Influence of the press on public policy making in Vietnam

UPPSAL.v ^ %i V L R S I T V (SWEDEN) i&
UNIVERSITY OF ECONOMICS AND BUSINESS, VNUH

MASTER PROGRAMME OF PUBLIC MANAGEMENT

Nguyen Huy LOG & Le Ngoc SON

Influence of the press on
public policy making in Vietnam

Supervior:
Prof. PhD. Lars Torsten Eriksson
Local supervior: PhD. Vu Minh Khuong


ABSTRACT

Title: "Influence of the press on public policy making in Vietnam"
Level: Final assignment for Master Program in Public Management.
Authors: Mr. Nguyen Huy Loc and Mr. Le Ngoc Son
Instructors: Prof. PhD. Lars Torsten Eriksson and PhD. Vu Minh Khuong
Date of thesis presentation:

2011 - May

Research questions: Until now, there have been not any methodical researches
on the influence of press on public policy making in Vietnam. The authors
have the ambition to research on the role and methods of Vietnam Press with
regard to criticizing, amending, improving the quality of public policy. How
the activities and criticizing voice of the press contributes to the enhancement
of national management capability of Government.

Methods: In order to analysing the rank of online newspapers and behavior of
audiences, the authors have employed the statistic and calculating tools of
Alexa and Google. As for the analysis of researched situations, case studies,
frequency of published news its content, the authors researched in many
libraries, recapitulated the data of published articles on many topics of
newspapers. After that we employ quantitative and qualitative method to
analyze the data. The authors also examined related documents and reviewed
previous literature, for example: the theories of public policy, the theories of
the press... etc. After collecting diversified information, data and statistics, the
authors brough out the analysis, evaluation and comments. Hence, the authors
employed statistical methods along with deductive methods (bring out an
argument - the press have inlluence on public polic\ - and prove this).

Findings and Conclusions: The authors have proved that in fact, the Press has
inlluence on public policy making in Vietnam. Researching the way how the
press influences on a public policy. This study also show the newspapers which
are operated by the market mechanism (non-fmancing by the State), will have
stronger cflects towards public policy in comparison w ith the newspapers subsidized
by 100% from Slate's budget. The paper shows the significance of social
criticism and civil society, and the enhancement of State management abilit\,
in order to build a public manrrgement backgroimd. Through this the<;t5, the
2


authors also pointed out the shortcomings of the press which have detrimental
influence on public policy making, therefore we can control them in fliture.

Suggestions for future research: Within the scope of the paper, the authors
only surveyed ten newspapers/online newspapers which are prestigious and

popular in Vietnam. On the other hand, because of the limited time and within
40 pages, the authors do not have enough conditions to research deeply on the
negative impacts of the press on policy making, especially the situation in
which press is dominated and cornered.

In future, the authors expect to carry out a more profound research project on
how to bring into play the advantage of the press in order to enhance the
quality of public policy.

The authors highly recommend further study on the influence of social media
on public policies (which is not within the scope of this paper). This is based
on the recent significant influence of social media on social life, including
public policies.

Contribution of the thesis:
- To the policymakers and researchers, this thesis has great meaning when
pointing out the psychology, habit and reading taste of majority of readers in
Vietnam. The surveys in this thesis have showed to the policymakers how the
psychology and hobbies of audiences, accordingly (in future), we ha\e suitable
public policies to their absorptive level. Considering carefulK the absoiptive
psychology will be very helpful to policymakers, managers... when they want
to promulgate an effective policy. On the other hand, this thesis also points out
the impacts of communication to a public policy.

- To the Covernment, this study has partly contributed to help the authorities
consider carefufly whether supplying the budget for newspapers or let them run
under the market mechanism. (Because this study demonstrated that, in
comparison with the newspapers which get 100% of Budget of State, the
newspapers which are operated by market mechanism, have greater and more
positively influence on enhancing the quality of public policy). Besides, the

authorities also realize the positive side and the good effect of social criticism
in a newspaper, then building and encouraging a healthy civil societ\' and
contribute to enhancing the State management ability. In addition, it helps the
authorities to realize the negative side when the press gives information which
do not rely on scientific principles, untrustworthy information sources; or when
the press is monopolized. From that point, we can find out the way of
minimizing mistakes like that.
(Please looking for detail in Result & Conclusions part)
Key words: "Press", "influence", "public policy", "criticism", "civil society",
"amend policy", "policy reactions", "enhance the quality of policy", etc...


Table of contents
1
Introduction
1.1 The aim of the research and research questions
1.2 Extent and unification of concepts
L2.1
Extent of research
1.2.2 Unification of concepts and common comprehension/Explanations
terminologies
2
2.1
2.2

,

6

5
7
7

of essential

Kack^nmnd
The particularity of Vietnam press
The fact of research about press' influence on public policies planning in Vietnam

g
]()
10
11

3
Researching method/ 1 heor> iramework
3.1 Theory of public policy
3.1.1 Main public policy tools
3.1.2 Process of organizing and promulgating public policy
3.1.3
"Achilles heel" of policy making in Vietnam
3.2 Theory of the Press
3.2.1 The Fourth Power:
3.2.2 Theory and classification of journalism
3J
Model and mechanism of mass media
3.3.1 Traditional media model
3.3.2 New communication model
3.3.3 Influence mechanism of the mass media

3.3.4 Influence mechanism of the press to public policy.
3.3.5
The psychology of Vietnam's audiences

12
12
]4
14
15
16
16
18
19
20
21
23
24
24

4
Mana^in^ press p<>he> in \ ielnani
4.1 Guideline of Vietnam's Communist Party on the Press
4.2 Law system of Vietnam's government on press activities
4.2.1 Press Law system and legal documents:
4.2.2 Managing information, press license under legal document system
4.2.3 Administer press activities by la^^f on other mediums

27
27
28

28
29
29

5
Searching situations and analysis
5.1 The positive influence of the press on public policy
5.1.1 Effect on taking shape the policy
5.1.2
The influence on the policy drafting.
5.1.3 Influence on adjusting policies / managing policy / assessing results
5*2 Negative influences of the press on public policy, and the **herd mentality" of the
pre9s37

31
31
H
35
36

6

•*"

