sou · H7B339 · 2019-08-16 00:00:00 — Utredningen före- slår att den som inte följer beslut om skyldighet att utforma tv-sänd- ningar, beställ-tv eller sökbar text-tv på ett sådant sätt att tjänsterna blir tillgängliga för personer med funktionsnedsättning ska kunna åläggas att betala en särskild avgift. Det föreslås att frågan om påförande av den särskilda avgiften prövas av och tv när beslut om krav på tillgänglighet för personer med funktionsnedsättning fattats av regeringen och av Myndigheten för press, radio och tv i övriga fall. Sådana beslut ska kunna överklagas till allmän förvaltningsdomstol. Kapitel 18 Närliggande frågor Utredningen får föreslå författningsändringar som inte direkt för- anleds av uppdraget men som har samband med det, under förutsätt- ning att uppdraget ändå bedöms kunna redovisas . I kapitel 18 lämnar utredningen förslag om följande närliggande frågor. Egenreklam och förbudet mot otillbörligt gynnande Bestämmelsen om otillbörligt gynnande i radio- och tv-lagen gäller för program som inte är reklam. Det innebär att bestämmelsen inte kan tillämpas om ett otillbörligt gynnande sker i samband med egen- reklam, dvs. reklam för den egna programverksamheten. Utredningen lämnar förslag om att det inte ska vara tillåtet att gynna andras kom- mersiella intressen i samband med egenreklam. Produktplacering av alkoholdrycksliknande preparat har vissa ändringar genomförts i alkohollagen (2010:1622) och andra lagar i syfte att åstadkomma en så likartad reglering som möjligt för alkoholdrycker och alkoholdrycksliknande preparat. Bland annat har förbudet i radio- och tv-lagen mot att någon vars huvud- sakliga verksamhet är att tillverka eller sälja alkoholdrycker sponsrar program utökats till att gälla även sponsring från någon vars huvud- sakliga verksamhet är att tillverka eller sälja alkoholdrycksliknande preparat. Utredningen föreslår att det inte heller ska vara tillåtet med pro- duktplacering av alkoholdrycksliknande preparat. Sponsring från läkemedelsföretag i ljudradio Enligt radio- och tv-lagen gäller vissa begränsningar om ett läke- medelsföretag sponsrar ett program i tv, sökbar text-tv eller beställ-tv. I sådana fall får sponsringen bara främja företagets namn eller anse- ende, men inte receptbelagda läkemedel eller sådan medicinsk be- handling som bara är tillgänglig efter ordination. Någon motsvarande bestämmelse finns inte för sponsring i ljudradio. Det bryter enligt utredningen mot systematiken i radio- och tv-lagen eftersom övriga bestämmelser om förbud mot eller begränsning av viss sponsring gäller både för tv och radio. Olikheterna i reglering kan också skapa snedvridningar på annonsmarknaden. Utredningen föreslår därför en ny bestämmelse som innebär att när läkemedelsföretag sponsrar ett program i ljudradio ska sponsringen bara få främja företagets namn eller anseende, men inte receptbelagda läkemedel och sådan medicinsk behandling som bara är tillgänglig efter ordination. Förtydligande av tillämpningsområdet för marknadsföringslagen och vissa hänvisningar till radio- och tv-lagen i annan lag Utredningen lämnar förslag om att bestämmelserna om förbud mot reklam i alkohollagen och lagen (2018:2088) om tobak och liknande produkter ska utformas likalydande. Utredningen föreslår bl.a. att hänvisningarna till radio- och tv- lagen ska tas bort, vilket får till följd att de svenska förbuden även kommer att gälla för sådana satellitsändningar som utgår från tredje länder men som är avsedda för en svensk publik. Utredningen föreslår också ändringar i marknadsföringslagen (2008:486) som förtydligar att lagen tillämpas på tv-sändningar och beställ-tv som omfattas av radio- och tv-lagen, även om de helt eller huvudsakligen är avsedda för mottagning i en annan EES-stat än . Utredningen tar även upp en del frågor utan att lämna förslag till författningsändringar. Utredningen bedömer bl.a. att det finns behov av ytterligare utred- ning av frågan om upptäckbarhet i onlinemiljö. Utredningen bedömer också att en översyn behöver göras av bestämmelserna om åter- kallelse av sändningstillstånd i vissa fall. Utredningen föreslår att författningsändringarna ska träda i kraft . Några övergångsbestämmelser behövs inte med anledning av förslagen. Kapitel 20 Konsekvenser av förslagen I kapitel 20 redovisar utredningen konsekvenser av förslagen, bl.a. konsekvenser för berörda företag och myndigheter. Utredningen har strävat efter ett genomförande som ligger i linje med de minimiregler som AV-direktivet anger. På ett område har utredningen valt att föreslå ett genomförande som avviker från AV- direktivets minimiregler. Det gäller de bestämmelser om reklam och andra annonser som blir tillämpliga på leverantörer av videodelnings- plattformar. I den delen knyter genomförandet an till