ࡱ> g JbjbjVV 8r<r<QAA  " , 888LLL8$TLLVpll(UUUUUUU$WZ0U8U884U.\\\88U\U\\LlOP670N*UV<LV9N\\TOO\8R\UULV\ : Submission to 鱨վ Elena Down Re: APPLICATION FOR EXEMPTION UNDER s 55 DISABILITY DISCRIMINATION ACT 1992 - Captioning by FTA TV 23 January 2012. I am writing in relation to the Application for exemption from the Disability Discrimination Act 1992 (DDA) relating to the broadcasting of television programming by the Seven Network Limited group of companies, the Nine Entertainment Co group of companies, the Network Ten Limited group of companies, Prime Media Group group of companies, the WIN Corporation group of companies, the Southern Cross Australia group of companies, Imparja Television, SBS and the ABC (the Applicants). The Applicants seek an exemption from the DDA until 31 December 2012, subject to a number of conditions set out in their letter to the Commission dated December 2011. I am writing this submission in my personal and private capacity as a deaf woman. I am a lawyer and a public servant. I rely on captions to be able to access television programs on an equal basis with others to watch news, current affairs and cultural and leisure programs. I will be directly affected by the decision. I am also writing more generally as an advocate for others in the Deaf and hearing impaired community who will also be affected by this decision. Background The exemptions granted by the Commission on 13 October 2008 and 12 May 2009 referred to in the Applicants application were granted by the Commission to provide certainty. Under those, the Applicants have been required to implement staged increases in the captioning of programming between 6am to midnight on their primary broadcast channels culminating in an 85% quota to be reached by the end of the exemption on 31 December 2011. The exemptions also included substantial consultation requirements and requirements for regular reporting of captioning levels, quarterly and annually. I understand that the Applicants have achieved targets to date - which is to be welcomed. The Deaf and hearing impaired community are, however, extremely tired of waiting for tiny incremental increases to captioning over such a prolonged and protracted period. We have had enough of stalling and asking for exemptions, reviews and delayed legislation. After 8 years, TV stations should quit stalling and provide higher levels of captioning immediately. It is time to review the entire situation in light of the fact that Australia is now arguably lagging in implementing the full rights provided for in the UN CRPD and require real and meaningful increases in the levels of captioning; and higher levels of good quality accurate captioning. Problems remain with the quality of captioning provided by the Applicants (the quality varies- some perform better than others). The percentage of captioning is of little consequence if the quality is poor. Any exemption must address this issue as well as mere levels of captioning. Relevant legislation and international law When considering the application for exemption the 鱨վ must take into consideration the relevant principles and provisions of the  HYPERLINK "http://www.comlaw.gov.au/Details/C2012C00110" Disability Discrimination Act 1992 (DDA) and the  HYPERLINK "http://www.ohchr.org/EN/HRBodies/CRPD/Pages/ConventionRightsPersonsWithDisabilities.aspx" UN Convention on the Rights of Persons with Disabilities (CRPD), to which Australia is a party. The DDA. The Applicants are required by the DDA to provide non-discriminatory access to their services- ie television broadcast services they provide. Failure to do so is unlawful. (s 24) The only defence is that to provide such a level of access would impose unjustifiable hardship on them (s  HYPERLINK "http://www.comlaw.gov.au/Details/C2012C00110/Html/Text" \l "_Toc314672128" 11). The Applicants have nowhere in their application clearly outlined why it is, or would be, unjustifiable hardship for them to provide captioning to all their services (or a greater proportion of them than they currently caption). I outline below the benefit to the Deaf and hearing impaired community of significantly increased (100%) captioning, and the detriment this group suffer as a result of the Applicants continued failure to provide 100% captioning which is quite clear. Television is an important means by which people- including those who are Deaf or have a hearing impairment, receive news, current affairs, information, education, entertainment, emergency warnings, and simply to participate in leisure and cultural activities. For me it is one of my main access points to news and current affairs required for me to be a well informed professional. Indeed, many people who are Deaf or hearing impaired rely on (captioned) television more than others in the general community, as they cannot easily access radio services. The benefits of fully captioned television programs are access to television on an equal basis with others. There is also emerging evidence that captioned programs increase literacy skills of children, and assist migrant communities learn English. Captioned files provide benefits to the Applicants too - as they can also be used on websites, transcripts and downstream products such as on DVDs. The UN CRPD Applying the principles of the CRPD requires, relevantly, the promotion of: Non-discrimination; Full and effective participation and inclusion in society; Respect for difference and acceptance of persons with disabilities as part of