Content-Type: text/html Perceptions of Newspaper Bias in a Local Environmental Controversy page Perceptions of Newspaper Bias in a Local Environmental Controversy by Katherine A. McComas, Clifford W. Scherer, and Cynthia Heffelfinger, Department of Communication, Cornell University Presented to the Science Communication Interest Group at the 1997 AEJMC Convention, Chicago, Illinois, July 30-August 1 All correspondence should be addressed to Katherine A. McComas, Department of Communication, 338 Kennedy Hall, Cornell University, Ithaca, New York, 14853 phone: (607) 256-1679, fax: (607) 255-7905, e-mail: [log in to unmask] ABSTRACT This study examines how perceptions of bias in local newspaper coverage relates to communication and participation in an unwanted landfill siting. Residents living within a one- mile radius offrom the proposed site received mailed questionnaires measuring attitudes, perceptions of bias in local newspaper coverage, communication behaviors, and policy-influencing activities concerning the proposed landfill. Analysis of responses (n=267) suggests perceptions of bias were unrelated to residents' newspaper reading behaviors and only slightly related to participation in the controversy. INTRODUCTION While mass media are frequently cited as sources for risk information (e.g., Ostman and Parker, 1986/1987; McCallum et al., 1991), their roles in local environmental conflicts can vary considerably. Research on local media suggests that sometimes media can "trigger" or precipitate a conflict, help to define a conflict, help to legitimate a conflict, or bestow status on certain positions within that conflict (Tichenor et al., 1980, pp. 113-114). Other times, their roles may be negligible. For instance, what if local media are perceived as biased? Would it affect citizens' use of the media as sources of risk information or impact citizens' activities in relation to the controversy? Some research suggests that citizens do not expect local media to be unbiased, and perceptions of bias do not lessen citizen satisfaction with the media (Burgoon et al., 1981). Yet given our nation's traditional view that U.S. media serve as the "watchdog" the public, if citizens believe the local media are biased against the public's interests, wouldn't we expect some dissatisfaction with or at least a little less reliance on local media as sources of information? This study investigates the role of local newspaper coverage in a community faced with hosting an unwanted land use, a new county landfill. We were interested in how perceptions of bias in local newspaper coverage related to citizens' communication behaviors and policy-influencing activities in the environmental controversy. In particular, if citizens perceive local newspaper coverage as biased, are they more or less likely to depend on the newspaper for information about the landfill; furthermore, are they more or less likely to participate in the conflict? A field survey of residents living adjacent to the proposed site offers some answers to these questions. PREVIOUS RESEARCH Because of their visibility, media and the stories they tell are often perceived as having great influence over public attitudes. Consequently, they are often held responsible for the possible effects these stories have on their audiences. For issues involving environmental risk and policy making, in particular, researchers have pointed to media coverage as a possible factor in the amplification of social concern about risk (Kasperson et al., 1988). Some content analyses of media coverage of environmental risk lend support to this argument, as researchers have found that when covering risk, media sometimes mention harms more than benefits (Singer and Endreny, 1993) and are driven by dramatic considerations (Greenberg et al., 1989 Barton, 1988). Some argue, however, that increased media coverage, regardless of the content, amplifies public concern about risk. In particular, Mazur (1981; 1990) proposes a "quantity of coverage theory," arguing that the greater the volume of media coverage about a risk, the greater the assessment of risk by the publicDindependent of whether the media content is balanced, positive, or negative. He continues: In the case of a local project, such as a waste-disposal site, extensive reporting increases fear in the adjacent community and generally leads to opposition against the facility, even if the treatment of the news is balanced (1990, p. 295). Mazur argues that presenting a "balanced" story suggests all sides are equally credible and that even mentioning negative outcomes evokes more concern than no mention at all (1990, p. 311). He attributes the "alarmism" effect to the inattentive manner in which most people consume news, e.g., glancing at photos or scanning headlines, which are parts of the article that tend to be exaggerated to interest audiences. Mazur supported his argument by comparing media coverage of nuclear power during the 1980s to public opinion about nuclear power; he found that when coverage was greatest, opinions were most negative. Mazur, however, makes little or no mention about other factors contributing to the increase or decrease in public concern about risk. As Dunwoody and Peters (1992, p. 218) point out, "social environments are rich places, and it is becoming increasingly clear that the mass media are but a subset of many channels available to individuals." Mass media may serve to alert public attention to an environmental risk, but once aware of the risk, people often use other