den striktare reglering som gäller i svensk rätt för leverantörer av tv-sändningar och beställ-tv. Utredningen bedömer att förslagen påverkar berörda tv-företag i positiv riktning, i huvudsak med anledning av liberaliseringen av reklamreglerna som enligt tillfrågade tv-företag skapar förutsättningar för märkbart högre intäkter. Sammantaget bör förslagen även innebära en minskning av tv-företagens administrativa börda. Utvidgningen av radio- och tv-lagen till leverantörer av videodelningsplattformar innebär en ökad administrativ börda för sådana företag. Myndig- heten för press, radio och tv:s kartläggning av området visar att det sannolikt är få tjänster som kommer att omfattas av den nya regler- ingen. Det innebär att myndigheten inom ramen för arbetet att upp- mana till samreglering på området kommer att kunna informera och stödja de leverantörer av videodelningsplattformar som berörs och därmed underlätta företagens administrativa börda. När det gäller konsekvenser för myndigheter innebär utredningens förslag nya uppgifter för bl.a. Myndigheten för press, radio och tv. Det handlar t.ex. om medverkan till samreglering, om tillgänglighet för personer med funktionsnedsättning, kartläggning och redovisning av åtgärder inom området för medie- och informationskunnighet () och registerfrågor inkluderande utökade registerkrav. Upp- gifterna bör, i varje fall inledningsvis, kunna rymmas inom myndig- hetens befintliga anslag. De uppgifter som får med anledning av utred- ningens förslag, bl.a. om kartläggning och redovisning av åtgärder på MIK-området, bedöms kunna rymmas inom myndighetens befint- liga anslag. För Justitiekanslern, , Datainspektionen och domstolarna innebär utredningens förslag utökade uppgifter av mindre omfattning. Utredningen bedömer att förslagen inte medför behov av resursförstärkning för myndigheterna. The 2018 Audiovisual Media Inquiry has been commissioned to pro- pose the legislative changes and other actions needed to implement the revised Directive and to review certain other parts of the Swedish Radio and Television Act. In its report the Inquiry details its proposals and assessments. The Inquiry’s report relates mainly to changes to the Radio and Television Act. The suggested legal amendments can be found in Chap- ter 1 and comments to the amendments can be found in Chapter 21. This summary provides an overview of the contents of the report. The report begins with a description of the Inquiry’s remit and how the work has been carried out. The Inquiry’s remit has been to analyse the changes made to the Directive (AVMS Directive) and to assess to what extent Swedish law needs to be amended as a consequence. The revised directive (Directive of Parliament and of the Council (EU) 2018/1808 amending Directive 2010/13/EU on the coordination of certain provisions laid down by law, regulation or administrative action in Member States concerning the provision of audiovisual media services in view of changing market realities) was adopted on and should be introduced into Swedish law no later than . In addition, the Inquiry was commissioned to review five subsidi- ary issues in the Radio and Television Act (2010:696), and has had the possibility to propose other legislative changes that are not directly attributable to the remit but are linked to it. The investigation has been carried out by three full-time inquiry secretaries under the leadership of the Government appointed chair of the inquiry, in close cooperation with a panel of experts. The secre- tariat has held meetings with or been in contact with a number of government agencies, interest groups, media companies and other inquiries. Chapter 3 Regulation within the field of radio and TV In Chapter 3 the Inquiry describes the main features of Swedish legis- lation within the field of radio and TV, relevant EU law and the regu- latory authorities within this field. The underlying legislation for the Swedish media is contained in the Freedom of the Press Act and the Fundamental on Freedom of Expression, and is based on the principle of freedom of establish- ment, the prohibition of censorship, etc. The Fundamental on Freedom of Expression covers radio, TV, film, video and certain databases. Although the principle of free- dom of means that anyone is permitted to broadcast programmes without state interference, the Fundamental allows exceptions to this freedom, especially for terrestrial or satellite trans- missions due to spectrum limitations. The Radio and Television Act governs radio and TV broadcasts and on-demand television in and includes licensing requirements for terrestrial broadcasts of radio and TV. The act includes provi- sions on content regulation, advertising rules including provisions on sponsorship and