sou · H6B31 · 2018-01-12 00:00:00 — Vi har gjort bedömningen att för att kunna ut- öva en aktiv och effektiv tillsyn måste få tillgång till nya former av tek- niska lösningar samt anställa mer personal med kompetens att utnyttja och vidareutveckla sådana tekniska lösningar. Det kräver ökande an- slag till tillsynsmyndigheten vilket innebär en ökad kostnad för staten. När det gäller förslagens påverkan på domstolarna är det samman- fattningsvis vår uppfattning att de eventuellt tillkommande mål som våra förslag kan medföra är så få att de får anses rymmas inom be- fintliga anslag. Vårt förslag om att lyfta upp kravet på att det ska visas särskild hänsyn vid marknadsföring riktad mot barn och unga i lagtexten bör vara positivt för den gruppen. Även om förslaget innebär en kodifier- ing av vad som redan gäller anser vi att tydliggörandet troligen kom- mer att bidra till att sådan hänsyn tas i större utsträckning än . The overarching aim of this Inquiry has been to analyse and assess whether the current regulatory framework – in light of the major changes in the advertising landscape in recent years – provides ade- quate and appropriate protection for . Our remit has comprised different parts. One part has involved surveying and describing marketing channels and methods. This sur- vey has then served as a basis for analysing and assessing the extent to which these channels and methods are problematic from both a consumer perspective and a gender equality perspective, with partic- ular focus on vulnerable consumers. Based on the problems we iden- tified in the survey, we have then analysed and assessed whether the current regulatory framework offers adequate and appropriate pro- tection for consumers. Another part of our remit has involved analysing and assessing which particular challenges the supervisory authority is facing in the prevailing circumstances, to assess whether the and the Consumer Ombudsman have the investigative and supervisory powers and opportunities to impose charges required for and efficient supervision. The remit did not include presenting concrete legislative propos- als. However, in accordance with our terms of reference, taking into account the EU perspective, we have discussed possible needs for legislative amendments. Carrying out the survey The survey was conducted in different phases. A knowledge inven- tory of the areas we are tasked with identifying was initially carried out in the start-up phase. We then produced a structure for iden- tifying marketing channels and methods in consultation with our advisers and experts. This structure and the committee terms of re- have since served as a basis for work going forward. In the subsequent data collection phase, extensive material has been collected and analysed. Data has also been collected in connec- tion with meetings initiated externally with government agencies and organisations in the area. The compilation phase has been ongoing and here, the material has been processed and compiled. The compilation, which has been subject to dialogue within the Inquiry, has subsequently been the basis for the final analysis phase of the survey. The Inquiry’s starting points In light of our survey, the Inquiry assesses that it is mainly the digital marketing channels that stand out as being problematic from a consumer perspective. There are methods that are particularly pro- blematic from this perspective and that exist in both traditional and digital channels. However, the difficulties that exist from a con- sumer perspective – even with regard to such methods – are mainly linked to the use of marketing in digital channels. The problems we have identified are generally not because of shortcomings in the regulations – either in the Marketing Practices Act or in the underlying EU directive. should marketing on the internet be subject to special rules, as we consider this would mean taking a step backwards. The Inquiry considers that regulations should continue to be technology-neutral, i.e. should not distinguish between online and offline environments. Instead, work should continue also in the future on education and training, counselling and clear guidelines to increase awareness of established law. It is also important that and efficient super- vision is carried out. We have particularly highlighted personalised advertising and disguised advertising as core issues for the Inquiry, as we consider that many of the problems we have identified focus on these issues. However, there is a fundamental difference between these two types of advertising, namely that personalised advertising is not in itself illegal, while disguised advertising, in fact, is. This means that con- siderations about what is needed to remedy the problems in part have different