('ftT' Sivions

42


1

Introduction

1.1

The aim of the research and research questions
In early October 2008, Ministry of Health of Vietnam has issued a rule which
surprised public opinion: "ban on riding 55cc motorcycle of flat-chested people"
(the full name of this rule was "Health standards for the vehicles driving).
Accordingly, those who have average bust below 72cm are not allowed to be
issued Al driving license, which means that they are not supposed to ride
motorcycles of over 50cc - the most popular personal vehicle in Vietnam. As
soon as it is published, the policy draft has raised strongly disagreement among
press community. Experts have their own views of different perspective such as:
under medicine viewpoint, doctors believed that it is reasonable; under legal
aspect, lawyers said that this rule violated human rights and policy enactment
process. After the argument, at the end of October 2008 Ministr> of Health has
withdrawn the rule themselves. (This case studv will be further discussed in
5.1.2).
Some other policies drafts of Vietnam's Ministries (event ones have been issued)
had the same situations.
What brought the remarkable change in policy like this? It is proven that Ihcre
have always been great impacts of the press on policy making. The role of the
press in terms of defending, providing altitudes of society has developed the
vitality for a civil society built in Vietnam. Therefore, the authors of the paper
have the ambition to exploring how the Press influence on public policy and
policy makers. The supplemental questions were: How the Press discovers a
public policy is group benetlcial but not common community beneficial? What
are the differences between how Vietnam's press influence on and that in
Western countries? How would the policymaking be influenced if the Press is

dominated the public opinion? In solving these questions, the authors expect to
find out the roles of the Press in public policies improving in a developing
country like Vietnam; the inevitability of the press freedom and a uholesome
civil society.
The authors have employed two press groups to measure the real influence of
each group to the change of a public policy, the first group is 100% state
subsidized | 1 | , and the second group is self-governing according to market
mechanism |2|. The authors aim at proving that the second group, which is due
to market mechanism and regulation and meet majorit) of people benefit, have
stronger influence on public polices rather Ihan the first group, which received
subsidies and passively reflects public policy to the readers. As a result, the
authors would like to suggest several policy recommendations consistent with the
real situation in Vietnam.

«


1.2

Extent and unification of concepts

7.2.7 Extent of research
This research was implemented on Vietnamese newspapers which are printed and
released in Vietnam. The paper does not research on other media fonns (such as:
personal web logs, social network sites) and radio and television broadcasting.
The authors emphasize on two types of newspaper: printed newspapers and
online newspapers, which have had the greatest influence on public opinion in
Vietnam now. The sampled newspapers are selected based on their release
number, readers number/readers visit, prestige, and practical influences in
Vietnam. Recently, newspapers have had increasingly positive contributions to

Vietnam's development- therefore the authors pay attention on case studies
(policies influenced by press) which are mainly under the term of Prime Minister
Nguyen Tan Dzung. Legally, the features of Vietnamese press are State owned,
and there are no existing private newspapers, hence, two groups of newspapers
are researched on are:
- Group 1: Newspapers arc run 100% by state budget and have been
considered as official mouthpiece of Communist Party of Vietnam and the
Vietnamese State: Nhdn Dan Newspaper (the official newspaper of
the Communist Party of Vietnam). Ha Noi Moi Newspaper (the official
newspaper of the Communist Party of Vietnam. Hanoi City), Sai Gon Giai Phong
Newspaper (official newspaper of the Communist Parly of Vielnam. Ho Chi
Minh City), Chinhphu.vn online newspaper (agency direct under Vietnam's
government. Dang Cong san Viet Nam online newspaper (under Central
Communist Party of Vietnam).
- Group 2: Self-funded newspapers (even having contribution to the State) are
often owned by organizations: Tuoi tre Newspaper (newspaper of The Ho Chi
Minh Communist Youth Union Ho Chi Minh city); Thanh Nien newspaper
(newspaper of The Vietnam National Youth Federation); Tien Phong new spaper
(newspaper of Center Ho Chi Minh Communist Youth Union); Dan Tri online
newspaper (newspaper o{ Vielnam Association Promoting Education):
Vnexpress.net online newspaper (online newspaper of Ministr>' of Science and
lechnolouv of Vietnam).
Wc will survey two press groups. Each group has five newspapers (3 printed
newspapers and 2 online newspapers). Total arc 10 newspapers and the detail in
table helow :
•# U

1dm

.71 LT ', : -9 « T

Printed newspapers

Online newspapers

Nhan dan, Ha Noi moi,

Dang Cpng san Online newspaper
(),

Sai Gon Giai Phong

Chinhphu.vn Online newspaper

Group 1

()
Group 2

Tuoi Tre, Thanh Nien,
Tien Phong

Dan tri (www.dantri.com.vn),
www.vnexpress.net

Table 1: The newspaper samples are chosen to research the situations.
In particular, as our survey, on Alexa website - an online ranking analyzer, the
online newspapers www.dantri.com.vn, w^vs^w.vnexpress.net, www.cpv.org.vn,
www.chinhphu.vn are ranked as follows:

Newspapers name

Rank among
Vietnam^s online
newspapers

Rank among online
newspapers by Alexa

www.chinhphu.vn

419

65195

www.cpv.org.vn

5371

571780

wvsw.dantri.com.vn

8

688

www.vnexpress.net

3

350

Table 2: Rank of online newspapers. (Update by the end ofApril 2011)
1.2.2 Unification of concepts and common comprehemskm/Explanations of
essenUml terminologies
• In this research, the tenninotogy "prcM** denotes printed and online
I, which were chosen accorxling sadion 1.2.1
tf* dcMto folicies released by Vietoon's Oovonment which
iMve the Influence on nHMt of people and are applied iH orer Victnan terriiory.
"CSvt Society**: In Vielnam. all activMn « t ontfer tfw leadarahip of
I Communist Party of VIr—n. and miwi^iyri are all stite-owned, therefore
m% f i ^ **praM** aocorUng to Westarn coontriea' ooaeepis. Hence, ''civil
In VtMlMl b still • new coSMpt. Ilirough examining, we found that


