest may be the key Figure 1: The two pathways of our study, and the datasets used for each. Occurrence of Conflicts Media Reporting of Conflicts Urban-rural breakdown Urban-rural breakdown of media of land conflicts affecting reporting and the frequency of communities of people. reporting on different categories of conflicts. Global Database of Land Conflict Watch (LCW) Events, Language and Compiles information on all Tone (GDELT) ongoing land conflicts that Indicator of media reporting. involve communities Records news reporting from around the world on over 300 categories of events. 8
What Drives Media Reporting? Reader-interest may be the key Literature Review The socio-political power of the media is a widely studied subject that has given rise to a rich body of work. The relationship between the media and public opinion can be studied through the three inter- connected lenses of agenda-setting, priming, and framing (Scheufele & Tewksbury, 2007). Agenda setting refers to the capacity of the media to use its reach to raise public awareness and concern. By extensively covering a particular issue, the media gives it salience and nudges the public to use it as a criterion for evaluating public policy. This power to establish points of reference is termed priming. Agenda-setting and priming often go hand in hand. By making some issues more salient in people’s minds, the media can influence and shape people’s judgments (Moy, Tewksbury, & Rinke, 2016). Media’s third lever of influence, framing, draws on the media’s control over perspectives it chooses to highlight or omit. Iyengar and Simon (1993) call attention to the role played by the media in the First Gulf War. They state that intensive news coverage of the war pushed it to become the principal issue in American consciousness. This dominance resulted in foreign policy becoming the key standard by which the public assessed their president. In their very forceful paper, Mullainathan & Shleifer (2002) argue that there are two primary axes, ‘ideology’ and ‘spin’, which determine what a particular media outlet decides to report. While the former reflects the agency’s ideological leaning, the latter is driven by an urge to create a more memorable or sensational story, since it may sell more. The paper shows that in a competitive industry, ideological differences give rise to media outlets aligned to different ideologies, thus creating a level playing field for all views to be propagated, even though the underlying news agencies may be biased towards particular ideologies. However, when it comes to sensational stories bereft of ideological differences, this competition creates an inducement to spin stories. Through its primary function of information dissemination, the media informs people of their socio- political surroundings. Having a more informed electorate strengthens incentives for governments to be responsive to the needs of vulnerable citizens (Besley & Burgess, 2002). Besley & Burgess (2002) put forth, using a panel data for states in India, that the states that have a higher newspaper circulation and an accountable electorate perform better in terms of providing calamity relief and distributing food under the Public Distribution System. The media’s role as an agenda-setter, primer, and framer extends to land-based conflicts as well. Putnam and Shoemaker’s (2007) study of a dispute over land-use rights in Texas, USA, demonstrates how the media uses priming and framing to set the parameters of a conflict. Due and Riggs (2010) point to a similar trend in how the non-indigenous media reports land-titling conflicts involving the native population in Australia. They compare the media’s initial framing, which is holistic and context-based, to the pro-development narrative used when reporting contractual disagreements between native titleholders and businesses. Tang and Cote (2020) illustrate how the media’s agenda-setting and framing decisions determine the outcome of land-based conflicts. They use evidence from China to show that protests which received a steady commentary framed from a pro-protestor point of view were more likely to achieve their goals and beat back State acquisition. In India, a combination of lack of titling and documentation, poorly defined land rights (particularly land-use versus ownership rights for communities such as indigenous groups), weak administration, and an overwhelmed judiciary have made contract enforcement extremely difficult and a seemingly everlasting problem (Wahi, 2019). Given the stage of India’s economic development, this weak institutional architecture implies a dire need for a mechanism to act as a watchdog, and to ensure that relevant conflicts are highlighted so that decision-making can happen in a relatively transparent manner. This makes the role of media even more powerful in a country like India. 9