human diversity and humanity; Equality of opportunity; and Accessibility;( HYPERLINK "http://www.ohchr.org/EN/HRBodies/CRPD/Pages/ConventionRightsPersonsWithDisabilities.aspx" \l "3" Art 3). In particular, Article 9 of the UN CRPD (accessibility) requires Australia to take appropriate measures to ensure that people with disabilities can access, on an equal basis with others information and communications, including information and communications technologies and systems, and other facilities and services open or provided to the public, both in urban and in rural areas. ( HYPERLINK "http://www.ohchr.org/EN/HRBodies/CRPD/Pages/ConventionRightsPersonsWithDisabilities.aspx" \l "9" Art 9(1)(a)) This clearly includes taking appropriate measures to ensure that people who are deaf and hearing impaired can access free to air television services on an equal basis with others and thus is directly relevant to the current application. Accessing free to air television on an equal basis with others means that a person with a hearing disability should be able to access the same television programs at the same times as any other person watching television. Currently this is not the case - as free to air captioning is limited to set hours and limited percentages of programming. The measures required to be taken under the CRPD include the identification and elimination of obstacles and barriers to accessibility, including to Information, communications and other services, including electronic services and emergency services ( HYPERLINK "http://www.ohchr.org/EN/HRBodies/CRPD/Pages/ConventionRightsPersonsWithDisabilities.aspx" \l "9" Art 9(1)(b)) The most obvious barrier to accessibility is the lack of captions provided to television programming. The UN CRPD requires these barriers to be eliminated, not just reduced. The Application for exemption The Applicants are committed to building on the significant achievements made to date in terms of television captioning. This is to be welcomed. The real question is- Is it unjustifiable hardship for the Applicants to provide 100 percent captioning now, such that they should be entitled to a temporary exemption? This requires a balancing of the detriment the Applicants might suffer, weighed also against the benefit those affected (ie people who are hearing impaired or Deaf) would gain from having more captioning than what is offered by the Applicants. (s 11 DDA). The Deaf and hearing impaired community have been patiently waiting for four years of tiny incremental changes of 5% per year toward 85% captioning of programs between 6am and midnight (ie this is not 85% of total programming), rather than the 100 percent captioning which would provide the access on an equal basis with others. The Applicants have had enough time to increase captioning on their primary channels based on the timeframes to which they and the deaf community agreed. It is bad enough that the captioning is not 100% already. Given the Applicants demonstrated capacity to increase captioning over time, and their expressed a commitment to meeting increased captioning targets, there does not appear to be any good reason to extend the exemption. Even if the Commission was minded to grant an exemption, the terms on which the Applicants seek an exemption are not acceptable. In particular they imply: Deaf or hearing impaired people are not interested in accessing sports commentary on an equal basis with others That Deaf or hearing impaired children are not entitled to access childrens programs on an equal basis with other children That Deaf or hearing impaired people are not part of the community in relation to accessing community announcements on an equal basis with others That it is acceptable to increase captioning on primary channels only, whilst neglecting the provision of captions to allow equal access viewing of other channels. Additional comments and queries on the Terms of Exemption are contained in mark-up at Attachment 1 to this submission. The terms might arguably be consistent with the regulatory policy expressed in the Media Access Review reports recommendations (which recommendations are not necessarily accepted by the Deaf and hearing impaired community) they are not consistent with the provisions and spirit of the DDA nor the UN CRPD and they certainly do not reflect the views and human rights expectations of the Deaf and hearing impaired community. The effect of the review into digital media access Many of the issues relating to this exemption application have been addressed in detail in submissions to the Department of Broadband and the Digital Economy for its Review of access to Digital Media undertaken in 2010. I attach my own submission to that inquiry for your information. The Governments response to that report in December 2010 was to indicate that The government intends to ensure that meaningful improvements to levels of media access for people with hearing and vision impairment are achievable, while ensuring that actions taken are practical for broadcasters and content producers... and.. The government will introduce legislation in 2011 to: provide regulatory certainty by consolidating captioning requirements [for both free to air and subscription TV] into the Broadcasting Services Act 1992 raise captioning targets to provide a better outcome for people with disability; and introduce requirements for caption quality. The Government has not so introduced legislation. The Applicants state that if legislative