sou · GPB384 · 2002-01-01 00:00:00 — För svenskt vidkommande har regeringens uppdrag att följa branschens självreglerande arbete med de frågor som rådsrekommendationen omfattar (se avsnitt 4.1). Våldsskild- ringsrådet skall bl.a. fungera som stöd och samarbetspartner i frågor som rör barn och den mänskliga värdigheten, om branschen skall också fortlöpande rapportera till och om hur arbetet fortskrider. Enligt vad utredningen erfarit förs emellertid ingen kontinuerlig dialog mellan och i dessa frågor och har inte heller i övrigt tagit några egna initiativ för att långsiktigt utveckla samarbetet med branschföretagen. Enligt utredningens uppfattning är det angeläget att ett samar- bete mellan och berörda företag i branschen vad gäller självregleringen på området påbörjas. Den omständig- heten att det i anges att kan fungera som stöd och samarbetspartner, om branschen så önskar, kan inte anses betyda att Våldsskildrings- rådet skulle vara förhindrat att ta olika initiativ i frågor som rör företagens självreglering för att stärka skyddet för barn mot olämpligt programinnehåll i televisionen. Det bör enligt utred- ningens mening finnas ett förhållandevis vidsträckt utrymme för , inom ramen för det tilläggsdirektiv (dir. 1998:110) som uppdrag i detta hänseende grundas på, att vara pådrivande och ta initiativ i dessa frågor och att också fungera som en samordnare mellan olika företag i branschen och mellan sådana företag och . Det bör framhållas att rådsrekommendationen om samarbete inte enbart riktar sig till myndigheterna i medlemsstaten utan också till berörda företag. Även programföretagen bör alltså känna ett ansvar och medverka till att ett fruktbart samarbete med Våldsskildrings- rådet upprättas och vidmakthålls. Det arbete som programföretagen redan påbörjat och som syftar till att genom olika självreglerande åtgärder ta större ansvar för vad som sänds är viktigt och bör alltså fortsätta och utvecklas vidare. Förutom företagens val av program och sändningstid handlar det framförallt om åtgärder som underlättar för föräldrar att ta ställ- ning till vad deras barn bör få se vilket kan ske genom fördjupad programinformation men även genom åldersrekommendationer. Det är även viktigt att löpande informera TV-konsumenterna om de åtgärder som vidtas för att öka kunskapen och medvetenheten i sådana mediefrågor. Om programföretagen av något skäl inte inom rimlig tid skulle komma att utarbeta tillfredsställande system för föräldrakontroll är det utredningens uppfattning att regering och riksdag bör ta upp frågan om lagstiftning. Utredningen har under arbetets gång dis- kuterat lagstiftningsfrågan, men slutligen stannat för att inte lägga fram något konkret förslag till lagstiftning. Om lagstiftning skulle bli aktuell, förordar utredningen en generell reglering i 6 kap. RTL som bör gälla för alla programföretag som sänder med digital teknik och som faller under svensk jurisdiktion. Bestämmelsen bör innehålla den förpliktelse lagstiftaren finner nödvändig för att företagen skall tillhandahålla en möjlighet för föräldrar att själva skapa skydd för sina barn mot vad de anser vara olämpligt pro- graminnehåll. Vidare bör Radio- och ges befogenhet att meddela närmare föreskrifter om de tekniska krav som skall ställas på programföretagen för att systemet skall fungera tillfreds- ställande. Verket bör också ha möjlighet att vid behov förelägga vite beträffande programbolag som inte fullgör sina åligganden i dessa hänseenden. Det finns slutligen skäl att framhålla att den ökade internatio- naliseringen av televisionssändningar innebär att enskilda länders särlösningar får minskad betydelse. För att uppnå en hållbar reglering på medieområdet avseende t.ex. våldsskildringar och por- nografi som är sändningstekniskt neutral krävs därför interna- tionellt samarbete. För del är det därför viktigt att fort- sätta driva de mediepolitiska frågorna inom EU för att nå enhetliga lösningar. Detta är inte minst viktigt med hänsyn till att TV-direk- tivet skall revideras . 8Konsekvenser av utredningens förslag Bedömning: Utredningens förslag bör inte medföra några kostnader för det allmänna eller enskilda. Enligt 14 § kommittéförordningen (1998:1474) skall utredningen redovisa om förslagen påverkar kostnaderna eller intäkterna för staten, kommuner, landsting, företag eller enskilda samt en beräk- ning av dessa kostnader. Om förslagen innebär samhälls- ekonomiska konsekvenser i övrigt skall även dessa redovisas. Medför förslagen en kostnadsökning för det allmänna skall förslag till finansiering lämnas. Vidare skall enligt 15 § kommittéförordningen sådana konse- kvenser av förslagen redovisas som har betydelse för den kom- munala självstyrelsen, brottsligheten och det brottsförebyggande arbetet, för sysselsättningen och offentlig service i olika delar av landet, för små företags arbetsförutsättningar, konkurrensförmåga eller villkor i övrigt i förhållande till större företags, för jämställd- heten mellan kvinnor och män eller för möjligheterna att nå de integrationspolitiska målen. Utredningens bedömning innebär att programföretagen även fortsättningsvis skall ges möjlighet att på frivillig väg utarbeta till- fredsställande system för en förstärkt föräldrakontroll. Någon skärpt lagstiftning som ingriper i programföretagens sändningsrätt för att skydda barn mot olämpligt programinnehåll har inte ansetts behövlig. Den utveckling som utredningen således förordar kan på det hela taget antas rymmas inom ramen för programföretagens ordinära utvecklingskostnader och innebär inte heller någon kost- nadsökning för det allmänna. Utredningen utgår därför från att förslaget inte kommer att få några beaktansvärda ekonomiska kon- sekvenser. Det kan dock konstateras att om det blir aktuellt att genom lag- stiftning försöka förmå programföretagen att skapa ett bättre Konsekvenser av utredningens förslag skydd för minderåriga, t.ex. i linje med vad utredningen föreslagit som ett alternativ till självreglering, kan detta medföra ökade