What Drives Media Reporting? Reader-interest may be the key Approach and Methodology We first analyse the occurrence of ongoing land-related conflicts that involve communities. Thereafter, we focus on media reporting of conflicts and the actual content of news reports. These two pathways form the structural frame of this study. The plinth of our organisational framework comprises two datasets that are the primary tools of the aforementioned pathways. These two distinct sources are—Land Conflict Watch (LCW), used to estimate the occurrence of conflicts, and the Global Database of Events, Language, and Tone (GDELT), used to understand the nature of media reporting. In this section, we define these sources and elaborate on how we extracted relevant details from them. Occurrence of Conflicts We needed a dataset to understand the geographic disaggregation of conflicts that affect groups of people than smaller conflicts involving individual differences. The dataset of conflicts from Land Conflict Watch serves this purpose perfectly. A land conflict as per LCW data is defined as any instance in which the use of, access to, and/or control over land and its associated resources are contested by two or more parties, one of which has to be a community (Worsdell & Shrivastava, 2020). Therefore, LCW is indicative of all those ongoing land conflicts that affect communities and are greater in magnitude than conflicts of a personal nature. These conflicts are categorically not of a private nature (Worsdell & Shrivastava, 2020), and usually involve subject matters such as the acquisition of land, that may have a larger impact on the broader development of the country. We look at 714 ongoing conflicts from LCW and study their regional demarcation which is already pre- defined in the dataset. We choose to study only 714 despite there being 779 ongoing conflicts at the time of reference since these 714 have a clearly stated urban-rural specification. Media Reporting of Conflicts We use the GDELT Events Database to study media reporting and coverage; in particular we use the GDELT Global Knowledge Graph (GKG). We study media reporting for events that occurred between 2015 and 2019.12 GDELT is a platform that monitors the digital news media from nearly every corner of the world in print, broadcast, and web formats, in over 100 languages (The GDELT Project: Intro, 2020). It records each event with its corresponding news report as a separate entry, thus forming a comprehensive compendium of news reports released in any given timeframe. These include information on the location of the event, details of actors involved, and the number of sources that have reported on the said event (within the first 15 minutes of its occurrence), among others. GKG is an upgrade on the GDELT Events Database and it provides more data fields for study as well as a higher volume of data. It expands GDELT’s capabilities by capturing additional, more latent dimensions that the latter does not include (The GDELT Project, 2015). Events in the dataset are categorised into a pre-defined set of 300 categories i.e. Event Codes, ranging from acts of cooperation to acts of conflict. The characteristics of actors and the location of the event are also assigned codes. This categorisation follows the Conflict and Mediation Event Observations Event and Actor Codebook (CAMEO) format (Schrodt, 2012). Data starts from 2015, which defines our starting year. We stop reference year at 2019, since 2020 onwards reporting is 12 concentrated around COVID-19. 10
What Drives Media Reporting? Reader-interest may be the key Since property rights are of primary interest to us, we use data that indicate a violation of property rights and the onset of a property-related conflict. This data are categorised under the following three Event Codes (Schrodt, 2012): 171: Seize or damage property. Use of force against property or violation of property rights not otherwise specified. 1711: Confiscate property. Use force to take control of somebody else’s property, confiscate, expropriate. 1712: Destroy property. Use force to destroy, demolish property. Filtering for these three Event Codes gave us a list of 9,000 entries, spread across the same or different conflicts. Then, in order to get a list of events and reports most closely associated with our objective, we further filtered this dataset based on the Themes13 variable. From a list of 4000-odd pre-defined themes, we picked 14 that we found most suitable.14 The dataset after the themes-based filtering was a smaller and more targeted subset of the previous data, comprising approximately 1200 entries.15 We then removed irrelevant and duplicate entries to arrive at a final list of 58 unique conflicts (see appendix 1). We assigned the relevant entries into