starting points. Our proposals and assessments Information, guidelines and education In the Inquiry’s view, marketing on the internet should not be sub- ject to special rules. Instead, the Inquiry considers that, even in the future, it is important to use education, training and counselling to spread knowledge on established law and how it is to be applied in new media. Consumer protection agencies should strive to reach a wide audience with information and education on what rules apply concerning marketing in digital channels. Guidelines on marketing on the internet should be as clear as possible. should also, in a first step, be tasked with collaborating with industry representatives. If collaboration does not work on a volun- tary basis, requirements may be considered. This is to emphasise how important it is that all actors take part in this work. Personalised advertising should not be prohibited Personalised advertising is permitted. There are no specific rules that relate to the use of personalised advertising, either in the Practices Directive or in the Marketing Practices Act. In the Inquiry’s view, completely prohibiting the use of personalised advertising is neither possible nor desirable. All the same, adequate protection of personal data in connection with data collection and use is important, although this lies outside the remit of the Inquiry. In the EU’s new Protection Regulation, requirements on the individual business operator in connection with data collec- tion will be stricter. This will probably have a positive impact on problems concerning personalised advertising. It is important to provide information to and educate consumers so as to strengthen their awareness of the use of personalised ad- vertising. Consumers must also have better opportunities to control what advertising is shown to them to ensure that they benefit from personalisation. Platforms should offer functions to enable such control. In our assessment, the Internet of Things can be regarded as such a similar automatic system for individual communication as regula- ted in Section 19 of the Marketing Practices Act. The Internet of Things should therefore be covered by the rules of the Marketing Practices Act on unsolicited advertising. Practice will show how the rules are to be applied to the Internet of Things. Problems concerning disguised advertising cannot be solved through legislative amendments Problems concerning disguised advertising cannot be solved through legislation. All marketing must be designed and presented so as to make it clear that it is a question of marketing. The regulation in the Marketing Practices Act is clear on this point and also includes the internet. We believe that education and counselling for both advertisers and producers will remain important. The supervisory authority should strive to produce clear and easily applied guidelines. As part of these efforts, the Inquiry considers that the supervisory authority should exercise its right to pursue cases in court to create practice in the area. Marketing targeting vulnerable consumers Children and young people In the Inquiry’s opinion, the existing regulation generally provides sufficient protection even when marketing targets children and young people. However, the Inquiry proposes the introduction of a provi- sion in the Marketing Practices Act stipulating that if marketing targets or reaches children and young people, particular considera- tion must be given to children’s inexperience and natural naiveté. The introduction of such a provision does not actually have any new implications, but rather may be seen as codification of what al- ready applies. However, the Inquiry considers that introducing a provision may have a clarifying function and emphasise the impor- tance of protecting children and young people. The Inquiry also proposes introducing a provision in the Marketing Practices Act stipulating that if marketing targets or reaches vulner- able consumers, particular consideration must be given to such a group’s vulnerability. ‘Vulnerable consumers’ refers to a clearly iden- tifiable group of consumers who, due to cognitive or physical dis- abilities, age or naiveté, are particularly sensitive to the method or the product that the method refers to. The provision involves codifica- tion of what already applies, but here too, the regulation can have a clarifying function. Regulation of intermediaries’ accountability is currently adequate Our survey has shown that many of the consumer problems we have identified are related to marketing in digital channels, which means it is important that the actors involved in marketing can be held accountable. There are different kinds of intermediaries, and in the Inquiry’s opinion, it appears to