kost- nader för framförallt Radio- och . I övrigt bör utredning- ens förslag i den delen inte påverka kostnader eller intäkter för det allmänna. En sådan reglering kan även komma att påverka de enskilda programföretagens kostnader. En närmare analys av dessa och eventuella andra konsekvenser kan dock först genomföras om och när lagstiftningsåtgärder blir aktuella. Utredningens förslag innebär inte några konsekvenser av det slag som bör redovisas enligt 15 § kommittéförordningen. Ku2000/3810/Me EXPERT SEMINAR: CHILDREN AND THE NEW MEDIA LANDSCAPE PRESIDENCY REPORT AND CONCLUSIONS outcome of the workshops.................................................... Full reports from the workshops ................................................... The Swedish Presidency of Union, in co-operation with Commission, organised an expert seminar in on 12-13 February 2001, entitled Children and young people in the new media landscape. The seminar brought together more than 200 representatives from governments and authorities within the Member States and Candidate countries, EU institutions, media industries and non- governmental organisations. The theme of the seminar was the situation of minors in the media, seen in the light of the rapidly evolving media landscape due to the impact of globalisation, digitalisation, the emergence of new media and the growth of media output. The issues discussed were protection of minors from harmful content on the Internet, in computer and video games and on television, and also television advertising directed at children. The seminar focused on the questions on what children should be protected from and why, how the protection should be accomplished and who is to be responsible for achieving the protection. The Swedish Minister of Culture, , opened the seminar and expressed her gratitude to all participants coming to the seminar to take part in the discussions. She underlined the importance of the theme and that the seminar had an important task in taking the discussions on methods and responsibilities into practice. As an introduction to the discussions two school of 11- year-olds presented their views on the mass media in society and in their own lives by performing a self-made production composed of song, music, dances and sketches. As a contribution to the following workshops, , PhD, made a thorough outline of research findings on children and media in the new media landscape. At the end of the seminar representatives of public service broadcasters in and in the demonstrated how European quality programming could play an important role for the healthy development and well being of children. Commission gave in its concluding speech some orientations concerning their further work on the question of protection of minors from harmful content in the media and also on the question of advertising directed at children. outcome of the workshops Workshop 1 discussed the protection of minors from harmful content on the Internet and in computer and video games. The following main observations need to be emphasized: There was a general consensus that children, regardless of age, need protection from harmful content on the Internet. Different cultural aspects and values come into play when discussing these issues. There appears to exist a different basis of values in Europe compared to the US but even in Europe it is difficult to establish a common platform of values. Several methods of protection were presented such as technical devices, awareness raising actions and media education. However, in this discussion greatest emphasis remained on rating and filtering techniques and their possibilities and limitations. Several speakers stressed the importance of greater user-friendliness. The question of who should be responsible for protection methods was addressed. The roles of parents, the government, Internet service providers and Internet content providers was highlighted. The self-regulatory age rating system adapted by parts of computer and video game industry was presented as well as a wish for a common European level of rating. Workshop 2 discussed the protection of minors from harmful content in a digital and global television environment. The following main observations need to be emphasized: Children all over Europe are much the same but cultural differences affect what is considered harmful in different countries. Still a European dialogue for consensus is needed as a long-term way to mutual understanding. It is easier to reach consensus on neutral content descriptions than on age recommendations, which would differ from one country to another. Protection and regulation are not the only means. Quality programming for children is equally important. Media education can empower children and should be part of the regular school system. Parents, broadcasters and producers of childrens programmes should be part of educational efforts. Media habits do not change as rapidly as technology. Therefore, conventional methods for protection, like watersheds, will still be valid. Growing responsibility of parents in the digital era should not reduce the responsibility of broadcasters. The evaluation process of the Recommendation on the protection of minors may well influence how the new TV directive could deal with all electronic content. The fundamental principle of proportionality is valid also for the protection of minors. Accountability, transparency, sanctions and continuous evaluation should be part of self-regulation systems. Workshop 3 discussed television advertising directed at children and how to create a fair play situation. The following main observations need to be emphasized: The subject was discussed mainly from two points of view – the ethical aspects on television advertising aimed at children on the one hand and the financial interests on the other. It was underlined by some participants that children do not have the ability to identify and fully understand the purpose