single conflicts if they shared the same initial trigger. That is to say, if the origin of their contention could be traced to a common happening, then they were deemed a part of the same conflict. Our list of 58 conflicts was dependent on two factors. First, on media reporting itself. Given that the dataset (GDELT GKG) recorded information only through news and media sources, this list recorded those conflicts that were covered by the media at some level. Second, the news reports covering the conflict were recorded in the dataset—some conflicts may have been covered in the media, but if no news reports for the same showed up in the dataset, it couldn’t make it to our final list. Our list thus derived, while not exhaustive, is an objective,16 unbiased account of the conflicts that have been reported in the media, and therefore gives us a bird’s-eye view of how media coverage differs across different categories of conflicts. Two final steps followed. First, defining the region of conflict. This involved categorising conflicts into ‘urban’ or ‘rural’ depending on their location of occurrence. Second, defining the actors or parties involved in the conflict. We assign two parties to each conflict from four self-appointed labels–State, Community, Individual(s), and Corporate. They are defined as follows: State: refers to the government and all its arms and organs. This includes governance bodies, the judiciary, municipal authorities, etc. In our parlance, wherever public land is involved, the party involved is listed as the State. Community: refers to a large group of people, collectively affected in the same manner by the conflict; or collectively perpetrating the conflict. Individual(s): refers to either a single individual, or a group of persons who may be affected by or perpetrating a conflict. A distinction between Community and Individual(s) is that the latter refers to relatively more known people. Corporate: refers to corporations involved in the conflict. 13 We used the V2Themes variable. 14 We include: all Themes with the substring ‘Property’, ‘WB_817_LAND_AND_HOUSING’, ‘WB_2288_LAND_ ACQUISITION_LAWS’, ‘WB_888_LAND_TENURE’, ‘WB_890_CADASTRE_AND_LAND_REGISTRATION’, ‘WB_891_LAND_REFORM’, ‘WB_994_LAND_RECLAMATION’, ‘WB_1721_SPATIAL_PLANNING_AND_LAND_ USE’, ‘WB_867_CITIES_AND_CONFLICT’, ‘ECON_HOUSING_PRICES’, ‘WB_2186_SOCIAL_HOUSING’, ‘WB_2186_ RENTAL_HOUSING’, ‘WB_870_HOUSING_CONSTRUCTION’, ‘WB_904_HOUSING_MARKETS’, ‘WB_2957_ EMINENT_DOMAIN’, ‘WB_699_URBAN_DEVELOPMENT’. 15 Combination of same events reported in multiple sources, or separate events. 16 Since not chosen by design 11
What Drives Media Reporting? Reader-interest may be the key Despite being arguably the most comprehensive source in its class and well-suited to get a preliminary view of reporting, we found that GDELT is perhaps not the best source to examine the frequency of coverage. As a result, we decided to manually run an exhaustive search on media coverage for a chosen set of seven conflicts, from the list of 58 unique land conflicts. Each of these seven conflicts was divided into separate events to the extent possible (provided these events/updates occurred between 2015 and 2019). The news reporting for each event was explored using the News tab on the Google search engine. We used specific keywords and their different iterations, along with other filters such as a customised date range, to get relevant hits on Google. The date range was set to anywhere between two months to a year, depending on the search requirements for each conflict. Only news reports related to the conflict or a specific event were recorded. In the event that we got upwards of 10 pages worth of hits, we stopped recording news reports at page 10. This gave us an estimate of ‘coverage’, wherein coverage stands for the total number of news reports we found for the conflict based on our defined search strategy. Since we have relied on Google as our primary tool for determining the extent of coverage, it is important to note a few key aspects that are embedded in this strategy. The news reports we got through our keywords were predominantly in English. The resultant links were largely from a mix of daily newspapers, periodical publications, and a few online news sources. The reports were either digital counterparts to print content, or were exclusively written for the online platform. Our coverage was, thus, largely defined by what was reported online by major17 English dailies. Key Findings Analysing and comparing the actual occurrence of land conflicts with what is covered in the media highlights three key drivers of media reporting—location of the conflict and of the reader, the parties involved, and the severity of the conflict. On average, urban conflicts are covered more than rural; those that are more severe in nature