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PolicyBrief
Policy Brief | 12.2017
The thin line
between leadership and mediocrity
Can Ukraine become a role model
in fighting disinformation?
Łukasz Wenerski
After more than three years of Introduction
debunking Kremlin “fake news”,
Ukraine does not have a perfect track “Fake news” has been officially named
record in countering manipulation. Yet, word of the year by Collins English
the country has made enough progress Dictionary and will be included in the next
to be treated by other Eastern print edition of the dictionary.1 The word,
Partnership countries as a possible which has no precise meaning but
example on how to approach the issue generally describes information that has
of fighting disinformation and been either fabricated or manipulated, has
developing strategic communication. witnessed a surge in popularity in 2017,
Non-governmental actors in Ukraine mostly in the aftermath of the United States
have achieved a level of experience and presidential election. On the one hand, it
excellency that would be interesting for has been widely discussed that sources
any organization dealing with Kremlin connected to Russia meddled in the U.S.
propaganda, fact-checking or media
literacy. However, these organizations 1 'Fake news' named Collins Dictionary's official Word of
would need more international publicity the Year for 2017, Independent,
to raise their visibility. http://www.independent.co.uk/news/uk/home-news/fake-
news-word-of-the-year-2017-collins-dictionary-donald-
trump-kellyanne-conway-antifa-corbynmania-
a8032751.htmlThe thin line between leadership and mediocrity | page 2
election by flooding social media with well as by Kremlin propaganda.
manipulated information and sponsored
ads aimed at polarizing American society. But there is also another side to the
On the other hand, U.S. President Donald “information warfare” between Ukraine and
Trump, who is considered the biggest Russia. Ukrainians now have more than
beneficiary of the manipulated stories three years of experience in debunking
produced by Russian sources as the vast fake news and uncovering the mechanisms
majority of such stories were tailored to his for spreading manipulated information. As
favor, uses the term “fake news” in a very a consequence, among Ukrainian civil
different context. He has often called any society activists, experts and politicians,
information that might present him in a knowledge of how Kremlin propaganda
negative light “fake news”. Such actually works and how to counter it often
accusations have been directed at, among exceeds the knowledge and experience of
others, CNN, The New York Times, the their counterparts from the Eastern
U.S. Democratic Party and even some Partnership countries, the European Union
fellow Republicans. or the USA. This opens a vast field for
potential cooperation for sharing this know-
In Europe, “fake news” gained momentum how between Ukraine and other countries.
due to a series of elections and Ukraine – in an unlikely role reversal in its
referendums in which manipulated relations with the West – could be a source
information is considered to have played an of knowledge that can help other countries
important role in misleading public opinion. to monitor and address disinformation.
This includes events such as the elections Despite Ukraine being experienced and
in France, Netherlands, and to a lesser likely more than capable of providing others
extent, Germany, and the referendums on its fair share of knowledge on countering
Brexit and Catalonian independence. In all disinformation, the notion of considering it a
cases, Russian sources are believed to role model remains unpopular, even among
have been involved in manipulation and countries which have already recognized
disinformation. the threat of the Kremlin’s manipulations. A
series of factors, such as a controversial
The modern use of “fake news,” which national disinformation strategy, and de
involves a coordinated action on both facto instrumentalization of information
online and offline media platforms but is policy for its own purposes by the Ukrainian
largely concentrated on the internet, was ruling elite as well as limited recognition for
widely noticed for the first time when the Ukrainian “anti-manipulation” initiatives
Kremlin propaganda machine played a have also contributed to the fact that
crucial part in the Russian-Ukrainian Ukraine’s case of countering propaganda is
conflict, which erupted in 2014 when worth analyzing, but not always worth
Russia annexed Crimea and engaged in following.
