The House of Lords have had their second day debating the Digital Economy Bill, and started talking about the issue that takes up most of the bill – Online infringement of copyright, which covers clauses 4-17 of the bill. The first amendments discussed would come before Clause 4.
Lord Razzall moved an amendment to insert a new clause on the obligations of copyright holders that that any ‘copyright holders seeking to take action against subscribers for online copyright infringement must use the process set out in sections 124A to 124E of the Communications Act 2003 except in cases of actual or likely extreme prejudice.’
This clause was mainly aimed at stemming tide of solicitors letters accusing people of illegal file-sharing and the treat of court action unless they pay up. Lord Howard, whilst agreeing that this was undesirable argued that the reduction in this practice should be a natural consequence of the successful implementation of this part of the bill, not a result of our having imposed a legislative block on rights holders “The difficulty of successfully suing someone through the judicial process for these copyright breaches is well established. The large number of people involved in file-sharing, the enormous number of files being shared and the low value of each individual copyright breach all point to our hope that the provisions lead to a significant reduction in illegal sharing without the courts being used.”
Lord Birt and Lord Triesman argued that the current bill is a proportionate response to the problem of illegal file sharing; Lord Whitty disagreed “it is not sensible to approach it by effectively alienating large chunks of the population when there is an alternative. The alternative may take longer, but it is clear that, both in the present system of going to the courts and in the potential of the system proposed in the Bill, proportionality will go out of the window.”
Lord Davies emphasised that the bill is not about criminalising people, and that “the behaviour we are tackling is civil infringement, not a criminal one.” He also said the “Peer-to-Peer file-sharing is already illegal “; a point picked up on by Earl Errol who stresses that the phrase used should be “peer-to-peer unlawful file-sharing.”
Lord Lucas – who declared that his main income from outside of the house is from the sale of copyright material – once again pointed the finger of blame at the copyright holders, in particular the film industry: “People love going to the cinema to see something like “Avatar”. It is an extraordinary experience on a big screen. However, why do the companies not sell DVDs and allow the downloading of copies of the film at the same time? It would not reduce their cinema take; it is nothing like the same experience. It just gives people who would never go to the cinema the chance to see the film. These companies created the piracy problem. They are continuing to create it. We must not, in this Bill, give them the illusion that they can stay where they are and that beating up on their customers is the solution to all their problems. ”
Amendment Withdrawn
Lord Clement-Jones then moved an amendment relating to compliance with fundamental rights, and a statement that the Secretary of State must demonstrate that any measures are proportionate and necessary and balance the rights of public and rights holders under ECHR before they are implemented.
His proposal was supported by Lord Lucas and Whitty, Baroness Miller and Earl Errol who stressed the importance of the bill being compliant with the wording of the new Framework Directive. The Government (Lord Davies) replied that “believe, of course, that the Bill is consistent with the EU framework provisions.” Lord Clement-Jones was not convinced: ” The Minister claimed that the Bill is compliant with EU law. He claimed that elements such as the fact that subscribers can be heard as a right of appeal make the Bill compliant. The reason for the amendment is that we do not believe that the Bill is compliant with those principles. There is a lack of specific statement about the burden of proof, the allocation of costs, and the quality of the evidence. There are many aspects that need to be explicit but are not stated. We need a set of guiding principles.”
Amendment Withdrawn
Clause 4: Obligation to notify subscribers of reported infringements
A group of amendments tabled to clarify the text of the bill including: making clear that the information provide to copyright holders/ISPs is of alleged breach of copyright not of infringement itself; the bar being set too low for the evidence needed by rights holders, in particular by making evidence needed simply the ‘appearance’ of copyright infringement; the removal of the term ‘unlawful peer-to-peer filesharing’ from the obligation to notify subscribers of copyright infringement clause making it about any copyright infringement; and the question of defences for internet subscribers who connection was used by others to download/upload copyrighted material.
Earl Errol stated the issue of ‘alleged’ breach was an example of where the text should be change to ensure compliance with EU law.
Lord Young responded that the text did not need changing as “Clause 4 already expressly recognises that the infringement described in a copyright infringement report is only “apparent”. Equally I think that the copyright infringement reports amount to more than mere allegation. New paragraph (b) requires the copyright infringement report to include, “a description of the apparent infringement” as well as evidence that shows the subscriber’s IP address and the time at which the evidence was gathered, so that there will be-I stress this-a clear and robust audit trail.”