get covered more than the rest; and finally, conflicts that involve some known entity (person, corporation, etc.) tend to be covered more by the media. While 70% of land conflicts involving communities occur in rural areas, 67% of conflicts tracked by the media occur in urban areas As seen in Figure 2, the number of conflicts occurring in rural areas is more than two-thirds of those conflicts occurring in urban areas. This seems intuitive, since land conflicts pertaining to issues such as land acquisition are more likely to happen in rural areas than in areas that are already urbanised. When we look at the location of conflicts reported by the media, we see the opposite view. As stated earlier, by leveraging GDELT, we come up with a list of 58 land conflicts that are covered by the media18 (Table 1). This list helps us draw interesting insights about the regional distribution of and the parties involved in these conflicts. For example, we refer to The Hindu and Hindustan Times as major English dailies, among other sources. 17 Reported between 2015 and 2019. 18 12
What Drives Media Reporting? Reader-interest may be the key Figure 2: Wide disparity between location of occurrence19 and location of reporting.20 While rural areas account for 70% of the occurrence; in the media, 67% of such conflicts reported are from urban areas. 100% 90% 80% 70% 60% 50% 40% 70% 30% 20% 33% 10% 0% Occurrence Media Reporting Rural Urban Source: Land Conflict Watch (2021), GDLET GKG (2021). Table 1: Disaggregation of 58 conflicts as per region and actors involved. Conflicts involving the State are higher in number than other category of conflicts, so are conflicts occurring in urban areas. Urban Rural21 Total State22 and Community23 17 14 31 Corporate24 and Community 15 4 19 State and Individual(s)25 7 1 8 Total 39 19 58 Source: GDELT GKG (2021). 19 Location of occurrence is mapped for 714 conflicts. 20 Location of reporting is based on our list of 58 unique conflicts. 21 ‘Rural’ being inclusive of forest land. 22 Refers to the government and all its arms and organs. This includes governance bodies, the judiciary, municipal authorities, etc. Wherever public land is involved, the party involved is the State. 23 Refers to a large group of people, collectively affected in the same manner by the conflict; or collectively perpetrating the conflict. 24 Refers to corporations involved in the conflict. These may be in the form of real estate developers in urban areas, corporations running mining plants, etc. 25 Refers to either a single individual, or a group of persons who may be affected by or perpetrating a conflict. A distinction between Community and Individual(s) is that the latter refers to relatively more well-known people. 13
What Drives Media Reporting? Reader-interest may be the key As is clear from Table 1, the maximum number of conflicts involve the State and a community. The second-largest category is where a community is in conflict with a corporation. And the last is where individual(s) are in conflict with the State. This list of 58 comprises conflicts of a diverse nature, they involve political representatives, some of the biggest developers, and developments in key infrastructure projects, among other stakeholders and issues. Next, we move to understand the frequency of coverage, that is, how many times a conflict appears in the media. To do that, we selected seven illustrative examples of conflicts from the larger list of 58 conflicts and did a deep dive into each of these seven. These seven conflicts comprise three urban conflicts, namely-Alibaug Illegal Structures, Thoothukudi Copper Plant, and Kathputli Colony; and four rural conflicts-Mumbai-Ahmedabad High-Speed Rail Corridor, Amaravati Capital City, Manipur Bills, and Forest Rights Acts. They represent different regions26 as well as actors involved and make for a reliable list to study the coverage differential. Location of the conflict, the parties involved, and the severity of the conflict drive the frequency of coverage Not only does the media cover more urban than rural conflicts, but each urban conflict is also covered more deeply, that is, there are many more reports on each urban conflict; this is despite the fact that rural conflicts impact a larger number of people. We also found that the four rural conflicts in our list of seven were about 15-20 times as large as the three urban conflicts in terms of the number of people affected, and yet the rural conflicts received about 20% less coverage than the latter. Rural or urban, depending on the main geography of the conflict. 26 14