war in Donbas. The internet was flooded
with fake news and manipulated Status quo: belated and controversial,
information aimed at showing that the yet making progress
people who supported the Revolution of
Dignity and the politicians who came to Members of Ukrainian civil society and
power after president Yanukovych fled the Ukrainian officials have been indicating
country were a true danger not only to Russia’s propaganda machine as one of
“normal” Ukrainians but to Russians and the key elements of its hybrid warfare since
even others, including the EU. For more 2014. Dmytro Shulkin, deputy head of
than three years now, Ukraine has been Ukraine’s presidential administration, told
under constant shelling - in real terms as the Financial Times in October 2017 that,The thin line between leadership and mediocrity | page 3
already back in 2015, Ukraine warned Information Policy, the Ministry of Foreign
Facebook and the U.S. administration that Affairs, the Ukrainian Security Service, the
Russia is spreading disinformation on State Special Communications Services
social media.2 Even though Ukrainian and the National Institute for Strategic
officials have undertaken actions to inform Studies.6
other countries that Russian information
warfare is a real threat, their actions were The Information Security Doctrine was
not underpinned with an effective, fully- created as a comprehensive strategy to
fledged strategy. It was only in February counter Kremlin propaganda. It has,
2017 that Ukrainian president Petro however, raised considerable concerns
Poroshenko approved the Information stemming from the dilemma of whether
Security Doctrine,3 a strategic document more security measures7 can be
adopted with the purpose of effectively implemented at the cost of personal
addressing security threats faced by freedoms, primarily the freedom of
Ukraine. Although work on the Doctrine expression. Opinions expressed not only
had started much earlier – the first draft of by the political opposition to the current
the strategy was discussed during public Ukrainian ruling elite, but also by members
consultations already in mid-20154 – it took of civil society, including Amnesty
Ukrainian politicians almost three years International8 and the Internet Association
(counting from the annexation of Crimea by of Ukraine, have raised concerns that the
Russia), despite awareness that new Doctrine not only counters Kremlin
information about Ukraine is manipulated propaganda but can also lead to excessive
every day, to develop its fight against control of the Internet by the state.9 Despite
Russian “fake news” into an official this criticism, the Doctrine has been in
strategy. force since February. Its provisions were
among the factors that led to the decision
The Information Security Doctrine openly to ban the Russian social media portals
states that its elaboration and adoption is a VKontakte and Odnoklassniki in Ukraine as
reaction to Russian hybrid warfare against internet sources which extensively promote
Ukraine and that its main goal is to create anti-Ukrainian propaganda, a move yet
an information strategy for Ukraine and an again perceived as controversial. Thorbjorn
information barrier against Russian Jagland, the head of the Council of Europe,
propaganda.5 For implementation of the even stated that banning Russian social
Doctrine’s provisions, the document media websites contradicted the “common
regulates the division of responsibilities
between numerous official bodies: the
6 Ukraine’s Information Security Doctrine: A
Breakthrough or the Veneer of Change?, The Jamestown
Cabinet of Ministers, the National Security Foundation, https://jamestown.org/program/ukraines-
and Defense Council, the Ministry of information-security-doctrine-breakthrough-veneer-
change/
7 The question remains of what is the long-lasting strategy
2 Ukraine says it warned Facebook of Russia fake news in of the Ukrainian ruling elite with regard to the
2015, Financial Times, implementation of the doctrine. Does it want to use
https://www.ft.com/content/c63d76d4-bd1e-11e7-b8a3- provisions of the doctrine purely to counter Russian
38a6e068f464 disinformation, or may the temptation of using the
3 President approved Information Security Doctrine of doctrine’s provisions lead to strengthening the power of
Ukraine, http://www.president.gov.ua/en/news/glava- the ruling elite by increasing control over Ukrainian
derzhavi-zatverdiv-doktrinu-informacijnoyi-bezpeki-ukr- society and political opposition
8 Указ Порошенко загрожує свободі слова – Amnesty
40190
4В Киеве обсудили проект Концепции International, Dzerkalo Tyzhnia,
информбезопасности страны, Nova Vlada, https://dt.ua/UKRAINE/ukaz-poroshenko-zagrozhuye-
http://novavlada.info/gosudarstvo/v-kieve-obsudili-proekt- svobodi-slova-amnesty-international-234750_.html
9 Ukraine’s Information Security Doctrine: A
koncepcii-informbezopasnosti-strany
5President approved Information Security Doctrine of Breakthrough or the Veneer of Change?, The Jamestown
Ukraine, http://www.president.gov.ua/en/news/glava- Foundation, https://jamestown.org/program/ukraines-
derzhavi-zatverdiv-doktrinu-informacijnoyi-bezpeki-ukr- information-security-doctrine-breakthrough-veneer-
40190 change/The thin line between leadership and mediocrity | page 4
understanding of freedom of expression.”10. Despite the controversies over provisions
Moreover, more than half (58%) of of the Information Security Doctrine, one
Ukrainians do not support this decision, should not neglect the fact that the
according to the opinion poll by GfK strategic communication of the Ukrainian
Ukraine and the Center for Insights in government aimed at countering Kremlin
Survey Research.11 Other results of disinformation has been slowly
implementing the Doctrine are yet to be progressing. For instance, a number of
seen, but one can state that its provision actions have been implemented by the
and current implementation are not the Ministry of Information Policy13 or the
best promotion of the Ukrainian state’s Ministry of Foreign Affairs.14 The conclusion
approach to countering Russian of the Strategic Communications
misinformation. Partnership Road Map between Ukraine
and NATO in October 2015 was also an
Separate criticism has been raised against important step.15 In the document, both
the Ministry of Information Policy, a sides agreed that the NATO Public
governmental body established in 2015, Diplomacy Division would support Ukraine
which is supposed to play a key role in in the implementation of goals that would
implementing the Information Security lead to the improvement of Ukraine’s
Doctrine. The Ministry has to face a series strategic communications. One example of
of concerns, such as capacity shortages this cooperation are the Strategic
(29 employees, 4 million UAH initial Communications courses for SBU officers
budget) and limited delegation of power, that started in 2016 at the National
which narrows its possibility to work Academy of the Security Service of
effectively. The biggest problem, however, Ukraine.