Lord Young also told the Lord the government had provided ‘a draft outline of the initial obligations code’ , which according to Lord Clement-Jones includes statement that “The CIL will facilitate targeted civil action by copyright owners against the most serious alleged infringers”
Lord Whitty was concerned that the scope of the bill seemed to have been expanded beyond dealing will illegal p2p file-sharing and widened to potentially all forms of infringement and over all technologies. Lord Young replied that he could not see how restricting these provisions could do anything other than prevent the possible future beneficial use of the provision should the occasion arise. Lord Whitty remained concerned that having an open-ended extension to other forms of copyright violation – especially ones where rights holders already had the right of redress in the courts was “quite dangerous.”
Baroness Miller questions the effect the drafting of the bill will have on corporate and communal facilities such as Internet Cafes, communal wi-fi, university networks etc, concluding that as drafted it would be “extremely discouraging” to anyone wanting to provide such connection.
Lord Young “We recognise that libraries, other wi-fi operators and open-access providers such as universities serve an important function …We do not think that they are caught as individual service providers, which we think they are not, or as consumers However, the fact remains that they can take easy steps to prevent infringers using their connection. They can apply controls so that file-sharing sites are blocked at a subscriber level, particular protocols are blocked or that the amount of bandwidth available is limited to make file-sharing on such connections unrealistic.” In response to a follow up question of would action be taken against those who didn’t adopt these controls, he added the government had “no intention of penalising communal organisations unreasonably.”
Baroness Miller asked why a person should face having their internet access curtailed in anyway due to the actions of others and points to the fact that if a friend borrows your car and gets caught speeding it will be them, not you who is liable for the fine and penalty points. The bill as drafted however would still make the person providing the connection, the internet subscriber , solely liable.
Lord Davies responded that you had to start somewhere and that if someone received an initial letter they could then take measures to prevent further misuse of their connection if they had not been the alleged infringer themselves.
Lord Clement-Jones, Lord Lucas and Baroness Miller all asked Lord Davies and the government to set out what defences would be available to someone who receives these letters. If not in the bill would they be in the ICR code? Lord Davies avoids answering the question and merely says “. If it reached the stage that the subscriber had got past the early stage and the issue was of such seriousness that the copyright owner was concerned to take court action, all the normal defences under copyright legislation would apply and the defendant would be within the framework of law in the same way as for any other offence. The Bill does not change or challenge that.”
Earl Errol, supported by Baroness Miller, requested that the government commit to giving a legal definition of ‘allowed’ in ‘ a subscriber to an internet access service has allowed another person to use the service’ citing the debated on the Computer Misuse Act and a discussion over the word ‘likely’, which was subsequently dropped from that bill. “In common usage the word “allowed” would mean that I had given positive approval to an action. However, I am not sure that that is the legal definition. It may be that “failure to prevent” is the legal definition…I would like by the next stage of the Bill to have a proper legal definition of “allowed”.”
Baroness Miller added that “the fundamental issue is that the subscriber is still, in the way that this is drafted, in the box labelled “guilty” until proven innocent. The Ministers may shake their heads, but until they have defined “allowed” then the subscriber is in the box marked “guilty” because they are not able to prove that they are innocent without going through the whole rigmarole of what is allowed in the Bill.”
Amendments withdrawn/not moved/unallocated
Lord Razzall also tabled an amendment that sought to add that A “copyright infringement report” is a report ” includes a sworn statement by the person making the report that the information collected has been obtained in compliance with all relevant laws, including data protection and privacy laws, and by persons entitled to gather such information.” Lord Davies responded that this will be cover by the ICR code, and that it was not usual practice to put a requirement in legislation that it should be implemented in accordance with existing legislation.
Amendments withdrawn/not moved.
Meanwhile Lord Mandelson was penning an amendment to be tabled on the controversial ‘ Clause 17′, which gives the government power to amend the Copyright, Designs and Patents Act 1988.
Current clause in bill.
Lord Mandelson’s amended clause would read:
17 Power to amend copyright provisions
In Part 7 of the Copyright, Designs and Patents Act 1988 (miscellaneous and
general) after section 302 insert—
15
“Prevention or reduction of online infringement of copyright
302A Power to amend Part 1 and this Part
(1) The Secretary of State may by order amend Part 1 or this Part for the
purpose of preventing any infringement of copyright by means of the internet if satisfied that—
(a) the infringement is having a serious adverse effect on businesses or consumers, and
(b) making the amendment is a proportionate way to address that effect.
(2) The following provisions apply to the power conferred by this section.
(3) Subsections (4) to (6) do not limit that power.
(4) The power may be exercised so as to make new provision or to amend
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or repeal provision (whenever made).
(5) The power may be exercised so as to—
(a) confer a power or right or impose a duty on any person;
(b) modify or remove a power, right or duty of any person;
(c) require a person to pay fees.
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(6) The power includes power to—
(a) make different provision for different cases;
(b) make transitional or saving provision;
(c) make any consequential amendment, repeal or revocation of
provision (whenever made) contained in or made under an Act.