What Drives Media Reporting? Reader-interest may be the key Figure 3: A comparison of the coverage27 received by the seven28 chosen conflicts and their scale29 i.e., the number of people affected. Urban conflicts are much smaller in scale, yet garner significantly more coverage. 85 80 Thoothukudi Copper 75 Plant 70 65 60 55 Coverage received 50 Alibaug Illegal Forest Rights Act Structures 45 40 35 Kathputli Colony 30 25 Mumbai–Ahmedabad 20 High Speed Rail Amaravati 15 Corridor Manipur Bills 10 5 0 2 2.5 3 3.5 4 4.5 5 5.5 6 6.5 7 Scale of Conflict (log of number of people potentially affected) Rural Urban Source: Land conflict Watch (2021), GDELT GKG (2021), multiple news media sites were referred to understand coverage and scale. Figure 3 shows a broadly negative relationship between the scale of a conflict and its coverage. Since rural conflicts involve a significantly larger number of people, this negative relationship indicates that rural conflicts are covered less, and urban conflicts are covered more. For example, the Manipur Bills conflict, despite potentially impacting the largest number of people among all seven conflicts, is covered the least. On the other hand, the Alibaug Illegal Structures conflict is the 3rd most widely covered, despite impacting a significantly smaller number of people. This urban-rural differential in coverage notwithstanding, what else drives coverage within urban and rural conflicts? The seven case studies point to a number of important answers. We break down each of these seven conflicts into their key discrete events to find what may be driving coverage at a more disaggregated level. 27 Coverage for each conflict was determined by a targeted search on the Google News tab, as described in the methodology. 28 We chose these seven from our broader list of 58 unique conflicts, derived from the GDELT GKG database. 29 We determine the scale of a conflict by estimating the number of people potentially impacted. This number is derived from a combination of sources: from the Land Conflict Watch database, and from our reading of multiple news reports on the conflict. 15
Media coverage of 7 key land-related conflicts Event 1 Conflict Mumbai-Ahmedabad High-Speed Rail Scale (people Unique 10 1 Event 2 2 Corridor30 potentially impacted) Sources Event 3 Coverage 6 7 Event 4 Region: Rural 100,000-120,000 16 26 Event 5 Parties involved: State, community Context: The Mumbai-Ahmedabad High-Speed Rail Corridor, a bullet train line connecting the two cities, was announced in 2017. The project has since then faced hindrances in the acquisition of land and has been subject to protests by communities in both Gujarat and Maharashtra. Protests have occurred on several counts; they largely have to do with challenging the land acquisition process by states, unfair compensation, and loss of livelihood of the affected parties. Event 1: In 2016, the Gujarat state assembly passed a Bill, i.e. The Right to Fair Compensation and Transparency in Land Acquisition, Rehabilitation and Resettlement (Gujarat Amendment) Bill, amending the land acquisition laws in the state. The amendments do away with the requirement for a Social Impact Assessment report for some projects, and sidesteps the consent clauses for acquisition. Event 2: Tribal groups in Maharashtra protested a November 2017 notification by the government diluting the power of gram sabhas. As per this change, the sanction of the gram sabhas is not needed by the state to acquire tribal land. The protests were held at Azad Maidan in Mumbai, by tribal communities who were at risk of losing their land to the Bullet Train project, and other similar projects. Event 3: The project received wildlife clearance to continue construction in the Thane Creek Flamingo Wildlife Sanctuary and parts of Sanjay Gandhi National Park. Event 4: The Maharashtra Regional and Town Planning Act was invoked by the Maharashtra government to acquire land from tribal communities in Palgarh district. Event 5: The Gujarat High Court in 2019 dismissed around 120 petitions filed by farmers challenging the land acquisition process for the project. The process and the amendments in the land acquisition law by the state in 2016 were deemed valid by the Court. Following words were removed from the word cloud for Mumbai-Ahmedabad High-Speed Rail Corridor as they were redundant: project, Mumbai, Gujarat, Ahmedabad, Thane, state. 30