civil society has been existing in Vietnam for years. Briefly, those are social
organizations excluding that work independently from the Government, business
activities (or the market) and household, to connect the civilians in activities
toward a common goal. Therefore, the important civil elements, which include
associations and organizations, play an as the community connection function,
important part in the society. Everytime the press publishes the opinions of
experts, scientists, association leaders about the Government's policies, the
activities of civil society in Vietnam are manifested.
- "Policy criticism": is the publication of opinions by civilians, scientists,
association leaders, etc... on the defects in the certain public policy (or the a
public policy draft). This criticism tends to develope and contributes to a beUer
and higher quality public policy. Criticism does not mean a denial.
- "Policy amendment'': After receiving the comments from the press, the
governmental agencies recognize them, and adjust the public policy to complete

it. Thus, through this amendment, the quality of the polic\' is improxcd.
- "Policy reaction" is understood as the reaction in which the Government
promulgates a new policy (it expresses a response of the Government) after
receiving the comment and criticism from the press. This new policy can be the
withdraw of the formerh promulgated policy, or the improvement of the old one
(according to the comments of the press).

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2 Background

2.1

The particularity of Vietnam press
By the end of 2009, Vietnam has 706 printed press agencies, including 178
newspapers (76 central newspapers and 102 local newspapers) and^ 528
magazines (414 central magazines and 114 local/provincial magazines). In the
field of radio and television. Vietnam has 67 radio - television broadcasting
stations, including 03 broadcasting stations at the central level (VTV. VTC,
VOV) and 64 of local/provincial level, particularly Ho Chi Minh Cit\ has Ho Chi
Minh City Television station and People's voice of Ho Chi Minh City. In terms
of electronic information, there have been 21 online newspapers. 160 websites of
printed press agencies and thousands of websites embedding infonnation of the
Party, State and Government, unions, associations and enterprises. Also by the
end of 2009. Vietnam has more than 16.000 journalists who had press card'.
Every year, the number of newspapers published in the countr\' is about 600
million copies. The average copy for each person is 7.5 per \ear. Most people in
major cities are able to read daily newspaper ^.
In Western countries, people highly appreciated the role and inlluence of the
press on all aspects of social life, and the press has "the fourth power" after the
legislature, executive and judicial. In Vietnam, the concept is being ebullicnily
debated. Some theorists of Vietnamese Communist Party rejects this notion,
arguing that the press is a tool, a "tongue of the Parly" - Assoc.Prof PhD.. Dinh
Huong, head of the Journalism Department at the University of Science Social
and Humanities (Hanoi National Uni\ersity) agreed and stressed this point.
However, regardless how the concept of press is understood, it still has its own
power. It is proven that there are facts to be exposed on the papers, and then there
are policies must change. People often think about this invisible power.
The role of the press is particularly important in the fonning and promulgating of
policies in Vietnam, aiming to develop a transparent society. Many leaders of the
Vietnam's Communist Party and Government. Congress... conceded that most of

the corruption cases were discovered and to be adjusted by the press. At press
conference in early 2010. Prime Minister Nguyen Tan Dzung has highly
appreciated the role of the press in the development of the country. He confirmed
that (he press are mi>re and more prompt, proper and strong in temis of
profession, and "has tremendous and positi\e social impaet" in terms of politics^

' Data ut ihc Minibtn o( Information and Communications announced at conference on the the work of the
press. April, 20"\20'l0
• F:)uong Xuan Son: The role o\ printing p r o s in X'ietnain in the rcno\ation period, the exchange process,
receiving and integrating international cuhure.
* Prime Minister Nuu\on Tan Dung: The press has contributed greatly to the general achievement (available at
http; 'suckhoedoisong.vn^2t)l()OI08074574S6p61c67ttui-tuong-diinh-phu-nguyen-tan-dung-bao-chi-co-donggop-to-lon-cho-su-nghiep-chung.hlin, cited on 26 4/2011)

10


Within a Sweden project supported 1.2 $ million to establish journalistic skills
training center in Vietnam, Mr. Staffan Herrstrom - the Swedish Ambassador in
Vietnam - has emphasized ''the professional and qualified press is crucial to
develop a democratic society, as well as enhance the economy. The openness and
transparency of information are key elements to fight against the corruption and
mismanagement. We believe that it improves the quality of press and contributes
to the freedom of speech''. As a former journalist, a politician and a civil serx^ant.
J fully believe that the right of freedom on information and a professional and
high qualified press are key elements to expose the corruption and
mismanagement. In my opinion, this combination is a most effective tool'\..^
2.2

The fact of research about press' influence on public policies planning
in Vietnam

As far as we know, in Vietnam, most of the studies only shared the social role of
press in general. There has not been an exhaustive study referring to the inlluence
of the press on public policy.
In China, where the ideology resembles Vietnam's, when wc search some
documents at a university and use some searching tools (in English and Chinese),
we could not find any documents related to the stud\ of eonnection or impact of
press towards the public policy making. Some of our colleagues believe that this
is a fair sensitive topic in China. In Western countries, there are quite many
documents related to the searching. However, comparing to the realit\ in
Vietnam, these studies still have been inappropriate and abstract to the colorful
reality in Vietnam, at least under their viewpoint. Many studies or articles shared
that Vietnam press is just one tool of Vietnamese Communist Party, hence their
main function is to protect the benefit o\^ Communist Party. However, the
argument is inaccurate because the reality of Vietnam press is quite diversified.
More or less, under this side or the other, the press will continue its contribution
to amend the shortcoming of public policy. It is the press community which have
been an important channel to help Goxemment grasp the real situation,
promulgate and adjust the public policies, contributing to build a good
governance.
The above analyses have shown that studying on the infiuence of the press on
public policies making in Vietnam is quite new and there are still not any
methodical research.