is, that according to many journalists and
activists the Ministry should have never Non-state actors: many activities,
been created in the first place; it was moderate recognition
established without proper public
consultation and under fears that its modus Having to counter the Kremlin’s
operandi would lead to the restriction of the propaganda while at the same time
freedom of speech. The Ministry of debunking fake news has been a serious
Information Policy has never recovered concern of Ukrainian non-governmental
from these accusations. It remains organizations. Civil society has been
unpopular among many activists and quicker and more efficient than the
journalists, who sometimes call it “Ministry government at reacting, targeting and
of Truth” with reference to Georg Orwell’s revealing deliberate Russian disinformation
novel “1984”12 on Ukraine propagated both in Ukraine and
in other countries. A number of projects
have been established to counter the
10 Ukraine bans its top social networks because they are problem of manipulation from different
Russian, The Economist angles – to debunk Kremlin fake news in
https://www.economist.com/news/europe/21722360-
blocking-websites-may-be-pointless-it-could-help- Ukraine, to reveal untrue stories about
president-poroshenkos-popularity-ukraine Ukraine abroad or to generally monitor
11Public Opinion Survey of Residents of Ukraine,
September 14 – October 10, 2017, International
13
Republican Institute, For instance: http://mip.gov.ua/en/content/proekti-yaki-
http://www.iri.org/sites/default/files/2017-11- realizovani-za-pidtrimki-mip.html
14 For instance: http://mfa.gov.ua/en/page/open/id/5026;
28_ukraine_poll_presentation.pdf
12 Analyzing the Ground Zero. What Western Countries http://mfa.gov.ua/en/page/open/id/4130
15 Strategic Communications Partnership Road Map
can Learn From Ukrainian Experience of
Combating Russian Disinformation, European Values, between the National Security and Defense Council of
http://www.europeanvalues.net/wp- Ukraine and the NATO International
content/uploads/2017/12/Analyzing-the-Ground-Zero..pdf, Staff,http://mfa.gov.ua/mediafiles/sites/nato/files/Roadma
pp. 6-7 p_Eng.pdfThe thin line between leadership and mediocrity | page 5
actions originating from Russia that may be represents yet another type of activity. It is
harmful to the image of Ukraine. These a volunteer community that conducts
efforts have been supplemented by investigations aimed at debunking Kremlin
projects implemented by Ukrainian think disinformation or identifying Kremlin-
tanks on monitoring the Kremlin’s soft connected covert activities. Using open
power influence in Ukraine and other source data collection, InformNapalm has
countries. investigated topics such as the Russian
intervention in Syria, the crash of the
Although the common goal of countering Malaysian Airlines Boeing over Donbas in
information manipulation unites a variety of July 2014 and Kremlin-backed protests in
Ukrainian or Ukraine-originated actors, Poland. Another organization, Information
their activities and target groups vary Resistance, tries to cover both analytical
substantially. First, one should mention work and investigative activities. This non-
fact-checking efforts, that is, the verification governmental organization also directs its
of the authenticity of information from efforts at debunking fake news.
media outlets.