of advertising. Others put forward that children are quite capable of evaluating advertisements and that only through advertising would there be childrens programmes of good quality. However, others put this link into question. There appears to be a need for further discussion on the subject. The seminar took an approach in the ongoing and widespread discussion within Europe on the issue of the situation of minors in the media. The meeting constituted a timely and successful occasion serving as a platform for the exchange of information and experience between relevant parties across different media sectors. The discussions were held within a comprehensive frame, including the issues of protection of minors from harmful media content, television advertising aimed at children, and the role of public service television in providing quality content. It was recognised that while the media development offers minors new opportunities of information, knowledge and amusement, also new problems appear. The risk that children and young people would be exposed to harmful media content is inevitably higher as the rapid technological development threatens to undermine existing means of protection and as the amount of media output increases indefinitely. The question of what is to be considered as harmful content is to a large part a reflection of different cultural values. It was also said that there are no reasons, from an ethical perspective, why harmful content should be evaluated and regarded differently depending on different media forms. The discussion on the question of how the protection should be accomplished pointed out several methods which all have their part to play if there is to be a sufficient and sustainable level of protection, capable of in pace with the technological development. It was said that the methods of protection have to be different depending on how the content is delivered. Even though the development of, inter alia, filtering systems continues, there will still be a need for more traditional methods of protection, e.g. the watershed. Nevertheless, restrictions and control are not the only means. Various positive measures were stressed, especially the need for promotion of production of European quality programming and also the crucial need for different methods of media education to help children become critical users of media. Education, however, is also necessary for parents, producers and broadcasters. It was mentioned that media education should be brought closer to, and become part of, regular school systems. The question on who should be responsible for achieving the protection was also debated. Undoubtedly, the new media landscape is more difficult to control than it was a few years ago, but this does not imply that any party concerned will have a reduced responsibility. On the contrary, the EU, national regulatory authorities, the industry, organisations and parents all have a continuous responsibility. In order to enable parents to take greater responsibility for the viewing of their children, it was said that content providers should provide parents with adequate information on program content. This also implies that information to the parents on the available technical devices and its functioning is needed pointing out the aim of empowering the consumers. The issue of television advertising and children was debated in a very open and constructive . There was a consensus on the principle that children need to be given special attention when it comes to advertising. However, the debate also revealed a vast variety of differing opinions regarding, inter alia, the advantages and disadvantages of legislative measures in relation to industry self-regulation, and what constitutes an adequate level of protection. Opinions also differed on whether advertising targeted at children is inevitable for securing quality childrens programmes. Finally, the broad approach taken by the seminar, dealing with content issues across several media sectors, proved to be successful. The Presidency wishes that all parties participating in the seminar will find the outcome of the discussions fruitful in their further work and when fulfilling their respective responsibilities in reaching our common goal, namely to give our children and young people a sufficient protection from harmful content in the media. As the ultimate responsibility for taking decisions on legislation or other actions lies within different bodies, regulatory or non- regulatory, the Presidency believes there is a need for further co- operation at European and international level, bringing together all relevant parties within and between media sectors, aiming at the exchange of experience and best practices. To conclude, the Presidency hopes that all parties will bear the outcome of the discussions in mind in view of the forthcoming work on the Television without frontiers directive and in the further work that will follow the evaluations of the Recommendation on the protection of minors and human dignity and of the Internet action plan. : Full reports from the workshops Workshop 1: Protection of minors from harmful content – on the Internet and in video and computer games In the Internet, video and computer games workshop there was a general consensus that children, regardless of age, need protection from harmful content. The group agreed that the discussion of protection this day applied to the age group ten to fifteen year olds. Many speakers noted that different cultural aspects and values come into play when discussing these issues. Bad language, nudity, violence and sex were mentioned as areas where protection is necessary. Moreover, there appears to exist a different basis of values in Europe compared to the US but even within Europe it is difficult to establish a common platform of values. Commission representative informed about the outcome so far of the evaluation of the Recommendation on the protection of