^ The Swedish Ambassador in Vietnam: transparency of information help against corruption (available at
vielnam-incdia-swcdcn-108442709.html, cited on 15 4 2011)

11


3

3.1

Researching method/ Theoir framework
Theory of public policy
In order to analyze the connection between press and public policy, as well as the
influence of press on public policy, we need to have comprehension of tenns.
Namely, what is a public policy?
In Vietnam, this term has appeared for recent ten years, it may be because of
Vietnam's deeper integration to the world, and because the government needs to
have some tools in order to adjust. One of the most regularly used and effective
tools is the policies. In some developed countries and international economic
organizations, "Public Policy" is a popular tenn. We can refer to some concepts
as follows:
Public policy consists of some actual operation carried out by government (Peter
Aucoin, 1971).
A Public Policy is a set of interrelated decisions taken by a political actor or
group of actors concerning the selection of goals ami the means of achieving
them within a specified situation where those decisions should, in principle, he
within the power of those actors to achieve (WiHiiim Jen kin, 1978).
Public policy is whatever governments choose to do or not do (Thomas R. Dye,
1984).
Public policy is all activities of the state that affect directly or indirectly
citizens' lives (Peter B. Guy, 1990).

all

Public policy is a complex combination of the interrelated choices, including
decisions not to act. set by state agencies or state officials (yViUiam \ . Dunn,
1992).
Public policy consists of political decision for implementing programs to achieve

social goals (Charles L. Cochran and Eloise F. Midone, 1995).
In plain words, public policy is a combination of activities of the government /
authorities, directly or through agents because it affects the lives of citizens (B.
Guy Peters, 1999).
The term public policy is always just the actions of the government / authorities
and the intention to decide this action, or public policy is the resuh of a struggle
in the government to make a decision who achieves something (E. Clarke
Cochran, et al, 1999).
Policy is a course of purposeful action that an individual or a group
pursued in solving the problem (James Anderson, 2003).

consistently

Public policy is a course of action or inaction of the government in response to a
public problem. It is associated with methods and policy objectives that have
12


been formally approved, as well as the rules and practices of the authorities
implementing the program (Kraft and Furlong, 2004).
As analyzed by Assoc.ProfPhD.
acknowledged:

Le Chi

Mai\

public policy

can be

Firstly, the initial subject to promulgate public policy is government. If the
subject promulgates "private policies", such as some private organization, sociopolitical unions, as well as some governmental agencies which adjust the
operation in scope of organization, union or a special agency, the subject
promulgating public policy just can be the agencies of govemmental machiner\.
The thing is that agencies in govemmental machiner>' is the subject promulgating
both public policy and "private policy". The difference is that "private policies'
promulgated by the agencies of State just solve the their internal issues, but not
have the validity out of their scope.
Public policy is promulgated by the State so it is possible to consider public
policy as the State policy. The term "State*" is the jurisdictional authorities in
governmental machincr}\ included Parliament. Ministries and all levels of local
government.
In Vietnam, some newspapers often mention a phrase "policy of Communist
Party and State", so there is an opinion showing that Communist Party is socalled the subject that promulgates public policy. This can be explained by the
particular reality of Vietnam. Ihe Communist Party of Vietnam is the only
political force leading the State and society. The Communist Parly leads the State
through mapping out the political programs, strategies, orientation of policy directional base of State to promulgate public polic>.
Secondly, these decisions are action decisions; it means that they consist of
practical actions. A public policy not only demonstrates the plan of policymaker
on particular issues but also consists of the executing behaviors of the abovementioned plan.
A public policy firstly expresses the plan of policymakers in order to change or
maintain a certain actual situation, lioweven if it is just the plan on paper, it is
still not a policy. Public policy must consist of some executing behaviors of the
plans above and bring in the actual effectiveness.
If considering a public policy simply as the guidelines by the State, it is right but
not sufficient. If there are not actual implementation to achieve some particular
results, these guidelines is just the slogan.
Thirdly, a public policy focuses on solving a socio-economic issue aiming a
specific goal. Public polic\ is an action process in order to solve a certain

problem. Unlike other management tools such as strategies, plan of State is the
general action programs including one or some socio-economic fields. The

' Social Insurance Magazine, issue 4, 200S

13


feature of a public policy is that it is defined and carried out in order to solve one
or some mutual related issues in social life. A public policy is only generated
when there is the existence or risk of a problem requiring the solution. Policy
matter is considered as the contradiction or requirement of changing the actual
state which appears in socio-economic life. It requires State to use public power
and its influence to solve the issue. It can be said that policy matter is the nucleus
of the whole policy process (include the stages of defining, enforcing and
assessing the policy). Solving above-mentioned problems aims at targets which
State want to get.
Fourthly, public policy consists of some interrelating decisions. First of all,
we should not identify the concept of "decision' here with administrative
decisions, and also it is impossible to consider it just as lawful acts of State. The
concept of'decision' here have larger semantics, it can be considered as a choice
of action of State. Ihese choices may consist of law, under-law decisions, even
thoughts of leaders showed in their statements or acts. However, policy is not
synonymous with a particular law or any certain document. Policy is a chain or
series of decisions aim together at solving an issue, promulgated and enforced in
a long time by one or more different levels in governmental machinery. A policy
can be institutionalized to law normative acts to create legal basis to
enforcement. However, it consists of voluntar\'. directional and simulati\e act
projects.
From the analyses above, we can reach a conclusion of how to understand the

term ^"public policy": Public policy is the term denoting a series of decisions of
State to put into action in order to solve a common existing issue in socioeconomic life and following a defined goal.
3. /. /

Main public policy tools

hi Vietnam, policy tools include: | 1 | Strategy of socio-economic development for
ten year term and five year term; |2| Law normative acts such as Laws, Decreelaw, Resolution of State, decree and Resolution of Go\ eniment; resolutions by
the Prime Minister and Circular of Departments; 13| Administrative resolutions
as strategies or planning of each branches or regions in particular that are
approved by Prime Minister or Ministers through administrative decisions or
official correspondence.
3.1.2 Process of organizing and promulgating public policy
According to the "Vietnam's Competitiveness Report 2010"''. while there were
clear guidelines on the procedure for promulgating law nonnatixe acts following
Law of,Promulgating, procedure for promulgating adminislrati\e regulations is
not fixed clearly and slill arbitrary

" Th;it R-portis lla- researching achic\emcnls and coo|u..ition between Central Institute of EconomK
ManaucmcTit fOFM). I cc Kunn Yow Scho.^l otPiihlic l'oIic> C^ingarorc) and Profc^^or Mithac! P
(Harvard BU.SUKSS School).

