ࡱ> g ,bjbjVV hFr<r<($RRRRR$vvvP,<v&.D(lll%%%%%%%$'k*b%R%RRllT%RlRl%%:#,$lp{1v&$ z%%0&0$R+$^+$$+R$%%&+ : A submission regarding the application for a further temporary exemption for free-to-air television captioning under section 55 of the Disability Discrimination Act. January 2012 Submitted by Chris Mikul Project Manager Media Access Australia Email:  HYPERLINK "mailto:chris.mikul@mediaaccess.org.au" chris.mikul@mediaaccess.org.au Background Under the provisions of the Broadcasting Services Act 1992, when Australian networks commenced broadcasting digitally in 2001, they were obliged to caption all news and current affairs programs, and all programs broadcast between 6pm and 10.30pm. The Act made no provision for increases in captioning levels beyond this. Since then, increases in captioning levels on Australian television have been driven by agreements between the commercial free-to-air networks, ABC and SBS, and the deafness organisations Deaf Australia (formerly the Australian Association of the Deaf) and Deafness Forum, brokered by the 鱨վ (AHRC), which resulted in a series of temporary exemptions being granted by the AHRC for captioning under the Disability Discrimination Act. Under these agreements, the networks committed to certain levels of captioning, as well as making other commitments. The most recent exemption was granted in 2008 and expired at the end of December 2011. Under the conditions of this exemption, captioning on the networks primary channels increased to the following levels: 75% of programs broadcast between 6am and midnight captioned for the period ended 31 December 2009. 80% of programs broadcast between 6am and midnight captioned for the period ended 31 December 2010. 85% of programs broadcast between 6am and midnight captioned for the period ended 31 December 2011. The exemption agreement also included a number of other conditions: By 30 June 2009, broadcasters would report to the AHRC on consultations with deafness organisations regarding caption accuracy. By 30 June 2010 broadcasters would report to the AHRC on total captioning achieved. By 31 December 2010 broadcasters would report to the AHRC on consultations with the deafness organisations regarding captioning levels on secondary channels (also called digital multichannels). By 31 December, broadcasters would commence consultations with the deafness organisations regarding possible further increases to captioning levels following the end of the exemption period, and report the results to the AHRC by 30 June 2011. In December 2010, the Federal Government released the final report of its Investigation into access to electronic media for the hearing and vision impaired, commonly known as the Media Access Review. Its recommendations included amending the Broadcasting Services Act to mandate new captioning levels for the free-to-air networks. These proposed new levels follow the trajectory of the annual 5% increases in the last AHRC exemption. 90% of programs broadcast between 6am and midnight captioned for the period ended 31 December 2012. 95% of programs broadcast between 6am and midnight captioned for the period ended 31 December 2013. 100% of programs broadcast between 6am and midnight captioned for the period ended 31 December 2014. The report also recommended proscribing the sections of the Broadcasting Services Act that mandate caption targets, so that broadcasters complying with them would no longer be subject to complaints under the Disability Discrimination Act. Media Access Australia supports this approach. We have always believed that caption levels are best handled via regulation through the communications area, rather than a DDA exemption application process. This approach brings Australia into line with the UK, where television caption levels are determined by Ofcom (The Office of Communications) and the US, where they are determined by the Federal Communications Commission. It was originally expected that the amendments to the BSA would go through parliament in 2011. Our current advice is that they will be enacted in the first quarter of 2012, but this is by no means guaranteed. Free-to-air TVs exemption application The free-to-air broadcasters have applied to the AHRC for a further temporary exemption to cover the period ending 31 December 2012. Should the applicants be successful, they will make a number of commitments, including captioning 90% of program broadcast between 6am and midnight. This means that they are committing to the same caption level for 2012 that will be mandated when the BSA is amended. Other undertakings in the application, including a commitment from the free-to-air commercial broadcasters to caption all P and C (pre-school and childrens) programs, and a commitment from the ABC to caption 1000 hours of these programs annually, continue undertakings made in the previous exemption application. These are areas which will not be covered by the amended BSA. We note that, had the BSA amendments gone through in 2011 as originally expected, this exemption application would not have been necessary. Once the amendments do go through, the exemption, if granted, will become redundant. Caption quality Media Access Australia has concerns about the quality of some captioning on Australian television, and in particular the recent increase in the amount of live captioning (i.e. captions produced by stenocaptioners or captioned using speech recognition technology) on news and other programs. Caption quality was a component of the previous free-to-air exemption in that the broadcasters committed to consulting with deafness organisations including Deaf Australia and Deafness Forum on issues regarding caption accuracy. These consultations took place in the context of regular meetings held at Free TVs offices, which were also attended by Media Access Australia. These meetings have now been superseded by meetings chaired by the Australian Communication and Media Authority (ACMA). Another recommendation of the Media Access Inquiry was that the BSA be amended to incorporate a reference to captions needing to be of adequate quality. The lack of such a statement, and an adequate definition of what constitutes caption quality, has severely hampered the ability of ACMA to deal with complaints from users about caption quality. The ACMA meetings have been attended by representatives from the networks, caption suppliers, deafness organisations and Media Access Australia, and have been developing a caption quality guidelines document which ACMA can refer to when assessing complaints. We believe this is the appropriate approach to addressing caption quality issues, and rejecting the exemption application would not achieve anything in this area. Digital multichannels The low levels of captioning on some of the digital multichannels are a major issue for many Deaf and hearing impaired TV viewers. The situation has arisen because the multichannels were made exempt from the captioning requirements imposed on primary channels in the BSA (only repeat programs which were captioned for their first screening need to be captioned on them). The Government conducted a review of the multichannel rules in 2010, and decided to leave them as they were, although it has stated another review will be conducted before December 2012. Levels of captioning on the multichannels were an issue in the last exemption agreement in that one of the commitments made by the free-to-air networks was that they would consult with the deaf organisations about them. However no specific levels were proposed. Media Access Australia sees the Governments proposed review of the multichannels as the appropriate avenue to deal with the issue of caption levels on the multichannels. The issue should not be a consideration in deciding whether the free-to-air networks exemption application, which pertains only to the primary channels, should be accepted or not. Conclusion and Recommendation Media Access Australia believes that the chief purpose of the temporary exemption application is to lock in the captioning levels for 2012 which have been proposed for inclusion in an amended Broadcasting Services Act. This is basically replicating what was included in the recommendations from the Media Access Review and what is expected to be in the pending legislation (although this has not been released yet). Furthermore, the application is very specifically about the caption quotas and not addressing issues outside of that, including the approach to caption quality which is subject to an ongoing discussion and process. Rejecting this temporary exemption, with no other agreement in place, could mean that caption levels on some channels could fall, or at least not rise above the current 85% target set by the previous, now expired exemption. There is also a possibility that, with the amendments to the BSA not being passed until March or later, the figure of 90% will not be imposed on the broadcasters for the whole of 2012, so the captioning target will actually end up being effectively less than what is proposed by the free-to-air networks in the exemption application. We therefore recommend that the AHRC accepts the application.     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