channels of communication, such as interpersonal networks. For instance, studies examining the influence of mass media on judgments about risk have found that people sometimes rely on media to assess whether society is at risk; however, they usually rely on personal experiences to determine personal risk. Tyler and Cook (1984) examined this notion as the "impersonal impact hypothesis," which posits that media coverage generates societal level, not personal level, judgments of risk. From their analysis of survey data, the authors conclude that mass communications may not be as effective at generating behavior change as other communications (a finding also suggested by Robertson [1976] in his study of seat belt campaigns) and that the more removed people perceive themselves from a risk, the less likely they are to take actions to avoid that risk. Park et al. (1996) found support for the impersonal impact hypothesis when investigating survey responses for factors influencing risk judgments about water contaminants, radon, AIDS, and heart disease. Their analysis showed interpersonal communication primarily drove personal concern about risk, while mass communication drove societal concern. Citizens scoring high on community involvement were, however, less likely to exhibit this discrepancy in concern. Culbertson and Stempel (1985) identified a similar effect, termed "media malaise," wherein people use media to evaluate society's well being, but not their own. Examining how media coverage of health care influenced public attitudes toward health care, the authors found that when people thought media coverage of health care was negative, they also tended to view health care negatively. These tendencies were strongest when people rated health care at the societal rather than the personal level. The authors conclude that personal experiences were more important when audiences were judging for themselves than when they were judging for society. Proximity to the risk also mitigates the influence of media coverage on personal assessments of risk. Wiegman et al. (1991) compared attitudes of residents living adjacent to a chemical plant to residents living 15 miles away from the plant regarding the potential risk of contamination. The authors hypothesized that residents living next to the plant would use direct experiences in a "verification process" to filter media information and downplay information contradicting their own experiences. Conversely, people living farther from the plant would depend more on media coverage. Should that coverage be alarming, they would perceive the risks greater than those living close to the plant would perceive them. The authors analyzed media coverage about the plant and found it was generally negative. In addition, they found that people living adjacent to the plant were: (1) more negative about the media coverage, (2) less likely to use media for information, (3) more likely to rely on informal channels of communication, and (4) generally less concerned about the risks from the plant. In comparison, people living further from the plant were more concerned about the risks and said they relied more on mass media than interpersonal channels for risk information. The authors discuss their findings in relation to Bandura's (1969, 1977, 1986) social learning theory, which holds that the more media dominate a person's life, the more people will learn vicariously from the media and less from direct experiences. In this sense, people living farther from the plant must rely on media for information about the plant and would take their cues from media stories, a sort of media-constructed reality. Another explanation comes from research on "optimistic biases" (Weinstein, 1980; 1989; Weinstein & Lachendro, 1982), or those tendencies people have to see themselves less likely to experience a risk than others. In the case of the chemical plant, people living near the chemical plant may have downplayed the probability of risk. For instance, research has found that when people choose or are forced to "live with" a risk, due to economical, social, cultural, or political reasons, they may ignore a risk or prefer not to acknowledge its probability of occurrence (e.g., Lave and Lave [1991] on how people rationalize living in flood plains). Studies suggest, however, that direct exposure to a risk may alter attitudes and even create pessimistic biases (Dolinski et al., 1987), though this pessimism may be short-lived following a decrease in media coverage (e.g., Burger and Palmer [1992] on the aftermath of a California earthquake on residents' attitudes). How trustworthy or credible people view an risk information source can also impact its influence on attitudes. For example, McCallum et al. (1991) found that while local media were survey respondents' most frequently cited sources of environmental risk information, media only scored mid-range on a trust index. In comparison, friends, relatives, and physicians were infrequent sources of risk information, but they tended to score very high on trust. Ostman and Parker (1986/1987) also found that although citizens must frequently cited newspapers and television as sources for environmental information, they though other sources, such as books or magazines, were more credible. In general, the authors found that respondents were quite critical of media coverage of environmental issues, with 58 percent agreeing that media were likely to adapt stories to fit their own political leanings, and 81 percent agreeing that media were