14


Procedure for building and promulgating law normative acts (following Law of
Promulgating) is summarized: Depends on a specific policy, a Department in
charge of a particular field (related to a specific policy) will put forward the
construction and promulgation of a law normative art. In order to carry out this
task, the Department will establish a section of drafting and examine current

policy concerned, conduct Regulatory Impact Assessment (RJA)\ develop a policy
draft or regulations and it submit to other departments of Government and related
Department to examine and collect suggestions. After finishing consultation, the
responsible Department will submit the draft to Department of Justice in order to
assess the necessity, suitability, legality and compatibility of the Draft. When
approved, this draft will be submitted to the Government. It depends on the
legality of the policy document, the draft will be reported to Prime Minister or
Parliament to discuss and approve.
Administrative decisions are not necessarily to observe any specific process, so
the promulgation of the similar drafts is still discretionar>' nature. Theoretically,
promulgation of administrative regulations comply the general process of
promulgating law normative act, but it is not necessary to send to Department of
Justice for assessment or submit to Pariiament for suggestion and approval.
Depending on form of administrative regulation that the document will be
promulgated by drafting agency (such as: Departments, Sectors or People's
Committee) or Prime Minister.
Following a study by Professor Kenichi Ohno (2008), the current process of
policy drafting in Vietnam can be demonstrated in below map:
Prime Minister
- Excellent technocracy group under

Policy of

the guidance of Prime Minister.

guidance

- Selection of qualified specialist, young and supcrvisic
civil servant.
- Simplifying administrative procedure

t

Carry out and
Report honestly

Technocrat Group
(Policymaker)
Policy of
guidanctt

Carry out and
Report honestly

Dcrcc^D
'vcing Pol
3: Proeam ^^aihnjt
XIJ

policy in Vietmm (by hvfmaar Ktnichi Ohno)

"Ackmts ketr «(fpoik} imUHg in y^etMm

im

to the "Viemam't CompetUhtneu Report 2010". the development
of public polic> hi VidMni i^ still weik. Poiicy-auiking is
on v«y Halt (or even not feMii on) information.
15

evidence. While the quality of policy at higher authorities level (e.g. legal
documents and policies by Congress or the Government issued) have remarkably
improved, especially after accessing into WTO, the quality and the applicability
of regulations and policies at lower levels (by ministries or local administration)
still have not been consistent. The consultation with experts and other individuals
and organizations outside government have not been properly focused. In fact.
Vietnam is not lacking in planning, policy planning, but these projects or plans
were built separately, lack of connections, leading to the confiiction. The lack of
connection between the international aid organizations in Vietnam with the
priority areas or different interests also cause the limitations in the policy
consultation. The long-term plans exist separately from the specific action
programs in the short term. The monitoring, assessment whether the policy has
been accurately implemented is often not done a systematic way.
3.2 Theory of the Press
3.2.1 The Fourth Power:
The press is considered as 'The Fourth Power". This conception appeared during
the latter half of the 20th century, especially after a political scandal (called fhe
Watergate) led to the President of the United Slates. Richard Nixon's resign in
1974. So far, he was still the only President of the United Stales who had to leave
his incumbent position because of the articles by tw^o journalists Bob Woodward
and Cari Bernstein of Washington Post.
Turning back to the late I8lh century and eariy 19th centur>' to learn about the
'^Ihrec Powers" (and then the ^Tourth Power"), we can see isn the United
Kingdom (the UK), Three Powers were disposed in the Senate, including the
InstUute of Clergy (Lord Spiritual), the House of Lords (Lords Temporal) and the
House of Commoners (Commoners); in France, power was also divided in the
same classes but under different names and forms (The Church, Lords and
Citizens). Later, the concept of Three Powers referred to three sections of law:

legislation, executive and judicature. However, people are always aware that this
decentralization could onl\ be effective to ensure the freedom and democracy if
it had the fourth Power: the right of accessing and providing infomiation and
freedom of speech, which were expressed through the press": ''Mass Democracy
cannot work without a mass media''' . Since then the "Fourth Power" term
emerged.
fhc World Association of Newspapers and News Publishers. (WAN-IFRA) affirmed
that the Press-Publishing could be compared to "nervous system" ot the
know ledge economy, pro\ iding to entire "body" a huge amount of information,
from stock index to financial scandal of a company or an upcoming'mergence. In
short, the press serves the economic development.

' Media and Dcmou.icy, The K \F De.nocru v Report 2005. Konrdd Adenauer r.und.t..n. H^MiVKT.
2005

16f


The role of the Press has become remarkably more important when the Worid
Bank (WB) emphasized the importance of institution and pointed out that no
social institution can do better than independent press in monitoring Government
and fighting corruption. "Most countries have difficulties in development due to
the Governments and the Institutions created breeding ground for corruption. If
the mass media played a role as "the honest broker of information", thev could
not be a cheerleader for the Government. This could lead to uncomfortable
situations for Government, but these situations must be solved openly,
satisfactorily, or it would ruin the foundation of economic development.
When the Press is "'the honest broker of infonnation", it becomes an effective
weapon to eliminate the corruption. Such as in 2003, in China, the mass media
coordinated with the state auditor, brought to light the violations of Ministr\ of

Finance, Ministry of Education. Ministry of Communications and a series other
governmental agencies.
According to Dr. Le Dang Doanh (Former President of Central Institute for
Economic Management of Vietnam), in Korea, "All people ^s and businesses'
papers and documents arc officially publicized in terms of who processes,
expected rate of progress and other processing information. People also get
access to seek the information from their mobile phones. Information technology^
and regulations is no longer encouraging stajfs to directly contact with the
clients, and that reduces harassment^
Vietnam for the last few years also ha\'e many questionable cases that were
reficcted strongly by the press, from the violations in PMU18'' to the PCI **
scandal, and recently audit results on the income of a number of the State Capital
and Investment Corporation (SCIC) .