Conflict Alibaug Illegal Structures Scale (people Unique 31 potentially impacted) Sources Event 1 Region: Urban Coverage 19 Event 2 Parties involved: State, individual(s) 600-700 19 50 Context: A petition was filed by an activist against illegal constructions built along the beach in Alibaug, Raigad district. The 160-170 illegal buildings, largely bungalows, were unauthorised and built within the low and high tide areas, and were in violation of Maharashtra Coastal Zone Management Authority rules. Event 1: In response to the said petition, the Bombay High Court ordered the state government to demolish illegal constructions built along the beach in Alibaug town of Raigad district. Event 2: The state government responded and carried out demolitions of the illegal bungalows. One of the bungalows here was of Nirav Modi, and it seems that most of the coverage around the court order and the demolition of the illegal structures was driven by Nirav Modi’s involvement. Conflict Amaravati Capital City31 Scale (people Unique 23 Region: Rural potentially impacted) Sources Event 1 Coverage Event 2 Parties involved: State, community 100,000-110,000 11 3 26 Context: Upon the division of erstwhile Andhra Pradesh into two states- Andhra Pradesh and Telangana- the former’s government proposed a new state capital at Amaravati. Other than conventional land acquisition in exchange for compensation, one of the methods of acquisition employed for this project was through a Land Pooling Scheme; the land owners would get ownership of the developed land and other benefits as compensation once the capital was ready. Event 1: The project ran into problems and faced protests by people who had given up their land for this pooling scheme. There was talk of forceful acquisition of land and unfair compensation to farmers. Event 2: In 2019, the newly elected state government announced a three-capital idea, a trifurcation of the state capital. There was further dissent against the possibility of three capitals and potential relocation of the capital from Amaravati to elsewhere. 31 Following words were removed from the word cloud for Amaravati Capital City as they were redundant: Amaravati, Andhra, Pradesh, state, village
Conflict Thoothukudi Copper Plant32 Scale (people Unique 61 Event 1 Region: Urban potentially impacted) Sources 13 Event 2 190,000-210,000 Coverage Parties involved: Corporate, community 26 79 5 Event 3 Context: The Sterlite Copper Plant, operated by Sterlite Industries and owned by Vedanta, is located in Thoothukudi district, Tamil Nadu. The Plant has often been in the news for violation of environmental norms, and reportedly posed hazardous working conditions with multiple workers getting injured in the course of their work. Event 1: Protests against the Plant intensified in 2018 on several counts. Allegations of negligent working conditions continued; a proposed expansion of the Plant was in violation of land and environmental regulations. The protest, however, resulted in at least 13 casualties. Event 2: Following this, the government’s order for the closure of the Plant was probed by the National Green Tribunal. The NGT subsequently ordered the reopening of the Plant in November, 2018. Event 3: This decision was later reversed by the Supreme Court in February of 2019, and the Plant remained shut. 32 Following words were removed from the word cloud for Thoothukudi Copper Plant as they were redundant: Thoothukudi, copper, plant, Sterlite, Vedanta.
Event 1 Conflict Kathputli Colony33 Scale (people Unique 5 8 Event 2 Region: Urban potentially impacted) Sources 13 Event 3 Coverage Parties involved: State, community 10,000-15,000 12 31 5 Event 4 Context: Residents of Kathputli Colony, an urban slum in New Delhi, were to be temporarily relocated while the slum area was redeveloped. While some people relocated to ‘transit camps’, others refused citing several reasons- corruption, lack of transparency, and subpar conditions of the transit camps. There have also been allegations of forcible evictions by the police. After years of resistance, the slum area was razed by the Delhi Development Authority (DDA) to make way for the redevelopment project, while several residents had still not been relocated elsewhere. Event 1: Residents claimed corruption and unpaid compensation, while the government insisted obstruction of development by protestors and those resisting relocation. Event 2: The DDA expanded the list of slum residents to be given allocations in the redeveloped housing units. Beneficiaries added in the expanded list may be given flats in Rohini; current residents in the area protested as they expected the value of their properties to fall due to this move. Event 3: The DDA razed a portion of the colony, the High Court initially granted stay on further demolitions so that those eligible for rehabilitation may shift, and those who are not may file appeals. Protestors continued to insist that they will not relocate to temporary transition camp. Event 4: Delhi CM inspected the conditions of the temporary transition camp for relocated dwellers. The project was further delayed and residents alleged that transit camp was unlivable and in poor condition. The DDA set a 2-month deadline for the residents to vacate the colony, so the redevelopment project may continue. 33 Following words were removed from the word cloud for Kathputli Colony as they were redundant: Kathputli, Delhi, dda, colony, year, families, resident, house.