be appropriate that their account- ability should vary depending on the role they play and the extent of their influence on the marketing. That is, we consider that the type of assignment should affect the level of accountability of each inter- mediary. Attempting to regulate the meaning of such accountability appears to be very difficult and would also lead to a regulation that would be difficult to apply. Furthermore, interactive digital media are also an environment in which new actors are constantly emerging, which is another argument against excessively detailed regulation. We consider that the existing regulation concerning intermediaries’ ac- countability is adequate. It is our view that more detailed questions concerning how the rules are to be applied following the emergence of the new technology should be left to the authorities applying the law. We also consider that the should pro- duce guidelines concerning its position on intermediaries’ account- ability. should have the possibility to make purchases for inspection under a cover identity It is difficult for the to gain access to the marketing that consumers see, since it is becoming increasingly per- sonalised. Ultimately, this means it is difficult, in principle impossible, to preserve marketing evidence. In light of this, it is important for the to be able to access the same mar- keting that is shown to consumers. We propose that the should be given the power, under another identity and without stating the intention of the purchase, to purchase a pro- duct or service for the purpose of checking compliance with market- ing legislation, i.e. purchases for inspection purposes under a cover identity (also known as ‘mystery shopping’). It seems appropriate that the Government be authorised to issue regulations on how purchases that require fictitious personal data are to be managed. We consider that the should also have the possibility of using such fictitious personal data for register- ing accounts on social media and other platforms to access marketing there. The Consumer Ombudsman should be allowed to request access to information etc. under penalty of a fine The supervisory authority has the right to take certain measures in its supervisory operations. However, under established law, the supervisory authority must first request that someone submit in- formation to then have the right to order someone to submit the in- formation under penalty of a fine. This type of procedure is a cir- cuitous path that unnecessarily delays inspection. In our opinion, the Consumer Ombudsman should be allowed to request information under penalty of a fine. Therefore, we propose that Section 45 of the Marketing Practices Act be adjusted so that it stipulates that a re- quest under Sections 42–44 of the Marketing Practices Act may be accompanied by a fine. The supervisory authority’s investigative powers Efficient supervision requires that the supervisory authority is al- lowed to request access to or in another way gain access to data needed for finding advertising that breaks the law. We consider that Section 42 of the Marketing Practices Act already currently includes a right for the supervisory authority to use the platforms to request data needed in a case. Therefore, we consider that a potential legisla- tive amendment should not be considered until the authority attempts to access data and pursues cases for the purpose of creating legal practice. In some cases secrecy rules may prevent access. The authority’s supervisory operations should not be unduly hindered by secrecy rules that apply at other authorities. Therefore, we consider that the ’s possibilities to access documents that are subject to secrecy at other authorities in the course of its super- visory operations should be reviewed. Consumer Ombudsman may act as counsel in the Patent and Market Court Under Section 2 of the Act concerning the involvement of the Con- sumer Ombudsman in certain disputes (2011:1211), the Consumer Ombudsman may decide, in a dispute between a consumer and a business operator, to assist the consumer as counsel in a general court and before the Swedish Enforcement Authority. This is the case if the dispute is important for the application of the law or if there is some other general consumer interest in examining the dis- pute. The Patent and Market Court is not specially mentioned in the Act. The Inquiry considers that the Consumer Ombudsman should also be allowed to act as counsel in disputes in the Patent and Market Court. Attachment in cases concerning the imposition of a fine In cases concerning market disturbance fees, the Consumer Ombuds- man may apply for attachment, while a corresponding possibility is lacking in cases concerning the imposition of a fine. Even