8 Cheerleader means person who generates acti\ities to support something (good or bad
purpose)

9 PMDIS: its abbre\ialion is Project Management Unit, uhich means the Management Board of Project 18. The
PMIII8 was a scand.il related to corruption and began to be knovn-n sine Januar> 2006 when the General Director
PMl I. Mr. Tien Dung Bui was accused of betting on football for $1.8 million. Alkr that, the case got veo complex
changes, such as two Vielnamese journalists Ngu>en Vict Chien (llianh Nien Newspaper) and Nguyen Van Hai
(lu(M Tre Newspaper) were arrested (Ma\ 12. 2008).

i« The PCI: I'C 1 IS an abbrev laiion ot the Pacillc Consultants International (Japan). In June 2008. Japanese media
reported that some otlleials of this con.pany had bribed hundreds of thousands of I' S dollars to Vietnamese partner
to win the contmet. Character received this grart who was named was Mr. Ngoe Si Uuynh. the Deputy Director of
Public VNorks and Transport m llo Ch. Minh Cit> and Director of Project Management Unit l-asl - West Uighway.

n S C K - stand, for S.ate C'apital and hnc.iment Corporation. This is a large-scalc stalennvncd enterprise has
f\incti<.n in managing and investing state capital, a. the Goxemment of V'ictnam representative. December 2009.

17


3.2.2

Theory and classification of journalism
An American political scientist, Mr. Robert M. Entman divided journalism into
four sections: Traditional media. Tabloid. Advocacy media and entertainment.
Criteria for this classification is based on whether the section obserxed five
principles of journalism or not. Five principles are: fl] accuracy, [2] faimess. [3]
government monitoring, [4] Distinguishing reporting and commentar\. reporting
and advertising. [5] do not set the profit maximization as a highest purpose.
Traditional media is the section which observes all five journalism principles.
Accordingly, an exemplary journalist primarily is one who reported accurately,
truthfully, such as using reliable sources, citing comments and documents of
responsible agencies. Secondly, journalists must be fair as follows Entman's
definition "Having equal treatment to all parties" and keep personal opinions
independent and objective, fhirdly, journalists must be courageous to perform
the monitoring function to government, and forces goNcmment accounting.
Moreover, the Press not only aims at government but also all others power
agencies, others sections (e.g. communities of the business and doctor...) who
are able to take the opportunity of their social advantages to profit illegally.
''Distinguishing reporting and commentary" means an article should pcrlbmi its
functions without personal commentary, or subjective assessment. Similarly, the
reporting must be clearly independent from advertising acti\ ities.
These characteristics lead to the fifth principle of traditional media: profit is not
the highest purpose.
Tabloid may tend lo make accurate and fair reporting, but it does not aUaeh the
function of monitoring government. It has an notable feature: maximizing profits.

In this regard, tabloid is similar to entertainment media, of which the first priority
is profits, and the second is to make fun. to help readers relax, and regardless the
accuracy, fairness and truth (except those run for the profit purpose).
Advocacy media is a quite new concept. According to Robert M. Entman. this
section considers the monitoring society is as the top priority. It does not focus
on profits (even in many cases, it accepts losses), but it tends to how to expand
its social infiuence, which is reflected by its infiuence on state policies and
aUiludes of public opinion. Of course, these editorial offices have all own point
ol^ \ iew. Ihc reporting and commentary of ad\ocacy remarkabh depend on
standpoint of these newspapers. Although news is truthful, it will be rejected
once il conllicts Ihe views of editorial board. In this case, factor of accuracy max
still exist, but objective and fair factors are not guaranteed. With these
characteristics, the term "advocac> media" can be understood as "propaganda
press". However, they do not propaeandi/e for the policies of government, on the
contrarv. tor the critical standpoints against goxcrnment (true or false).

people panicked when the state auditor released the salary of SCIC leaderships over 78 million Vietnam Jong per
month (about S4.500).

18


According to Robert M. Entman"s classification, we have tried to collate with
Vietnam's market and found that Vietnam has some traditional newspaper, such
as: Tuoi Tre, Thanh Nien, Tien Phong, etc... and some entertaining magazines.
such as: Dep (belonging to Vietnam News Agency), online newspaper
www.ngoisao.net (belonging to Vnexpress, FPT Corporation). An obvious
example of an advocacy media is VietnamNet.
Today, some press and media principles by Mr. Entman may not be something
new with Vietnam journalists. We believe that if consulting some of Vietnam

journalists, majority of them will say cleariy that the true media have to execute
the function of refiecting the news and supervising government, social criticism,
along with the requirement of exactitude, fairness and objcctification.
That is the backbone features which the Western press has leaned on for a long
time. Nevertheless, for about two last centuries, the development of Intemet and
many forms of entertainment has led to the instability of traditional press* throne.
In "Losing the News - fhe Future of the News That Feeds Democracy''. Alex
Jones wrote: "When the news of government supervising becoming so boring
and we have to choose what to report based on which draw readers" interest
most, instead of the importance of news, that is when some standards of tabloid
is used. Some traditional newspapers extremely prompt I \ become tabloid.
Current trend is tabloidi/alion the foundation of a journalism of which profit is
top priority but not public benefit associating w ith profit."
rhal trend is the threat of American journalism and it is familiar with Vietnam,
although Vielnam journalism is on the way of professionalizing process separating from propaganda and satisfying the above-mentioned standards.
Vietnam's journalism at the same time has to professionalize and turns into
tabloids
As remarked by Ms. Doan frang (reporter of Phap luat Thanh pho Ho Chi Minh
newspaper): as the present journalist generation, maybe some of them will feel at
once lucky and unluckx. It is lucky because we are working in a transferring
country, of which the society has man\ things unknown, requires to know and
need to be known, here the needs of infonnation among readers is especially
high. Manv newspapers always have market blanks to fill up. Journalists have
manv topic to write. However, it is also unlucky because we are under the
pressure of following the momentum of professionalization and tabloidization of
the press. While Western countries have gradual!) experienced in many \ears, in
our country, we must have experienced in a short period, fhe trend ol
tabloidization came exceedingly soon while Vietnam journalism has no\ been
mature to stiftlcientlx play "the Fourth Power'' role
3.3

Model and mechanism of mass media
l o evaluate, measuic liow the press atTects a public policx. we need to know
about the mechanism of mass media.