Conflict Manipur Bills34 Scale (people Unique 6 13 Event 1 Region: Rural potentially impacted) Sources Coverage Event 2 Parties involved: State, community 2,000,000-3,000,000 14 3 22 Event 3 Context: The mass discontent in the state dates back to its 2011 census count. Post agitation by the Meitei (valley) community, to introduce an Inner Line Permit system to distinguish between ‘Manipuris’ and ‘non-Manipuris’, three Bills were introduced and passed in the legislative assembly. The ‘Hill Tribes’, however, did not agree with such a system. This mutual disagreement between the two communities has been a major aggravator in this conflict. Event 1: In 2015, the aforementioned three Bills were introduced and passed in the Manipur State Assembly. These Bills are namely: the Protection of Manipur People's Bill 2015, the Manipur Shops and Establishment (Second Amendment) Bill 2015, and the Manipur Land Revenue and Land Reforms (Seventh Amendment) Bill 2015. The passage of these Bills amplified discontent and widened the rift between communities. Event 2: The three Bills potentially altered the rights of tribal communities over land, and the classification of residents as ‘natives’ of the state or otherwise, among other things. Event 3: Of the protests that followed the passage of the Bills, the most prominent was in Churachandpur, Manipur; several people were killed and injured during this protest. It was the Churachandpur protest that garnered widespread media attention. 34 Following words were removed from the word cloud for Manipur Bills as they were redundant: Manipur, state, bill, people, district.
Conflict Forest Rights Act35 Scale (people Unique 27 Event 1 Region: Rural potentially impacted) Sources 17 Coverage Event 2 Parties involved: State, community 800,000-1,200,000 19 44 Context: The Forest Rights Act of 2006 is also known as the Scheduled Tribes and Other Traditional Forest Dwellers (Recognition of Forest Rights) Act, 2006. It “recognizes the rights of the forest dwelling tribal communities and other traditional forest dwellers to forest resources, on which these communities were dependent for a variety of needs” (The Forest Rights Act, 2006). In 2008, petitioners contended the validity of the Forests Rights Act and pointed out that it has caused deforestation and encroachment of forest land. The petitioners demanded the eviction of those whose claims over the forest land have been rejected under the law. The Supreme Court subsequently directed the state and central governments to file affidavits to show the status of the claims from these tribal members, which the governments failed to do. Event 1: Following this, the Supreme Court in 2019 directed multiple states to evict those whose claims had been rejected. Event 2: This order incited reactions from tribal groups across the country, alleging that their claims had been unfairly and wrongly rejected. Some states revaluated these claims and looked at them afresh, while others filed review petitions against the Court’s order. 35 Following words were removed from the word cloud for Forest Rights Act as they were redundant: fra, land, Supreme.
What Drives Media Reporting? Reader-interest may be the key As the case studies demonstrate, conflicts involving known entities36 are covered more, irrespective of their role in the conflict. The Alibaug Illegal Structures conflict, for instance, involves people (presumably) from a certain wealth-based class. The core conflict pertains to the demolition of 160- 170 illegal structures that had been built in violation of environmental norms, but one of the persons whose bungalow was involved was Nirav Modi—and therefore, a large chunk of coverage was driven by his name in the headlines. Similarly, the eventual demolition of his property also received a large share of coverage. The reporting was thus driven by a known name, irrespective of the scale, severity or most interestingly, the role of that well-known person in the conflict. In stark contrast, the Kathputli Colony conflict, despite being an urban conflict in the national capital involving many more people, did not get as much coverage. The third critical driver of coverage is the severity of the conflict. Among all our conflicts, the Thoothukudi Copper Plant is covered the most. In addition to being an urban conflict and involving a known corporation, the third element driving the coverage of this conflict is the fact that 13 people unfortunately lost their lives protesting against the Plant. This particular event within this conflict garners the highest share of the coverage. Likewise, in the Manipur Bills conflict, nearly 60% of the coverage is driven by the third event, where several people were killed at the Churachandpur protests. While we may argue that the severity of the conflict is a contributing factor for wider coverage, it does not seem to be uniformly applicable, bringing us back to the potential urban-rural divide. In contrast to the Copper Plant conflict, the Manipur Bills conflict, affecting