likely to sensationalize human interest aspects of the story. To summarize, while some have argued that the quantity of media coverage of risk influences public assessments of risk (e.g., more coverage about risk promotes more public concern about risk), other research suggests that media's impact may be differential or short-lived. Additionally, personal or direct experiences with the risk may amplify or mitigate the influence of media messages on personal risk judgments, as may opinions about the credibility of media coverage. Although mass media serve as frequent sources of environmental risk information, people tend to trust information from interpersonal sources more. Other research in communication suggests that interpersonal sources often carry more weight than mass-mediated ones in securing attitudinal or behavioral change (see, for example, research building on Katz and Lazarsfeld [1955] and Rogers [1995] on the role of interpersonal influence). What has not been examined is how perceptions of media bias relate to attitudes and behaviors about environmental risk. Particularly, if local media are perceived as "teaming up" with the "opponent's" viewpoint, does that impact citizens' reliance on the newspaper for information about the conflict or their participation in the conflict? The following study endeavors to answer these questions. Current Study Building upon the above theoretical framework, this study examines the role of local newspaper coverage in an environmental conflict. The controversy erupted when an upstate New York county government proposed siting a new county landfill in one of its communities. Community residents opposed; a drawn-out and emotional debate ensued. Using field survey of residents' attitudes and behaviors, this study examines how perceptions of bias in local newspaper coverage related to residents' communication behaviors and participation in the environmental controversy. The survey was commissioned on behalf of the community's Citizen's Advisory Committee (CAC) as a participation tool for identifying residents' concerns and opinions toward a variety of host-community benefit possibilities. A series of communication-related questions (not of particular interest to the CAC) were included in the questionnaire for subsequent and secondary analyses. The data from these questions allowed, with some limitations, to construct the conceptual framework for testable hypotheses. Research Questions, Hypotheses, and Rationale The first research question examines the relationship between citizens' attitudes toward newspaper coverage and their use of newspapers for information about the landfill. Did opinions about newspaper bias relate to citizens' use of the newspaper? Previous research identified a relationship between attitudes toward media coverage and use of media for risk information: people who thought newspaper articles lacked credibility were less likely to read them (Wiegman et al., 1991). However, earlier research suggested that audiences expected bias in local media and were therefore not overly negative about it (Burgoon et al., 1981). Thus, we were interested in investigating whether a relationship existed between perceptions of bias and newspaper readership, and if so, to identify the nature of that relationship. The second research question examines the relationship between citizens' attitudes toward newspaper coverage and their participation in the controversy. Did perceptions of bias in newspaper coverage relate to their activities? For example, would people who believed newspaper coverage favored the county's position (i.e., wanting to site the landfill) be prompted to take action and protest, or would they perceive participation as somewhat of a "lost cause" and therefore not worth the effort? Moving away momentarily from questions regarding perceptions of bias, this study's hypotheses focus on the relationship between communication behaviors and concern about the landfill. The first tests Mazur's (1981) quantity of coverage hypothesis, which contends that the more media coverage that an individual is exposed to, irrespective of the coverage's content, the more negative that individual will be about the risks. We hypothesized: (H1) People who reported reading more newspaper articles would also be more concerned about the landfill. As noted earlier, we believe Mazur's hypothesis may oversimplify the relationship between media coverage and concern and ignore that media are among multiple information sources, among them interpersonal contacts. In particular, the number of times individuals talk with others about the landfill could also relate to how concerned they are about the landfill. Therefore, we also hypothesized: (H2) People who talked more with others about the landfill would also be more concerned about the landfill. Finally, we wanted to examine how the number of newspaper articles respondents reported reading related to their participation in the controversy. That is, were citizens who read more articles also more likely to participate in the controversy? Studies suggest media coverage of risk influences concern primarily at the societal as opposed to the personal level (Tyler and Cook, 1984; Culbertson and Stempel, 1985); therefore, reading more articles may not make people feel personally more at risk. If people do not see themselves personally at risk, they may not act to reduce exposure to that risk, like becoming involved in the decision-making process. Thus, we hypothesized: (H3): The quantity of newspaper