product placement as well as provisions on acces- sibility for persons with disabilities. In terms of advertising, media service providers are also subject to the provisions of the Marketing Practices Act (2008:486), the Alcohol Act (2010:1622), the Act on Tobacco and (2018:2088), the Act (2015:315) and the Gambling Act (2018:1138). legislation within the field of TV consist of the Directive (2010/13/EU) revised in 2018 (2018/1808/EU). The directive is an internal market directive with the main aim of facilitating TV broadcasts between the Member States. The directive originally covered only TV broadcasts but was expanded in 2007 to include on-demand TV. The underlying principle of the directive is the country of origin principle giving the state from which a service originates the juris- diction over that service, i.e. the responsibility to regulate the service according to national legislation. The directive includes a minimum level of content regulation. The revised directive provides for a more level playing field be- tween TV broadcasts (linear services) and on-demand TV (non-linear services) as regards conditions for advertising and provisions on the protection of minors. The regulation regarding promotion of Euro- pean works, in which quota requirements have only applied for TV broadcasts, is expanded to include requirements also for on-demand TV. Other changes include more detailed provisions on incitement of violence and hatred and on the protection of minors. The revised AVMS Directive also includes a new chapter contain- ing provisions on video-sharing platform services. These are services such as Youtube where the provider has no editorial responsibility for the content but can decide how the content is organized. The revised directive also contains provisions to ensure the independence of national regulatory authorities and on cooperation between them. A number of Swedish agencies and authorities have regulatory roles within the media field as a result of the AVMS Directive. When it comes to the provisions on the editorial content of broadcasts, the remit lies primarily with the and Broadcasting Author- ity’s Broadcasting Commission. The remit of monitoring the provi- sions on content that could harm the physical, mental or moral devel- opment of minors has been assigned to the Office of the Chancellor of . Responsibility for monitoring the directive’s provisions on commercial communications is shared between the Broadcasting Com- mission and the , with the exception of advertising for products and treatments which is monitored by the . Chapter 4 Definitions, jurisdiction and registration Chapter 4 deals with issues relating to definitions, jurisdiction and registration. The revised directive involves new and changed defini- tions of several of the fundamental concepts of the AVMS Directive, including expanding the directive’s area of application to include video-sharing platforms established in . The Inquiry proposes that definitions of the terms ‘video-sharing platform’, ‘video-sharing platform provider’ and ‘user-generated video’ should be added to the Radio and Television Act. The definitions of ‘product placement’ and ‘sponsorship’ are changed to include video-sharing platforms and user- generated videos. The Inquiry has assessed that the changed defini- tions of ‘audiovisual media service’, ‘audiovisual commercial commu- nication’ and ‘programme’ as well as the definition of ‘editorial decision’ do not require any changes to the Radio and Television Act. The revised directive also includes a change in the provision of of a media service provider with activities in multiple Member States, putting more emphasis on the location of programme- related activities. The Inquiry proposes that the Radio and Tele- vision Act should be amended following the wording of the revised directive. The AVMS Directive contains rules of procedure in the event that a wishes to make exceptions from the principle of freedom of reception. This refers to the possibility for a to restrict the right to retransmission within its territory and to make exceptions from the country of origin principle and the proce- dures for such exceptions. The revised directive expands the provi- sions to include on-demand TV and adjusts the procedure. Member States are required to cooperate to ensure that information can be shared with other Member States and Commission. The Inquiry proposes that the Radio and Television Act is amended to include these provisions and give a clear requirement to the and Broadcasting Authority to fulfil the requirements of such cooperation and information sharing. The revised directive introduces a requirement for the Member States to establish and maintain an up-to-date list