the largest number of people, and where many lives were lost, gets the least coverage in our sample. Comparing Event 3 in Manipur Bills with Event 1 in Thoothukudi Copper Plant, since they are events of a similar nature, we see that the latter gets nearly 5 times more coverage, further bringing out the coverage disparity driven by the location of occurrence, a distinctly felt urban-rural divide. Media Coverage is Driven by Reader Interest Ceteris paribus, what drives this seemingly greater media coverage of urban conflicts? Does it reflect a bias on the part of media, as is usually construed and linked with low trust? Or could there be a more objective criterion explaining this? Like any other industry, the media covers a combination of what is important to make known to a wide audience, and what people actually want to read. Our research, however, indicates that the latter is a crucial driver. The question then becomes, why do readers want to read certain types of news more than others? At least a part of the answer lies in understanding who the reader is. The English-language media reaches about 40 million readers, while the reach of the regional-language media is close to 470 million (Kumar & Sarma, 2015). However, regional languages witness a higher preference in suburban and rural areas, and the circulation of English and Hindi-language print dailies is largely confined to big cities. For example, while The Times of India, Hindustan Times, and Mumbai Mirror are the three most widely read dailies in Mumbai, the most widely read dailies in all of Maharashtra are three newspapers in regional languages, Lokmat, Daily Sakal, and Pudhari (Media Research Users Council India, 2019). Similarly, the two biggest English dailies in Chennai are The Times of India and The Hindu while the three biggest in the state of Tamil Nadu are Daily Thanthi, Dinakaran, and Dinamalar. The Tamil edition of The Hindu is at the fifth position (Media Research Users Council India, 2019). Since the bulk of the readership of the English-language media is centred in and around urban areas, covering issues occurring in close proximity to the readers’ surroundings is of more importance than conflicts that may be much bigger in scale, but unfolding in a distant, rural setting. Famous people, corporations. 36 22
What Drives Media Reporting? Reader-interest may be the key Given that higher coverage of urban conflicts is driven by readership preference, a natural question arises: does this hold true only for land-related conflicts, or is this true for other kinds of crises as well? We answer this question using two case studies of crises not involving land. Here, we analyse social media, Twitter in particular, to get our data on media reporting.37 Case Study 1: COVID-19 Oxygen Availability During the second wave of the COVID-19 pandemic in India from March to nearly July, 2021, several fault lines came to light. One of these was the shortage of necessary medical provisions in hospitals, such as medical-grade oxygen, beds for patients, and medicines. The situation was at its worst in April and May, when the rise in the number of COVID-19 cases overwhelmed hospitals. The scarcity of available and accessible supply of medical-grade oxygen, in particular, became a central issue and one of grave concern. However, the talk on the oxygen crisis seemed to be centred around a few metropolitan areas, even though the problem itself was presumably nationwide. In order to confirm this and to derive insights, we looked at the Twitter handles of nine38 media houses, and scraped their tweets from the beginning of April to the end of May—arguably the worst-hit period during the second wave. We filtered the tweets to see how many of them were related to the oxygen shortages; another round of filtering gave us tweets about Delhi’s oxygen shortage in particular. Figure 4: Total count of tweets containing the word ‘oxygen’; and in red, total tweets addressing ‘Delhi’ as well as ‘oxygen’. Delhi accounted for an inordinately high share of total tweets. 320 Tweets containing the keyword Oxygen Tweets containing the keyword Delhi in tweets containing the keyword Oxygen Count of tweets 240 160 80 0 2021 Apr 5 Apr 6 Apr 7 Apr 8 Apr 9 Apr 10 Apr 11 Apr 12 Apr 13 Apr 14 Apr 15 Apr 16 Apr 17 Apr 18 Apr 19 Apr 20 Apr 21 Apr 22 Apr 23 Apr 24 Apr 25 Apr 26 Apr 27 Apr 28 Apr 29 Apr 30 May 1 May 2 May 3 May 4 May 5 May 6 May 7 May 8 May 9 May 10 May 11 May 12 May 13 May 14 May 15 May 16 May 17 May 18 May 19 May 20 May 21 May 22 May 23 May 24 May 25 May 26 May 27 May 28 May 29 Source: Twitter handles of Hindustan Times, PIB India, Press Trust of India, The Indian Express, The Hindu, The Quint, The Telegraph, The Times of India, The Wire (April 5, 2021 to May 29, 2021). 37 Refer to the appendix for methodology on both case studies. 38 Hindustan Times, PIB India, Press Trust of India, The Indian Express, The Hindu, The Quint, The Telegraph, The Times of India, The Wire. 23
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