articles that citizens read about the landfill would not relate to their likelihood of participation in the controversy. METHODS Surveys Questionnaires were mailed to all residents (n=368) living within one mile of the proposed county landfill site. This parameter was requested by the CAC to ensure that key stakeholders or residents directly impacted by the landfill decision were included in the sample. The questionnaire consisted of 48 questions, measuring approximately 140 variables. Questions in the survey addressed residents' concerns, their attitudes toward the proposed landfill, their attitudes toward landfills in general, their preferences among a range of host mitigation and compensation measures, and their activities related to the siting process. A total of 267 completed questionnaires were returned, yielding a 75 percent adjusted response rate.[1] Responses were entered into SPSS for analysis. Analysis To measure perceptions of bias in the newspaper coverage of the proposed landfill, the questionnaire asked a series of questions about the coverage: "Newspaper articles I have read favor my position on the landfill," "Newspaper articles are generally fairDunbiased in discussing the landfill," and "Newspaper articles favor the county position." Responses were scaled from 1 to 5 ("strongly disagree" to "strongly agree"). To gauge their exposure to local newspaper articles, respondents were asked whether they had read any articles concerning the landfill in the local newspaper during the past year and, if so, to estimate the number of articles. To measure participation, citizens were asked a series of questions, such as whether they had written or called local media, talked to local or county officials, or attended any public meetings about the landfill. We focused on three behaviors: writing letters to the newspaper, talking to elected county officials, and participating in public meetings. Participation in public meetings was measured as "did not attend," "attended but did not speak," to "attended and spoke out." For all three factors, higher scores signified higher levels of participation. To measure concern, the survey also asked respondents how "bad" they expected a list of possible negative effects of the landfill to be, from "very bad" to "somewhat bad" to "not bad" to "not sure." These included traffic effects (e.g., noise and litter), landfill site effects (e.g., litter, smells, animal pests, etc.), and other possibilities (e.g., pollution of private wells, changes in property values, pollution of county reservoir, bad images of this part of town, etc.). In total, survey responses to 15 questions were summed to provide a measure of respondents' perceptions of "bad effects" from the landfill (alpha=.92), where higher scores signified more concern. Interpersonal communication was measured by asking respondents how many times they had talked with their spouse or members of the household, with neighbors, or with coworkers about the landfill in the past year. Choices were "not at all," "once or twice," "3 to 5 times," "6 to 9 times," or "10 or more times." These questions were added to form a measure of interpersonal talking behavior (alpha=.82). RESULTS Research Questions Table I shows the range of responses to the questions about perceptions of bias in the newspaper coverage of the proposed landfill siting. Generally, there is a fairly uniform distribution in opinions about the newspaper coverage. Although 51 percent agreed that the newspaper was unbiased in its coverage of the landfill siting, 41 percent disagreed that coverage was unbiased. Regarding the direction of the bias, 45 percent of respondents agreed with the statement that the coverage favored the county position on the landfill, whereas 36 percent disagreed. Finally, 40 percent agreed with the statement that the coverage favored their own position, and 44 percent disagreed.[2] To investigate whether the 40 percent who believed coverage favored their own position also thought coverage favored the county position (i.e., their personal position agreed with that of the county), we constructed two variables, each representing those who agreed or strongly agreed with the above two statements. The variables were negatively correlated (r=-.26, p=.000), suggesting that if respondents believed coverage favored their own positions, they were unlikely to believe coverage favored county positions, and vice versa. Table II shows the bivariate correlations between variables, also illustrated in Figure 1. The results suggest some interesting biases, and not only on behalf of the newspapers. People who responded that the newspaper coverage favored their personal positions about the proposed county landfill were significantly more likely to also agree that the coverage was both adequate and unbiased (r=.25 and .47, p<.01). In comparison, those agreeing with the statement that the coverage favored county positions were significantly more likely to judge the coverage both inadequate and biased (r=-.33 and -.52, p<.01). Thus, it appears that respondents were less critical of newspaper coverage when they perceived coverage as favoring their personal positions. Logically, if they replied that coverage favored their personal positions, they should have also responded that the coverage was biasedDeven if it was biased in their favor. The first research question explored the relationship between perceptions of bias in newspaper coverage and use of the newspaper for information about the landfill. Almost all of our