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The European Audiovisual Observatory, part of the Council of Europe in Strasbourg, has just published a major new report – The independence of national regulatory authorities. This new mapping report offers a comprehensive and timely analysis of how media regulators operate in EU member states, Norway and candidate countries part of the 2025 Rule of Law Report (Albania, Montenegro, North Macedonia and Serbia). Upon request of the European Commission, this in-depth study explores the structural and functional independence of national regulatory authorities (NRAs)and how they autonomously safeguard media freedom and pluralism while adapting to the online environment. The report was drawn up based on contributions from national experts and checked by regulators from the European Platform of Regulatory Authorities network (EPRA).

Contributing author Amélie Lacourt, Observatory Legal Analyst, provides a unique dataset of the legal, financial and operational independence of NRAs through a comparative analysis and national factsheets. As a result, the report highlights both trends and national specificities.

Why independent media regulators matter

Independent NRAs play a central role in ensuring media freedom, pluralism and the public’s right to reliable information. However, they may encounter political influence, resource constraints or challenges posed by digital platforms that operate beyond national borders. This report therefore underlines the crucial role of NRAs as guardians of democratic values, especially as new EU frameworks such as the European Media Freedom Act (EMFA) expand their responsibilities.

Profiles of NRAs: Diverse structures in a converging landscape

While most NRAs were established between the late 1980s and early 2000s following media liberalisation and the Audiovisual Media Services Directive, a new generation of regulators has emerged in response to digital transformation. Today’s NRAs vary widely in size, structure and resources, from small bodies with fewer than 30 staff to large, converged regulators with hundreds of employees.  

Remit: Expanding responsibilities in the digital age

A clear trend is the expansion of mandates to include oversight of online platforms and digital services. Their remit increasingly includes on-demand services, online platforms and, in some cases, responsibilities under the Digital Services Act and political advertising rules. This expansion reflects the “platformisation” of the media ecosystem, requiring regulators to adapt quickly to new technologies and cross-border challenges.

Financial autonomy: Funding models influence independence

The report shows that most NRAs rely heavily on state funding, often complemented by industry fees. While this provides stability, it can also create vulnerabilities and questions of independence where budgetary decisions are influenced by political actors. Systems for budget adoption, adjustment and audit vary widely across Europe, affecting the degree of financial independence in practice.

Operational independence: Appointment and dismissal under scrutiny

One of the most sensitive areas concerns the appointment and dismissal of NRA leadership. Procedures differ significantly, with governments, parliaments or mixed systems playing varying roles. The report examines the safeguards implemented by countries, such as fixed terms or judicial review of dismissal decisions.

Enforcement and transparency: Accountability as a pillar of trust

Transparency mechanisms, such as publishing decisions, reporting activities and enabling judicial appeals, are also widely implemented across Europe as essential tools for ensuring accountability and public trust. However, the level of openness and accessibility still varies between jurisdictions.

Enforcement powers: Strong tools, uneven application

NRAs generally possess a full range of enforcement powers, including issuing warnings, imposing fines and suspending services. However, the scope and effectiveness of these tools differ, especially in relation to digital services.

Conclusion

This report provides a comprehensive and up-to-date overview of the independence of media NRAs at a critical moment for Europe’s media ecosystem. In order to fulfil their responsibilities, it is essential that they are empowered through clear legal mandates, adequate resources and transparent governance.

As the implementation of the EMFA progresses and digital platforms redraw the information environment, strengthening the independence and effectiveness of NRAs will be essential to protect media pluralism, democratic debate and citizens’ rights.

This publication is essential reading for policymakers, media regulators, legal experts, academics, journalists and anyone interested in media freedom, digital regulation and democracy in Europe.