of the media service providers and video-sharing platform providers under their jurisdic- tion. Those who carry out broadcasting activities in accordance with the Radio and Television Act, for which a licence is not required, and those who provide on-demand TV should apply for registration with the and Broadcasting Authority. The Authority’s register should also include information about those providers who carry out activities for which a licence is required. The Inquiry has assessed that the current Swedish provisions on registration, with the addition that information must also be provided about the way in which the service provider comes under Swedish jurisdiction, meets the directive’s requirements for audiovisual media service providers. The Inquiry proposes that video-sharing platform providers should also be subject to an obligation to register their activities. There is currently no obligation for a service provider to give notice of changes to the information registered. The Inquiry proposes that such an obligation should be introduced. At present those who intentionally or negligently fail to fulfil their registration duties in accordance with the Radio and Television Act will be fined. The Inquiry is of the opinion that the current sanction is ineffective, and that it should be replaced with a possibility to order a provider to fulfill the obligation to register or to give notice of changes. Such an order may be issued by the and Broadcasting Authority with the imposition of a conditional fine. Chapter 5 Prerequisites for co-regulation and self-regulation In Chapter 5 the Inquiry reports on its considerations on the issues of co-regulation and self-regulation. According to the revised direc- tive, Member States shall encourage the use of co-regulation and the fostering of self-regulation. Certain areas are also highlighted as being particularly suitable for co-regulation and self-regulation. The Inquiry has assessed that co-regulation is not possible to use for the implementation of the AVMS Directive in those areas where the Broadcasting Commission has the responsibility to supervise those conditions in accordance with the Fundamental on Freedom of Expression. Within those areas where the supervision of the compli- ance is not limited by such an explicit requirement, the Inquiry is of the opinion that co-regulation is possible if certain fundamental con- ditions are met. The Inquiry proposes that the and Broadcasting Authority should be assigned to participate in the work towards co- regulation within the field of the AVMS Directive if such an assign- ment is not given to another authority. It is noted in the chapter that co-regulation is an untested method within the field of radio and television. However, the Inquiry has identified four areas that are suit- able for co-regulation during an introductory stage. The Inquiry also addresses the issue of self-regulation on the basis of a proposal submitted by Föreningen , and . The proposal involves a system whereby a self-regulative system takes over the responsibility to deter- mine whether the individual’s right to privacy has been respected by the broadcaster in its broadcasting operation. The Inquiry presents three alternatives and assesses that the conditions for such a system can initially be created by deciding not to impose licensing condi- tions regarding the individual’s right to privacy. Chapter 6 Video-sharing platform services The revised directive broadens the AVMS Directive’s area of appli- cation to include video-sharing platform services. These are defined as services that provide the general public with programmes, user- generated videos or both, for the purposes of information, education or entertainment and for which the provider of the video-sharing platform does not have editorial responsibility but can determine how the content is organised. The revised directive requires Member States to ensure that providers of such services take appropriate mea- sures e.g. for the protection of the general public from content that incites violence or hatred. The and Broadcasting Authority has carried out a survey of possible video-sharing platforms within Swedish jurisdic- tion on behalf of the Inquiry. The Authority has identified a few Swedish services that could be covered by the regulations, including communities of interest that allow video-sharing and video-sharing platforms for streaming sport, e.g. football matches. The Inquiry’s proposal for implementation includes provisions on video-sharing platforms and for providers of such services being added to a new chapter of the Radio and Television Act. The provi- sions include appropriate measures for protection of minors from detailed depictions of violence