respondents (99 percent) reported reading some newspaper articles about the landfill in the past year, with the average number of articles being 41. Furthermore, the results suggest that those who perceived coverage favored their personal positions were significantly more likely to read newspaper articles (r=.14, p<.05). Perceiving that coverage favored county positions or perceiving coverage was unbiased was unrelated to the quantity of newspaper articles that respondents reported reading. The second research question concerned the relationship between perceptions of bias in newspaper coverage and citizen participation in the conflict. The results suggest perceptions of bias were unrelated to writing letters to the newspaper or participating in public meetings. Those who believed newspaper articles favored their personal positions were, however, significantly more likely to talk with elected county officials (r=.13, p<.05). Hypotheses The first two hypotheses tested the relationship between communication behaviors and concern about negative effects from the landfill. The first hypothesis stated that citizens who reported reading more newspaper articles would be more concerned about the landfill. The results support the hypothesis (r=.19, p<.01): the quantity of articles read increased with concern about the landfill. The second hypothesis predicted that citizens who reported talking more with family, neighbors, and coworkers about the landfill would be more concerned about the landfill. This hypothesis was also supported (r=.31, p<.01). In sum, people who were more concerned about the landfill also tended to read more newspaper articles and talk more with others about the landfill. To determine which factor had the stronger relation to concern about the landfill, we ran the first test again, only this time we controlled for talking behavior. The significance between quantity of articles and concern about the landfill disappeared. When we ran the second test and controlled for number of articles, the significance between quantity of talking and concern about the landfill remained (r=.32, p,.01). This finding suggests that talking about the landfill has a stronger relationship with concern than reading newspaper articles. The third hypothesis stated that the quantity of newspaper articles citizens reported reading about the landfill would not increase with increased participation in the conflict. The results do not support this hypothesis. Citizens who reported reading more newspaper articles were significantly more likely to talk with elected county officials (r=.36, p<.01), write letters to the local newspaper (r=.31, p<.01), and participate in public meetings (r=.36, p<.01). DISCUSSION Perceptions of bias in the newspaper coverage were fairly polarized, with about one-half believing that the coverage supported county positions and one-half thinking the coverage supported their own positions. Interestingly, when respondents thought newspaper coverage favored county positions, they thought the coverage was biased and inadequate. On the other hand, if they thought coverage favored their own positions, coverage was unbiased and adequate. Evidently, respondents' own biases were at work here. We might have expected that citizens who believed coverage favored county positions would have written letters to the newspaper to voice their dissatisfaction or make sure their side was heard; yet, the results suggest otherwise. Perceptions of bias in newspaper coverage were unrelated to writing letters to the newspaper or participating in the public meetings. Several explanations come to mind. First, attending meetings or writing letters to the local newspaper requires time and motivation that citizens responding to our survey may not have had. Second, should some respondents have been motivated to attend meetings or write letters to the newspaper, one deterrent could be that they feared an attempt to present another viewpoint would be "attacked" in the public forum or editorial page. Third, respondents may simply be negative about the decision-making process and believe nothing positive would come of their involvement. Interestingly, those who thought coverage favored their personal positions (yet, according to them, were still "unbiased") were more likely to have talked with elected county officials. Perhaps perceiving their own position as advocated in the newspaper gave our respondents added confidence of local support and made them more willing to talk with those involved in the decision-making process. Concern about the landfill was related to the number of newspaper articles respondents read. Those who reported reading more articles were more concerned about the possible risks of hosting a landfill. Concern about the landfill was also related to talking with family, friends, and coworkers about the landfill. The use of partial controls on the analysis suggests, however, that conversations with others offers a better gauge of overall concern in this study than quantity of newspaper articles. Thus, while the findings lend support to Mazur's quantity of coverage hypothesis, the support is tempered by the demonstration of interpersonal communication's relation to concern about risk. The strong relationship between the number of articles read and the number of times respondents talked with county elected officials, wrote letters to the newspaper, and participated in public meetings was unexpected, given that previous studies have shown mass media are often ineffective at generating action at the individual level. One explanation for this discrepancy may be that the earlier studies measured personal vs. societal on a much larger scale (i.e., U.S.