19


3.3.1 Traditional media model
Claude Shannon's studies have simulated activities of communication as follows:

N^^#Channel ^
, ^
.^
Encoder ^
xT Decoder k-KT Receiver^
w Message

Feedback
i

Picture 1: The Shannon - Weaver Model

Through this model, we can research, evaluate each factor, each relation in
communicative process. It is also a condition for press finds effective methods so
that to improve its influence on policies.
According to Dr. Ta Ngoc Tan (President of Ho Chi Minh National Academy of
Politics and Public Administration), in history of public communication, there
were two basic models. The first one is imposed one-way model and the second
is flexible two-way model .

Regarding the first model, the imposed one-way communication, in which,
information is transferred on-way from sender to receiver. In this model,
recourses are the most important. Those who hold power of mass media just
focus on what they want, therefore information are provided passively without or
with little contribution from receivers.
This model suit with the condition tn which receivers do not have the direct
feedback chamiels. Books, newiptpers, movies, and even radio, television in the
first generation just transferred informabon lo iccdven in one-way. The study on
people's infonnation r^qwcments w « indepandent to rtic information releasing
process. On the other hand, people formcrty often recefved information in
ft way. The lack of information fesourcea, the autocratic social
cultuni aad eonventional prejudice hava cmtaed the complacent of
ptople \n {nfdrmation receWing.
MT«N«DcT«n(2Ml),

20


Thanks to social development, improvement of common knowledge and the
democratization, the first was in the risk of collapse to be replaced. Moreover, the
constant development of technology encouraged the formation of two-way
communication between sender and receiver. Under these conditions, the flexible
two-way communication was generated.
Flexible two-way public communication - is the model in which
communication process occurs contentiously, directly, both sender and receiver
have the opportunity to select messages.
In this model, receiver's role was discovered to be vital. As the infonnation
receivers, their activeness is expressed through the way they select which
message which be receive, show their feeling, have the requirements on
information as well as become crucial factor in public communication process.

For example, on the Internet, people almost are not restricted in selecting and
receiving information. During the communication process, the subjeetive
imposition of sender has little meaning or, in many cases, no effect to other
elements participating in the process.
This second model refiects a high level of human social dcvelopmenl in all
aspects of economy, science, technology, culture, social... To guarantee about
result, market research plays an important role. I hanks to the research findings,
communicators know people's requirements and suitable methods to provide
with communication products. In fact, the second model is logicall) generated
from the first model to adjust new conditions.
3.3.2

New communication

model

As in the development of technology and intemet in general, the emergence of
social network websites (e.g. Facebook and fwitter) in particular, the new
communication \\a\ was established. The press histor\ has showed that its
development often associated with new technology. In 18' Centur\. printed
newspaper appeared after the invention ol^ printer b\ molds; The first radio
broadcast emerued in U)4()s after the transmission lights. In 1983. Americans
invented the term "internet" after the discovery of this izlobal network. Four years
later, with the ad\ent of technology, "world wide web'"", the real Internet growth
worldwide and intemet media (the press release on the network) was generated.
Online newspapers - the type of press released on the Internet - have gradually
changed the former habit of reading newspapers, listening to the radio, watching
television and therefore affect the information cojlectimi and distribution of
traditional press. According to a study by the Pew Internet Project Network
(^cpnducted from Icbruary 2009 to lebruary 2010) m the U.S.. 92% of readers

are involved in the multi-media, and only 7% of readers Just read on one fonn of
newspaper.
.-,:.,,-,

J I iin Ikrners-Lee is considered as Uie loundcr of world wide web.


The trend of integrating different types of media and technology is a feature of
journalism in the Intemet era. Public requirements today for the press: / Want:
what I want, when I want it, the way I want it. Public/ users of modern journalism
do not just receive content, but also contribute to develop and send content to
press agencies, the general subject of the press works. We are now have a newmedia model, media model more democratic. Each individual in this era of
information can satisfies the desired media more and more.
Some people thought that basic characterisUcs of online communication is
interactiveness. However, we do not agree with this opinion. In our perspective,
radio, television and newspapers are also interactive. The ability to customize, is
featured only in the online newspaper.
Obviously, personalization allows the public to receive asynchronous
infonnation and a scries of other possibilities. Localization ability, the ability to
change color, interface... Renowned online newspapers suchaswww.bbc.co.uk
(BBC Group) or www.voanews.com (Voice of America) has developed se\eral
versions for different countries with appropriate content in their mother language,
of course. VOAncws has 62 online channels in 62 languages while the number of
the BBC is 33.
Feature of personalized information of online newspaper also allows users to
design the "newspaper" themselves. According to a research by Pew Internet
Project report online, it "appears" model "3P": | 1 | Personalized: 28% of online
newspapers readers want to customize the home page at their will: |21 Portable:
33% of users use the portable devices; | 3 | Participatory: 37% of intemet users
share what they read, and their comment on the popular social networking sites

such as Facebook. Tw itter. etc.
In theory, the customization (personalization) allows users to change the module
of a newspaper by a software which has variety of options. For example, users
who prefer to read sports news can rearrange to mo\ e the sports section to home
page, or they can redesign an online newspaper until they satistS'. such as
changing fonts, font size, background color o( online pages, the color of
manchette... Media nowadays has developed to the peak that journalism is not
exclusive an\more, anyone can participate in this acti\ity. The concept of
^^citizen journalism'^ is employed by American press theorists to refer the
conununication activities of those who are not professional journalists,
(icncrallv, citizen journalism is an acti\itv. in which non-journalistic people
collect, analyze and share infonnation on the mass media.
Currently, the Vietnam's press theory still have not concluded a elear summary
or predicted ftdl report on the above characteristic of online newspapers because
the hitemet is rapidly and increasinoly complete. However, under the perspective
of theoretical analvsis. we can see the ability of information personalization of an
online newspaper depends on 111 the creativeness of Uie newspaper and [2J
technological capability.

m


According to Phan Van Tu (Journalist, Vice Chairman of Dong Nai Journalists
Association): "Information personalization of online communication can be
considered as follows: a special capability of this type of press enables users to
freely select the information they need in time (to receive asynchronous
information), in the way they want. This feature shows the difference of online
communication model as compared to traditional communication.
3.3.3 Influence mechanism of the mass media
As mentioned above, the pragmatic model of mass media activities continuously

develops and suit for the specific historical conditions. In fact, all models have an
interaction of two-way information. The main distinction considered here is
which way have the domination how the two-way information interacts. In any
model, the source of information always has a tendency, which is decided by the
purposes of the information sources on social influence. Understanding of the
influence of media on society is to clarify the aspect and method of operation of
mass media in order to achieve the desired ctTcctiveness.
Mass media influence on society via information is demonstrated as the
following mechanism:

SUBJECT

4

MF.SSAGK

4

SOCIAL

SOCIAL

CONSCIOUS
NESS

BEHAVIOUR

Picture 2: Influence mechanism of the mass media

As shown on the chart, each subject builds a message containing information

which is conveyed to the society through the media means. The process of
creating the message always has a tendency. In other words, purpose and
perspective of the message sender always affect and decide the tendency of
containing information. The tendency of containing information is expressed
through the selection and handling of information, data, level of awareness,
analysis and assessment methods and dncct statemcoiA.
Information via the media nmm infloences on social consciousness, from that
point to fbrai the knowtodfe, iMding to new attitudes or «kanges in old attitudes.
The c h a M t In social conaciflMac* wM lead to social behavior and then create
aoeitl LfftiUlTinwi UAnMHoa lUiHiiiii m iMvMably tendency lead to social
t n d n c y in bdwvlor TendMcy of Wtiil Mwvlon are abo alifMlated by the

scale, fanuie as weU as the tsadency of InfonMlion

23


On the other hand, according to Ph.D Ta Ngoc Tan, social influence bv mass
media also depends on public awareness of the information. Process of public
approachmg information includes: Firstly initial perceptions of public plav a
fundamental role for the approach. These are the knowledge standard social
experience, socio-political opinions together with the complex from religious
creed. Secondly^ the interest of object to the source of information. People focus
on mformation when it is necessary or meant to them. Thirdly, public assessment
to the source of information. This assessment is an important entrance leadins to
the mformation receiving. Fourthly, implementation of experimental steps ofthe
object is based on the reality or through experiment, imagination. This is a final
challenge to the source before it brings effect in reality, meaning that it becomes
social behavior Finally public accepts and adjusts their own social behaviors in
accordance with the scale, feature, and tendency of the source from mass media.

If we just take a look at general level of the infonnation access, each group will
have different approach levels depending on their premise of knowledge.
Normally, group having medium perception premise is easy to accept
information from mass media. Both groups having high or limited perception
premise are difficult to access infonnation. It is because of the imprudence,
thorough selection with the first group, or shortage of knowledge, demand limit
with the second one. However, in any case, researching to know clearly essence,
characteristics, demand of object is one of the first factors guaranteeing the
influence of mass media.
3.3.4 Influence mechanism of the press to public policy.
How does the press influence a policy? Is that true when a fresh-printed article
comes directly to the authorities or policymaker, and through them, can press
interfere in a policy? Simply, if we imagine that in a lovel\ morning, a
governmental leader was enjoying his cotfee and reading a critic article on his
policy just promulgated the day before, then he would decide to adjust the policy
immediately because the article was right. Howc\er, the reality is much more
complex. In the authors* opinion, the press influences to a policy through 3 ways:
| 1 | it influences directly to the leaders or polic\makers and the change is
approved and adjusted, then a more effective policy promulgated [2J the press
influences on relating benefit groups, since then they act primaril\ as !obb\ists
(or/and use press lo continue the influence on the policymakers). [3] includes
both 2 ways above.
3.3.5 The psychology of Vietnam \ audiences
In the course of carrying out research on the influence of the Press on public
policN making, we are concerned about what kind of infonnation draw the
audiences' interest^Tflo^'and what appeals tHc audience to the newspapers. To
answer these questions, wc have carried out surveys by Google's means on some
irustworth}- (inline new spapers in Vielnam. namelx' Tuoi Tre new spaper and Tien
i'hong Online newspaper. Ihe survey resuhs can make some polu;yinakers
disappoinled and the intellectuals who ha\e high expectation of reading culture

and the taste for reading of the audience unpleased. On Tu6i Tre Online
newspaper, according to our surveys' results during a week (from 17* April to
23' April 2011), the sport news (the scores of sport matches) appeals the
audience most, based on the number of the audience's visits. The next one is
news about digital media... the information on Law seems hardly to draw the
audiences' interest.

The detail will be mentioned in table below
No.

Visits

Last
week

Up/down

3,300,453

3,204,235

^6.2 1 S

DNS Name

%

1

tuoitre.vn

2

[sportl thethao.tuoitre.vn

308,681

231,133

3

[technolofiiYl nhiDSormso.tuoiire.vn

207,907

188,356

lv..->.M

iiiJtH'/o

4

[test] tuoitre.vn/trac-nuhiem

125,784

99,531

26.25 ^^

26.38%

5

ladmissionl tuoitre.vn/tuvensinh

95,821

86,120

<) ^ ( H

11 > " . .

6

[media services] media.tuoitre.vn

77,401

71,953

5.448

7.57%

7

[real estate] diaoc.tuoitre.vn

57,560

81,023

-23,463

-28.96%

8

[entertaimnent]
chuventranu.tuoitre.vn/TTC

56,884

55,164

1.720

3.12%

9

rbookselfl tusach.tuoitre.vn

38,596

24.721

13.875

56.13%

10

ftravellin^] dulich.tuoitre.vn

32,377

22.585

Q -71)2

43.36%

11

[special printed matter]
tuoitre.vn luoi-tre-cuoi-tuan

28,770

37,552

-8.782

-23.39%

12

[teenage life stvie] teen.tuoitre.vn

23,702

21,685

2.017

9.30^'/o

13

[job] chuNentranii.tuoitre \n vieclam

14,151

13,870

14

Survev.tuoitre.vn

11,674

3,994

15

ecard luoiirc i.om.\n

2,103

1,994

1,003

12,856

317

362

0

0

4MkU4

4,lf74J4

16

fret holiday stories]
1

17

[votej

It

ftawl

tutttL'v ...

nm**n
UUt4:

afttmpa§t wm tfTwii Tri o0tlm
9o2f^AfHI, 2$U. based on Urn rmm
2S

3.00%
33.55"..

1 (13"..
. ,0'^'

1^'-.-^'

--

O,*' 1

y

«i

JT^Afhl. 2011
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