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Stafford Qld 4053
P: 07 3357 8277 (TTY)
07 3357 8266 (voice)
F: 07 3357 8377
HYPERLINK "mailto:info@deafau.org.au" info@deafau.org.au
HYPERLINK "http://www.deafau.org.au" www.deafau.org.au
16th July 2009
Mr David Mason
Director, Disability Rights Policy
鱨վ
Dear Mr Mason,
Submission in response to the application by ASTRA for a temporary exemption
Deaf Australia Inc. understands that the Australian Subscription Television and Radio Association (ASTRA) has applied to the 鱨վ for an exemption for five years from complaints regarding captioning to ASTRAs members.
Deaf Australia has read the exemption application and finds it is vague and raises many issues and questions that need to be resolved. Deaf Australia submits that an exemption should not be granted at least until these issues and questions are satisfactorily answered.
Issues include:
The phrase reasonable endeavours used in the application is not acceptable with regard to the proposed 10 new channels to be enabled for captioning. There is also no clear timeframe for these new channels to be enabled. Will they be enabled at the beginning of the 5 year period? Will they be enabled progressively over the 5 years? Or will they all be enabled at the end of the 5 year period?
There needs to be much more information about how a quota system based on Share of Viewing (SOV) would work. SOV is defined as the total number of subscribers that viewed captioned programming on the Channel divided by the total numbers of viewers for the Channel. This prompts several questions:
The actual number of viewers for a program can only be known after the fact. While it may be possible to give a reasonable estimate for long-running series, how would the system cope with one-off programs or brief series?
How would the system deal with fluctuations in SOV? What would happen if a new series suddenly became popular on a channel? Would captioning of a less popular show be stopped?
How would this system be reported on? Proper reporting would need to give the SOV of every single program captioned.
ASTRAs application notes that the programming budgets of subscription channels are lower than the free-to-airs, but the captioning costs are the same. That may be true, but it is also true that the subscription channels benefit from their high level of repeat programming, both within a 24-hour period, and across days, weeks and years. Many of the subscription channels enabled for captioning will repeat a captioned program twice or more across 24 hours, but all these repeats are counted towards the caption quota achieved. Once a program has been captioned, there are no further caption costs, so for subscription channels with a high level of repeats, costs will decline over time.
The application notes that much of the content on news and sports programs is live. Captioning of these programs presents no technical difficulties for caption suppliers. With advances in voice recognition technology, programs on the free-to-air channels are increasingly being captioned live (in some cases, even when there would be time to pre-prepare captions). Channel 7 captioned all of their coverage of the Beijing Olympics, going far beyond their quota requirements under the Broadcasting Services Act. In the UK, the five Sky (subscription television) sports channels are currently expected to caption 60% of their programs, and in the last quarter all exceeded this.
The application ignores the fact that many sports programs on the three FOX sports channels which are streamed from England could be streamed with captions (as American sports programs on ESPN are streamed from the US with captions).
ASTRA displays a double standard in regard to sport. It claims that sports programming is a fundamental component of programming, and that anti-siphoning provisions severely restrict the competitive ability of ASTRA members. However, when it comes to the ability of Deaf and hard of hearing people to view sports, sports programming appears not to be important enough to caption.
In Section 3, Excluded Programming, the application says that news and sports channels (with the exception of the two that ASTRA is proposing be enabled) should be excluded from captioning requirements in line with international practice. On what is this claim based? No distinction between sport and news programs, and any other kinds of programs, are made in the legislation covering captioning in the USA or UK.
The application argues that short-form programming (defined as less than 10 minutes) presents particular difficulties for captioning. There is no basis for special exemptions for short-form programming in Australia or any comparable video content market. Advertising is the only short-form programming exempted from captioning in the Broadcasting Services Act.
The application states that long-form programming was found to be more valued by Deaf and hard of hearing people in the 2003 survey, and therefore channels offering short-form programming should have lower minimum captioning targets. Yet the table of the survey results provided shows that News is the second most valued category of captioned program, and the application gives News channels as an example of short-form programming. In any case, even if Deaf and hard of hearing people value long-form programming more than short-form programming, this does not mean they do not wish to watch short-form programming.
The application states that captioning incurs bandwidth costs for subscription channels that the free-to-airs do not have to pay. What are these costs per hour of captioned program?
In Table 3: Captioning rollout targets, it is noted that Where multiple Channels are owned by one Channel Provider, that Channel Provider may pool its obligations and apportion them as it sees fit. This means that caption levels will vary wildly on, say, the various Discovery channels, with some exceeding the quota and others falling short of it. We would suggest that the details of ownership are meaningless to most viewers, who will expect to see at least the minimum caption quotas achieved on each individual channel.
The way that consumers buy FOXTEL/AUSTAR is to sign up for a basic package and then to add other modules. The basic package only offers a small amount of captioning and some modules such as Sport have only one channel captioned (ESPN), whereas others such as the movie channels have significant levels of captioning. How is this proposal going to work in terms of the packages and the way that people actually consume FOXTEL/AUSTAR?
In light of all these issues, Deaf Australia submits that ASTRAs application provides insufficient information and it is difficult for us to form a view on how the proposed conditions will impact captioning and therefore on Deaf and hard of hearing viewers.
We therefore request that AHRC delays a decision on the application and requests further information from ASTRA responding to these issues and questions, with time for the community to respond to this additional information.
Yours sincerely,
Karen Lloyd AM
Executive Officer
Page PAGE 3 of NUMPAGES 3
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