in cases when fines may be imposed, such amounts may be substantial. It appears reasonable to introduce the possibility for the Consumer Ombudsman to apply for attachment in cases concerning the imposi- tion of such fines. Introducing such a right with regard to procedural fines may also help strengthen supervision. Therefore, we propose that the Consumer Ombudsman should be allowed to apply for attachment in cases concerning the imposition of a fine under Sec- tions 26, 28 or 45 of the Marketing Practices Act. should be allowed to publish a warning list ’s remit includes ensuring that con- sumers have access to information and guidance on consumers’ rights and obligations and other information that makes it possible for them to make well-balanced choices if no other public authority has that task. should therefore be allowed to provide information to inform consumers by publishing a warning list. However, each warning message must be based on adequate, fac- tual and objective circumstances. Technical solutions are needed for effective and supervision Today’s advertising landscape requires new forms of technical solu- tions to ensure that the can continue to exercise and effective supervision. It is the Inquiry’s assess- ment that increased allocations are needed for the Agency to be able to live up to the new requirements. It is matter of finding and pro- curing new technical solutions, but also of broadening competencies among employees and hiring different types of competencies than has traditionally been the case. In recent years, has fallen behind in consumer protection efforts, largely due to inadequate resources. According to what has emerged during the Inquiry, progress in several other EU countries is much more advanced than in . This is also an argument in favour of increased allocations to the . No new sanctions are proposed We have considered two different powers for the supervisory author- ity: website shutdown and a trading prohibition. However, we have made the assessment that such powers should not be introduced. The market disturbance fine level should be reviewed The market disturbance fine was raised recently. Despite this, it still appears to be much too low. Therefore, in the Inquiry’s opinion, the Government should once again consider reviewing the size of the market disturbance fine. Our proposals will primarily affect the and the Consumer Ombudsman. We submit a number of assessments that should be regarded more as recommendations to the Agency, as draft guidelines. However, drafting guidelines such as those we propose should be regarded as already being part of the Agency’s remit, and should therefore fit within existing appropriations. In general, our proposals relating to supervision should mainly affect the and the Consumer Ombuds- man in a positive way, since they should facilitate supervision and make it more efficient. efficient supervision could possibly lead to an increased number of cases. However, we do not believe that the increase will be substantial. Our proposal relating to the Consumer Ombudsman acting as counsel could also lead to more cases, although here too, the increase would be marginal. We have assessed that, for the to be able to exercise and effective supervision, it must have access to new forms of technical solutions and employ more staff with the skills to use and further develop such technical solutions. This re- quires increased appropriations to the supervisory authority, which means an increased cost for the state. With regard to the proposals’ impact on the courts, in summary, it is our view that any additional cases that may result from these proposals are so few that they may be regarded as fitting within existing appropriations. Our proposal to raise the requirement to take particular con- sideration in marketing targeting children and young people in the legislative text should be favourable to that group. Although the pro- posal is a codification of what already applies, we consider that the clarification will probably contribute to consideration being taken to a greater extent than at present. 