-wide) than our study, which looked at personal vs. societal in one community. Although studies have examined local media impact on community involvement (e.g., Stamm et al., 1997), few have examined media and community involvement within a risk-based context. One that did found that local community involvement seems to mitigates the differential impact of risk perceptions (Park et al., 1996). Additional studies are needed to examine local media's impact on risk perceptions at the community levels. CONCLUSIONS This study offers one example of the role of local newspaper coverage in a local controversy. The findings are at the micro- rather than macro-level; generalizations should therefore be applied cautiously. Though communities often share the very common experience of facing a locally unwanted land-use, the role of newspapers is likely to vary considerably. In addition, the nature of cross-sectional data precludes making "cause and effect" assumptions. Therefore, we hesitate to state, for example, whether concern about the landfill preceded reading about it in the newspaper, or vice versa. Still, it seems clear that residents in this community used the local newspaper as a source of information about the landfillDwhether to confirm information received via interpersonal channels or gather information for conversations with others. Moreover, it seems that perceiving newspaper coverage as biased did not decrease their reliance on newspapers for information about the landfill. Why would residents continue to read articles they perceived as biased or favoring county positions? One possibility is that their information-gathering behaviors were routine, and perceptions of bias were insufficient to prompt them to seek out new information channels (not to mention that they may have still considered the newspaper useful for other sorts of information). People may perceive a source as biased, and interpret it as such, but they are unlikely to change traditional consumption behaviors over a few incidents. Few would argue that it is easy to change behaviors. Similarly, perceptions of bias in the newspaper may not motivate people to cancel a subscription or seek out new sources of information, i.e., to change their media consumption behaviors. As some have suggested, people may even expect local media to be biased (Burgoon et al., 1981). Perceptions of bias in newspaper coverage were also not directly related to concern about the landfill. Indirectly, however, a relationship exists. Those who thought coverage favored their own positions were more likely to read newspaper articles, and those who read more newspaper articles, tended to be more concerned about the negative effects of the landfill. Again, our data do not demonstrate cause and effect; therefore, the order of these relationships remains unclear. It seems, however, that reading articles tended to reinforce these citizens' concerns about the landfill, as opposed to alleviating them. Finally, perceptions of bias were unrelated to whether citizens chose to become involved in the controversy, with the exception of those who thought coverage favored their own positions. Believing coverage was aligned with county interests or was just plain "biased" did not appear to motivate citizens to become involved in the decision-making process. Table I. Description of Responses to Questions on Bias in Newspaper Coveragea Strongly Disagree Disagree Not Sure Agree Strongly Agree Articles favor county Count 25 65 41 67 33 % 6.8% 29.4% 18.6% 30.3% 14.9% Articles are unbiased Count 28 63 17 102 11 % 12.7% 28.5% 7.7% 46.2% 5.0% Articles favor my position Count 32 64 35 68 19 % 14.7% 29.4% 16.1% 31.2% 8.7% aResponses range from 1=Strongly Disagree to 5=Strongly Agree. Table II. Pearson Correlationsa Variables Articles are unbiased Articles favor my position Coverage is adequate Number of articles read Expect bad effects from landfill Times talked with family, etc. Times talked with officials Letters written to local paper Participate in public meetings Articles favor county -.524** -.495** -.327** -.041 .061 -.013 -.115 -.034 -.119 Articles are unbiased .474** .329** .071 -.004 .000 .038 -.113 .091 Articles favor me .252** .143* .075 .008 .130* -.004 .106 Coverage is adequate .160* -.065 -.137* .025 -.065 .024 Number of articles read .188* .312** .355** .311** .359** Expect bad effects .349** .236** .185* .200** Talked with family, etc. .318** .183** .374** Talked with officials .481** .428** Letters to local paper .365** *. Correlation is significant at the 0.05 level (1-tailed). **. Correlation is significant at the 0.01 level (1-tailed). a Listwise N=192 Figure 1. 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Of the 368 questionnaires, 13 were returned unanswered due to bad addresses or ineligible respondents (e.g., deceased), 3 were refused, and 267 were completed. The overall response rate of 72.6% was adjusted for the bad addresses and ineligible respondents yielding a response rate of 75.3%. [2] Was newspaper coverage of the landfill biased? Preliminary results of a content analysis of local newspaper articles appearing one year prior to the survey suggest that coverage was generally objective: 46 percent of the statements reported were neutral, 34 percent were critical of the county's position, and 21 percent were supportive of the county's position.