and pornographic images. Video- sharing platform providers should also take appropriate measures to protect the general public from content that is clearly covered by the Swedish Criminal Code’s provisions on illegal threats, inciting rebel- lion, racial hatred and child pornography, and the provision on public provocation in the Act on Criminal Responsibility for Public Provocation, Recruitment and Training concerning Terrorist and other Particularly Serious Crimes (2010:299). In terms of content that breaches the abovementioned provisions in the Swedish Criminal Code, the Inquiry is of the opinion that a video- sharing platform provider may also be responsible in accordance with the Act on Responsibility for Electronic Bulletin Boards (1998:112). The Inquiry also proposes that rules for advertising, sponsorship and product placement that are applicable to video-sharing platform providers should be introduced and that the and Broadcasting Authority should be tasked to determine that service providers have taken the appropriate measures required, and – in consultation with the – with encouraging co-regulation for video-sharing platform providers. Chapter 7 Content that incites violence, hatred or terrorism The 2010 AVMS Directive contains a provision in article 6, in which it is stated that Member States shall ensure by appropriate means that TV broadcasts and on-demand TV under their jurisdiction do not contain any incitement to hatred based on race, sex, religion or nationality. The revised directive expands article 6 in several ways. In addition to incitement of hatred, violence is included. Additional grounds for violence or hatred are introduced through a link to the provision on discrimination in the Charter of Fundamental Rights of Union. Member States shall also ensure by appropriate means that audiovisual media services do not contain any public provocation to commit a terrorist offence. In Chapter 7 the Inquiry analyses the need for legal changes to implement the revised article. The Inquiry also proposes changes to the Radio and Television Act that will contribute towards the effec- tive implementation of article 6. The Inquiry assesses that Swedish legislation meets the require- ments of article 6 by existing penalty regulations in the Fundamental on Freedom of Expression and the Swedish Criminal Code on racial hatred, incitement and illegal threats, and through the demo- cracy provision in the Radio and Television Act combined with the possibility to impose conditions in broadcasting licences to take ac- count of the particular impact of television. However, the Inquiry questions if penal regulation is applicable to satellite broadcasts from third countries where has juris- diction through the use of a satellite uplink in or the use of Swedish satellite capacity but where the service is intended for the public in another EEA state. The Inquiry therefore proposes to add a new provision to the Radio and Television Act covering these specific situations. This provision makes it clear that a provider that is not established in but use a Swedish satellite up-link or Swedish satellite capacity for broadcasts entirely or primarily intended for reception in another EEA state is responsible to ensure that programmes do not contain any incitement to violence or hatred against a group or a member of any of a group on any of the grounds stated in article 21 of the Charter of Fundamental Rights of Union. The broadcaster should also ensure that programmes do not con- tain any public incitement to commit terrorist offences in accord- ance with article 5 of the Directive (EU) 2017/541 of Parliament and of 2017 on combating ter- rorism and replacing Council Framework Decision 2002/475/JHA, and on and amending Council Decision 2005/671/JHA. It is proposed that the Office of the Chancellor of should monitor compliance with the provision on incitement to violence, hatred or terrorism in the abovementioned satellite broadcasts. If a service provider repeatedly broadcasts incitements to violence, hatred or terrorism in contravention of the provision, such breaches shall be punishable with financial sanctions. It should also be possible to impose such sanctions on the satellite operator. Chapter 8 Protection of minors and information requirements The revised directive strengthens protection of minors against harm- ful media content in various ways. Chapter 8 begins with the provisions to restrict minors’ access to harmful content. These provisions previously only applied to un- encrypted TV broadcasts, but have been extended by the revised directive to include encrypted TV broadcasts and on-demand TV. The Inquiry’s assessment is that Swedish law already achieves the higher level of protection.