1Utredningens uppdrag och arbete Vi ska enligt våra direktiv (dir. 2016:84, se bilaga 1) analysera och be- döma om dagens regelverk – mot bakgrund av de stora förändringar i reklamlandskapet som skett – ger ett tillräckligt och ändamålsenligt skydd för konsumenter. Uppdraget består av olika delar. En del handlar om att kartlägga och beskriva marknadsföringskanaler och marknadsföringsmetoder för att sedan analysera och bedöma i vilken utsträckning dessa är problematiska ur såväl ett konsumentperspektiv som ur ett jämställd- hetsperspektiv. Analysen ska särskilt fokusera på sårbara konsumen- ter. Utifrån de problem vi identifierar i kartläggningen ska vi sedan analysera och bedöma om dagens regelverk erbjuder ett tillräckligt och ändamålsenligt skydd för konsumenter. En annan del av vårt uppdrag är att analysera och bedöma vilka sär- skilda utmaningar som tillsynsmyndigheten ställs inför under rådan- de förhållanden. Detta för att bedöma om och () har de utrednings- och tillsynsbe- fogenheter samt de sanktionsmöjligheter som krävs för en aktiv och effektiv tillsyn. Vi ska vid behov föreslå lämpliga åtgärder för att förbättra kon- sumentskyddet. I uppdraget ingår inte att lämna konkreta författ- ningsförslag. Vi ska dock, med beaktande av EU-perspektivet, reso- nera om eventuella behov av författningsändringar. Vi ska sträva efter en god balans mellan konsumenters och näringslivets intressen och ta hänsyn även till möjliga framtida affärsmodeller. Utredningens uppdrag och arbete Reklam är en form av marknadsföring. Men marknadsföring är enligt marknadsföringslagen t.ex. också prissättning, hur en vara eller annan produkt utbjuds till försäljning och efterköpssituationer etc. Vi ska enligt våra direktiv kartlägga det förändrade reklamlandskapet för att kunna bedöma om dagens lagstiftning ger ett tillräckligt skydd för konsumenterna. Vi tolkar vårt uppdrag som att vi främst ska titta på olika former av reklam. När det gäller andra fenomen som ryms inom begreppet marknadsföring kan det bland dessa finnas företeelser som kan vara problematiska ur ett konsumentperspektiv. Mot bakgrund av vårt uppdrag tittar vi dock på detta endast i begränsad utsträck- ning. I vår kartläggning och analys av regelverket fokuserar vi i enlig- het med uppdraget på reklam i form av budskap som förekommer i de olika kanalerna. Något som framstår som problematiskt ur ett konsumentperspek- tiv är personaliserad reklam. Det väcker frågor om användningen av personuppgifter och integritetsskydd. Skyddet för den personliga integriteten har dock varit föremål för två statliga utredningar (se avsnitt 2.1). Dessutom har EU beslutat om ett nytt regelverk för behandling av personuppgifter som ska börja tillämpas i medlemsstaterna . Vår bedömning är mot bakgrund av det ovan anförda att varken frågor om användning av personuppgif- ter eller integritetsaspekten ingår i vårt uppdrag, vårt fokus är i stället de problem som användandet av personaliserad reklam kan innebära ur ett konsumentperspektiv och ur ett jämställdhetsperspektiv. Vårt uppdrag omfattar också att titta på marknadsföring som är problematisk ur ett jämställdhetsperspektiv. Det finns reklam som till sitt innehåll skulle kunna vara problematisk som t.ex. sexistisk reklam. Vi har dock valt att tolka problem ur ett jämställdhetsper- spektiv som att vi ska identifiera kanaler och metoder som kan vara problematiska på grund av de effekter på jämställdheten som kan upp- komma vid användningen av kanalerna/metoderna, exempelvis att per- sonaliserad marknadsföring skulle kunna innebära att traditionella könsroller befästs. Däremot anser vi inte att vårt uppdrag omfattar sexistisk reklam och reklam som till sitt innehåll kan vara problema- tiskt ur ett jämställdhetsperspektiv. Utredningens uppdrag och arbete Arbetet har bedrivits i nära samråd med experter och sakkunniga. Utredningen har löpande haft sammanträden och andra kontakter med experterna och de sakkunniga. Sammanlagt har sex sammanträ- den hållits. Enligt direktiven ska utredaren inhämta information och syn- punkter från berörda myndigheter och organisationer, liksom från andra relevanta aktörer. Detta har skett på följande sätt. Utredningen har haft möten med företrädare för Konsument- verket/KO och . har dessutom varit representerat i utredningens expertgrupp. Utredningen har också träffat företrädare för (), Google och Facebook. Utredningen har deltagit i ett seminarium om smygreklam som RO höll i . Betänkandet kan delas in i tre delar. I betänkandets första del, som omfattar kapitel 2–6, redovisas den allmänna bakgrund som ligger till grund för utredningens övervägan- den och förslag. I kapitel 2 ger vi en allmän beskrivning av internet, sociala medier och den globala annonsmarknaden. I kapitel 3 följer en redogörelse för gällande rätt. Kapitel 4 innehåller en redogörelse för konsumentskyddet, där beskriver vi olika konsumentsskyddande myn- digheter och organisationer och deras verksamhet. Vidare i kapitel 5 redogör vi för näringslivets egenåtgärder, här finns bl.a. en beskriv- ning av och för reklam och marknadskommunikation. I kapitel 6 gör vi en internationell utblick. I betänkandets andra del, kapitel 7–9, finns utredningens kart- läggning och analysen av denna samt utredningens överväganden och förslag. Vår kartläggning av marknadsföringskanaler och marknads- föringsmetoder och vår analys över vilka av dessa som är proble- matiska ur ett konsumentperspektiv finns i kapitel 7.