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(7) The power does not include power to create or modify a criminal
offence.
(8) An order under this section must be made by statutory instrument.
“(9) The Secretary of State may not make an order under this section unless—
(a) the Secretary of State has consulted the persons the Secretary of State thinks likely to be affected by the order (or persons who represent such persons) and such other persons as the Secretary of State thinks fit;
(b) following that consultation, the Secretary of State has laid a draft order and explanatory document before Parliament in accordance with section 302B; and
(c) the order is made in accordance with section 302C.
302B Draft order and explanatory document laid before Parliament
(1) If, after the conclusion of the consultation required by section 302A(9), the Secretary of State considers it appropriate to proceed with the making of an order under section 302A, the Secretary of State must lay before Parliament—
(a) a draft of the order, together with
(b) an explanatory document.
(2) The explanatory document must—
(a) describe the infringement of copyright that the Secretary of State is satisfied is having a serious adverse effect on businesses or consumers;
(b) describe the effect;
(c) explain why the Secretary of State is satisfied that making the amendment is a proportionate way to address that effect;
(d) give details of the consultation undertaken under section 302A(9), any representations received as a result of the consultation, and the changes (if any) made as a result of such representations.
(3) Where a person making representations in response to consultation under section 302A(9) has requested the Secretary of State not to disclose them, the Secretary of State must not disclose them under subsection (2)(d) if or to the extent that to do so would (disregarding any connection with proceedings in Parliament) constitute a breach of confidence actionable by any person.
(4) If information in representations made by a person in response to consultation under section 302A(9) relates to another person, the Secretary of State need not disclose the information under subsection (2)(d) if or to the extent that—
(a) it appears to the Secretary of State that the disclosure of that information could adversely affect the interests of that other person; and
(b) the Secretary of State has been unable to obtain the consent of that other person to the disclosure.
(5) Subsections (3) and (4) do not affect any disclosure that is requested by, and made to, a committee of either House of Parliament charged with reporting on the draft order.
302C Super-affirmative procedure
(1) The Secretary of State must have regard to—
(a) any representations,
(b) any resolutions of either House of Parliament, and
(c) any recommendations of a committee of either House of Parliament charged with reporting on the draft order,
made during the 60-day period with regard to the draft order.
(2) If, after the expiry of the 60-day period, the Secretary of State wishes to make an order in the terms of the draft, the Secretary of State must lay before Parliament a statement—
(a) stating whether any representations were made under subsection (1)(a); and
(b) if any representations were so made, giving details of them.
(3) The Secretary of State may after the laying of such a statement make an order in the terms of the draft if it is approved by a resolution of each House of Parliament.
(4) However, a committee of either House charged with reporting on the draft order may, at any time after the laying of a statement under subsection (2) and before the draft order is approved by that House under subsection (3), recommend under this subsection that no further proceedings be taken in relation to the draft order.
(5) Where a recommendation is made by a committee of either House under subsection (4) in relation to a draft order, no proceedings may be taken in relation to the draft order in that House under subsection (3) unless the recommendation is, in the same Session, rejected by resolution of that House.
(6) If, after the expiry of the 60-day period, the Secretary of State wishes to make an order consisting of a version of the draft order with material changes, the Secretary of State must lay before Parliament—
(a) a revised draft order; and
(b) a statement giving details of any representations made under subsection (1)(a) and of the revisions proposed.
(7) The Secretary of State may after laying a revised draft order and statement under subsection (6) make an order in the terms of the revised draft if it is approved by a resolution of each House of Parliament.
(8) However, a committee of either House charged with reporting on the revised draft order may, at any time after the revised draft order is laid under subsection (6) and before it is approved by that House under subsection (7), recommend under this subsection that no further proceedings be taken in relation to the revised draft order.
(9) Where a recommendation is made by a committee of either House under subsection (8) in relation to a revised draft order, no proceedings may be taken in relation to the revised draft order in that House under subsection (7) unless the recommendation is, in the same Session, rejected by resolution of that House.
(10) Subsections (3) to (5) of section 302B apply in relation to the disclosure of representations under subsections (2)(b) and (6)(b) of this section as they apply in relation to the disclosure of representations under subsection (2)(d) of that section.
(11) For the purposes of subsections (3) and (7) an order is made in the terms of a draft order if it contains no material changes to the provisions of the draft order.
(12) In this section the “60-day period” means the period of 60 days beginning with the day on which the draft order was laid before Parliament under section 302B.
(13) In calculating the 60-day period no account is to be taken of any time during which Parliament is dissolved or prorogued or during which either House is adjourned for more than four days.”
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