Although Ukrainian non-state actors have
StopFake is a Ukrainian media platform the capacity for countering manipulated
which specializes in the fact-checking of information, one can argue that they lack
international news about Ukraine. Its main international recognition. With the
goal is to verify and refute disinformation exceptions of StopFake and InformNapalm,
and propaganda about events in Ukraine knowledge about the other organizations is
which are circulated in the media outlets of limited to the relatively small groups of
different countries. The organization experts who either follow the situation in
investigates and debunks fake news Ukraine closely or specialize in the topic of
related to Ukraine in ten languages and Kremlin propaganda.
publishes it on dedicated websites and in
social media. It also produces “Stop Fake StopFake is an especially interesting
News”, a fake-news debunking broadcast, example. The group received a serious
which is available online and aired regularly promotional boost and attention from the
on about 30 Ukrainian television stations. international media when it became
apparent that Russia was involved in
DetectorMedia, “watchdog of the meddling with the U.S. election. Articles
Ukrainian media” as it is called by its about its work appeared in Politico16 and
authors, is more domestically oriented. It The New York Times.17 Recognition of the
monitors and reveals manipulations and importance of StopFake’s knowledge and
misinformation spread in the Ukrainian experience followed. In September 2017,
media by journalists or politicians. StopFake journalists took part in the U.S.
Congressional hearing entitled The
Other groups focus their efforts on Scourge of Disinformation, where Russia’s
delivering information on specific issues. goals in its hybrid warfare were discussed.
They would include VoxUkraine, an Among the factors that helped to raise
analytical platform that shares quality StopFake’s visibility was its focus on
research about the real economic situation reaching out to an international audience.
of Ukraine, as well as News of Donbas, a By monitoring foreign media outlets, its
news agency that delivers accurate
information about the situation in the 16 Ukraine’s fight against fake news goes global, Politico,
Donbas region. https://www.politico.eu/article/on-the-fake-news-frontline/
17 To Battle Fake News, Ukrainian Show Features Nothing
but Lies, The New York Times,
On the other hand, InformNapalm https://www.nytimes.com/2017/02/26/world/europe/ukrain
e-kiev-fake-news.htmlThe thin line between leadership and mediocrity | page 6
volunteers were able to show that it is not for Ukraine are twofold. Firstly, its influence
only Ukraine that is susceptible to media on other countries as regards how to
manipulation – this vulnerability is present counter propaganda is limited because the
in other countries as well. This move raised process of effective “debunking” in the
awareness by exposing people to the truth West is still in its early stages. Secondly, if
that similar manipulations of facts happen used appropriately, the current situation
“at home” as well, and not just “somewhere gives the Ukrainian side an enormous
else,” like in far-away Ukraine. chance to be involved in the process of
creating international mechanisms to
Other organizations which either direct their counter fake news from the beginning and
work to different target audiences (such as promote itself as a leader in the field.
the expert community or people following
Ukrainian media only) or concentrate on But there is another obstacle to overcome.
monitoring the situation within Ukraine Even if Ukraine is capable of being a role
have not achieved this level of international model for countering propaganda (which is
recognition. To promote their work, other still not the case when it comes to
mechanisms and channels of sharing their government actions and is limited when it
expertise need to be developed. comes to non-governmental actors), the
question remains: Would others be willing
Lack of trust in expertise to listen to Ukraine’s advice? The
stereotypical thinking is that Ukraine is the
The belated and controversial politics of the recipient of support and advice and not
Ukrainian government in countering someone who has something to offer that
propaganda and the rather limited might be considered valuable by other
recognition of Ukrainian non-governmental partners. It is not unlikely that it may be
efforts to stop information manipulation are difficult for other, more developed (both
important, but they are not the only factors with regard to their economy and
that have contributed to Ukraine’s modest democracy) countries to acknowledge that
role in the “industry” of fighting they can learn something from their
disinformation. The general problem is that Ukrainian counterparts, especially on such
although many countries have already an unprecedented topic where an entirely
acknowledged the problem of “alternative new approach to a problem has to be
facts” spreading in the internet, they are developed. The paradigm, i.e. the
lagging behind in the implementation of reluctance of acquiring knowledge from
appropriate measures for countering it. To countries that are traditionally considered
mitigate the flood of fake news, an to be less-developed, was recently
advanced coordination of various dismissed by the U.S. Congress, which
stakeholders, such as governments, invited StopFake as experts on debunking
security agencies, online corporations fake news to its hearing on Russia’s hybrid
(Facebook, Google) and non-governmental warfare methods, but this example can only
actors is necessary. This process is only at be considered an exception, as opposed to
the very early stages now and is facing a rule.
obstacles and resistance, especially from
social media platforms, which are the main Conclusions and recommendations
carriers of fake news.18 The consequences
Ukraine as a state is not ready to be a
18Just one of the examples: German spy agency attacks “role-model” for the EU or the USA in
Facebook and others for failing to tackle fake news, The countering the Kremlin’s manipulations.