amendments to implement these recommendations had been passed, this would have centralised regulation of captioning into the Broadcasting Services Act 1992, with the result that a further temporary exemption application would not be required. The fact remains that if TV stations provided more captioning (ie provided full access required by the Deaf community to exercise their human rights), then no temporary exemption would be required either. It is disingenuous for the Applicants to suggest that the outcomes achieved by the exemption would be the same outcomes as would be achieved for 2012 had the implementing legislation been in place. The Government noted that its proposed legislation was also to contain mandatory requirements for caption quality, on which the Applicants application is rather silent. There are also no guarantees that legislation will be introduced or even passed. In line with current practice, the Attorney-Generals Department would be required to prepare a statement as to whether any such Bill was compliant with the UN CRPD (and if it is not, why not). The AHRC should take extreme care in granting the Applicants an exemption to provide them with certainty to deliver extremely limited increases to captioning without any requirements as to quality, and without any explanation as to why it is unjustifiable hardship for them to provide more captioning- unless it is convinced that the exemption and its terms comply with the UN CRPD. To do so may circumvent the processes put in place to ensure legislation is subject to appropriate scrutiny for compliance with international law including the UN CRPD. What is important to the Deaf and hard of hearing community is that levels of access (and quality of captioning) are not only maintained but are meaningfully increased. The exemption should be denied, or accepted only if captioning increases are much higher, and if it contains adequate safeguards to ensure captioning quality. The time for providing equal access and full recognition of human rights is not 2014, it is now. The Deaf and hearing impaired community, their families,friends and advocates are tired of excuses. Elena Down BA LLB (Hons) ATTACHMENT 1 Notes and queries on Applicants proposal for exemption The Applicants seek an exemption until 31 December 2012 in relation to captioning of free to air television programming on all of the Applicants own television services. The exemption is sought on condition that each of the Applicants implement the following undertakings in relation to its own services: All broadcasters to caption primary channel programs (other than sport) that commence in prime time [Comment: this needs a definition] until their conclusion. [Comment: do the Applicants assume Deaf people dont watch sport? And why only primary channels? What will happen to captioning on other channels - it is discriminatory and unacceptable to limit deaf people to having access to primary channels only] The commercial free-to-air broadcasters to continue to caption all new P and C programs on their primary channels. ABC to continue to caption all new schools programs. ABC to continue to caption new Australian pre-school and childrens programs with an annual target of 50hours. ABC to continue to caption new overseas childrens programs with an annual target of 50 hours. [Comment: must caption any overseas childrens programs] ABC will caption approximately 1000 hours of pre-school and childrens programs broadcast annually. [Comment: why can they not say they will caption 100% of all preschool and childrens programs broadcast?] In addition, in relation to the ABC, the percentages applying to the primary channel will apply to all nationally transmitted programs broadcast on the primary channel. In addition to these nationally transmitted percentage targets the ABC will caption all state and territory news and current affairs programs on the primary channel. Measured at the end of the calendar year of the exemption, the level of captioning on each broadcasters primary channel should average at least: 90% of programmingover the broadcast day (6am to midnight) for the period ending 31December 2012. [Comment: why can this not be 100%- this is still not full access as late night viewing between 12 midnight and 6am is not captioned] Applicants to report on the level of captioning on primary channels (6am to midnight) to the 鱨վ [and ACMA?] at the end of each calendar quarter. First report to be provided for the period ending 31 March 2012 by the end of April 2012. Applicants to report to the [Australian Human Rights] Commission by the end of January 2013 on implementation of this proposal. Programs do not include advertising, sponsorship or promotional material, or community service announcements. [Comment: community service announcements should be captioned. Deaf people are part of the community too] Captioned programs include foreign language subtitled programs. Hours of programs broadcast exclude foreign language programs exempted by clause 38(7) of Schedule 4 of the Broadcasting Services Act 1992. Participation by broadcasters in ongoing discussions facilitated by the ACMA regarding the quality of captions. [Comment: Mere participation in discussions is insufficient- any exemption must include appropriate undertakings with benchmarks to improve the quality of captions by all Applicants in line with the Media Access Review recommendations/ government response. 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