minors and human dignity. The Commission is co- funding several European initiatives such as projects aiming at giving parents technical tools of protection and to awareness raising actions. Filtering techniques as such is a controversial matter but all agree that awareness-raising projects are desirable. Around fifty awareness-raising projects are under way also involving and . Twelve member states have implemented codes of conduct. Several of these codes have been drawn up by Internet service providers but they do not concern matters of content, but rather matters of services. The Commission representative stressed the importance that all parties involved should take part in this process, the Internet industry as well as national authorities and users. Several methods of protection were presented such as technical devices, awareness raising methods, media education. The importance of self-regulation was stressed which also comprises the importance of codes of conduct set up by the industry. So-called walled gardens where children safely can interact was mentioned but no secure solution has yet been developed. Another method presented was awareness raising actions, implying actions designed at creating a higher level of awareness of what risks and dangers a child can be subjected to when using the Internet. Awareness raising actions are aimed at children, parents, and others from the adult society and include measures of how to deal with those risks. An additional means of protection mentioned was white and black lists. These lists display sites that a certain portal or other content provider would offer access to or respectively, block the access to. However, this day focus remained on rating and filtering techniques, their possibilities and limitations. Several speakers stressed the difficulties in defining neutral descriptive systems for rating Internet content. An ongoing process of refining these classification tools will give parents and other adults even better choices. A need for third party raters was also expressed. Corresponding to the consumers own values and cultural preferences a broad range of sites compiled by a sort of librarians could be offered as a free or commercial service. Moderated chat rooms was presented as a means of protection of minors using chat rooms. A moderated chat differs from a conventional chat in the sense that a physical person supervises and decides whether or not to accept the statements coming in to the chat. Concerning content restricting methods certain apprehensions were raised about limiting the right of free speech. The consumer representative raised worries about disregarding the rights of the child in favour of the right of free speech. There is not only a need for better tools of protection, speakers said, parents also need to get a better understanding of and information about what tools of protection there actually are today. Several speakers stressed the importance of greater user- friendliness. An increased interaction between technicians, consumers and Providers was sought for. Full transparency was desired in regard of intended technical schemes. Consumer choice and empowering the consumer can, according to the consumer organization representative, only grow if more Internet sites are rated. By increasing the number of rated sites, consumers can choose what sites to go to, and also what rating systems to use. Concerning computer and video games, the self-regulatory age rating system adapted by parts of computer and video game industry was presented as well as a wish for a common European level of rating. The question of who is to be responsible for the protection of minors was also raised. The roles of parents, schools, the government and national authorities, Internet service providers and Internet content providers were highlighted. to the complex media situation a precise balance between these actors was difficult to define. One speaker mentioned the present switch in shouldering responsibilities. In a traditional media environment national authorities carry a responsibility of protection, which to a certain extent no longer is efficient. The media landscape of today is more complex and media use is becoming more individualised and consequently the role of the parents and the government needs to be re-defined. Looking into the future the panel agreed that the Internet is a rapidly evolving phenomenon that will become more mature. While traditional media industries will move in, alternative societies will remain which means that anarchistic subcultures will co-exist with an established Internet. Workshop 2: Protection of minors from harmful content – in a digital and global television environment started by highlighting the many benefits of television giving us news, information, entertainment, suspense and us informed about what life can be outside of our own lives. The issue of what to protect children from was answered by several participants as violence, sexual acts, discrimination, use of drugs and alcohol, rude language and commercial exploitation. But variations were expressed in the priority of these topics and it was considered important to respect the cultural differences. A further European dialogue in order to reach a consensus was asked for but as a long-term process. One example in the field of film classification was referred to where a dialogue lasting for ten years had resulted in a useful mutual understanding between three European countries. The need to protect children was mentioned as an ethical issue rather than an issue of evidence of influence. on classification of content there was a clear distinction between a value neutral descriptive classification like nudity or violence and an evaluative classification like harmful or the use of age recommendations. It was considered easier to reach consensus on neutral content descriptions than on age recommendations, which would differ from one country to another.