Guardian,
https://www.theguardian.com/world/2017/nov/27/germany
-spy-agency-facebook-tech-fake-newsThe thin line between leadership and mediocrity | page 7
Too many problems need to be overcome of anti-Western propaganda on the
first. The Ukrainian government needs to population.”19 The Ukrainian government,
re-evaluate its actions in countering has sufficient knowledge to offer an
disinformation. Previous activities have exchange of experience to their Georgian
been only partly effective. Presumably, one counterparts on how to approach this
of the biggest problems is that the issue.
Ukrainian ruling elite lacks understanding
of how to communicate with journalists and The situation is a little different with non-
activists, whose expertise on how to governmental organizations. In many cases
introduce effective mechanisms of they are experienced enough to be
countering Kremlin disinformation is often considered role models for fighting
neglected and not appreciated. This was disinformation by organizations in the EaP,
the case of the Information Security the EU and the USA. The work of these
Doctrine; its provisions have been organizations covers a variety of activities
considered controversial by both Ukrainian and multiple target groups. They do news
NGO’s and international organizations. The fact-checking, open-source investigations
strategy should be revisited and adjusted and analytical research. They are
accordingly to meet recognized standards increasingly engaging in media literacy
of protection of freedom of speech. A projects. What is needed now is support
similar situation happened with the Ministry from the Ukrainian state and other actors
of Information Policy. Civil society (for instance, the EU) to raise the visibility
representatives were not satisfactorily of these efforts. While StopFake and
involved in the process of the creation of InformNapalm are already recognizable
the Ministry, which in turn resulted in beyond Ukraine’s borders, other groups
resentment against its work and the that are involved in analyzing and fighting
competences of its employees.
disinformation could use a further PR
Nevertheless, even with these problems, boost. New ways of communicating
Ukraine’s experience can be of paramount between organizations (from Ukraine and
importance for other Eastern Partnership from other countries) and between
countries. Taking into account the many organizations and the general public should
similar problems these countries face vis-à- be established. Platforms of
vis their relations with Russia, advice communication should include: an annual
coming from Ukraine would definitely prove conference on debunking fake news
useful. Problems, such as the controversy organized in Ukraine; a series of
over the work of the Ministry of Information international events in European countries
Policy are somehow balanced by positive devoted to the promotion of Ukrainian
actions, for instance by the support of initiatives and projects that deal with
institutions such as NATO, it is in the countering manipulation; an online platform
process of developing its Strategic promoting Ukrainian efforts (in English and
Communications aimed at countering preferably other languages) and their
disinformation. If other countries intend to achievements in monitoring and fighting
develop their own concept of strategic propaganda; video channels targeting an
communication, they would do well to international audience.
consult their Ukrainian partner. In 2017, the
Georgian government adopted a
communication strategy on Georgia’s EU
19Communication
and NATO Membership for 2017-2020. Strategy of the Government of Georgia
on Georgia’s EU and NATO Membership for 2017-2020,
One of the goals of the strategy is the http://www.eu-nato.gov.ge/sites/default/files/EU-
“prevention and reduction of the influence NATO%20Communication%20Strategy_ENG%20Final%
20version.pdfThe thin line between leadership and mediocrity | page 8
The next step for the Ukrainian government Cover photo
and non-governmental actors would be to Alexlmx / fotolia.com
implement a common coordinated plan
aimed at maximizing Ukraine’s presence Address | Contact
Gabriele Schöler
wherever new models for fighting
Senior Project Manager
disinformation are discussed. In practical
Program The Future of Europe
terms, it means a presence and lobbying in Bertelsmann Stiftung
all important capitals (such as Washington, Telephone +49 05241 81-81205
Berlin, Paris, London, Brussels) of Mobile +49 0172 5207 790
countries that are coming to acknowledge Fax +49 05241 81-681205
Gabriele.schoeler@bertelsmann-stiftung.de
that propaganda is a real issue. The first
www.bertelsmann-stiftung.de
target should probably be Washington,
where the U.S. administration is now Dr Agnieszka Łada
considering taking appropriate measures Director of the European Programme
(legislation) to increase general /Senior Analyst
transparency and mitigate fake news in the Institute of Public Affairs
Telephone +48 22 5564288
social media.
Fax +48 22 5564262
agnieszka.lada@isp.org.pl
www.isp.org.pl
Łukasz Wenerski works as an analyst
and project coordinator for the Institute
of Public Affairs, a leading independent
think-tank in Warsaw
This report was prepared within the
framework of the project “Young
Leaders for Europe”, jointly run by the
Bertelsmann Stiftung and the Heinz
Nixdorf Stiftung.You can also read
