ࡱ> %` ;bjbj"x"x u@@z %+++,P-P-P-$t-fffPlf8ht- immnno ut~v0222222${hVP-؁oo؁؁VP-P-nn4k2؁P-nP-n0؁0fDP-P-ni ՞cfRD\<@|* P-|:w@zzR|~0:w:w:wVV:w:w:w؁؁؁؁t-t-t-d6cDt-t-t-ct-t-t-P-P-P-P-P-P- Australian Human Rights Commission everyone, everywhere, everyday Access to Electronic Media for the Hearing and Vision Impaired - Approaches for Consideration Discussion Report. 鱨վ Submission to the Department of Broadband, Communications and the Digital Economy 2 February 2010 Table of Contents  TOC \o "1-4" \h \z \u  HYPERLINK \l "_Toc252887412" 1 Introduction  PAGEREF _Toc252887412 \h 3  HYPERLINK \l "_Toc252887413" 2 Summary  PAGEREF _Toc252887413 \h 3  HYPERLINK \l "_Toc252887414" 3 Recommendations  PAGEREF _Toc252887414 \h 4  HYPERLINK \l "_Toc252887415" 4 The policy and regulatory context for access to electronic media  PAGEREF _Toc252887415 \h 6  HYPERLINK \l "_Toc252887416" 4.1 Policy commitments  PAGEREF _Toc252887416 \h 6  HYPERLINK \l "_Toc252887417" 4.2 Regulatory requirements  PAGEREF _Toc252887417 \h 8  HYPERLINK \l "_Toc252887418" (a) Obligations under discrimination law  PAGEREF _Toc252887418 \h 8  HYPERLINK \l "_Toc252887419" (b) Limited systemic change achieved through complaints based system  PAGEREF _Toc252887419 \h 8  HYPERLINK \l "_Toc252887420" (c) Limited systemic change achieved through attaching conditions to temporary exemptions under the DDA  PAGEREF _Toc252887420 \h 9  HYPERLINK \l "_Toc252887421" 4.3 The Australian Governments obligations under the Convention  PAGEREF _Toc252887421 \h 10  HYPERLINK \l "_Toc252887422" (a) Summary  PAGEREF _Toc252887422 \h 10  HYPERLINK \l "_Toc252887423" (b) Article 4 of the Convention General Obligations  PAGEREF _Toc252887423 \h 11  HYPERLINK \l "_Toc252887424" (c) Article 9 of the Convention Accessibility  PAGEREF _Toc252887424 \h 11  HYPERLINK \l "_Toc252887425" (d) Article 21 of the Convention Access to information  PAGEREF _Toc252887425 \h 12  HYPERLINK \l "_Toc252887426" (e) Article 30 of the Convention Participation in cultural life  PAGEREF _Toc252887426 \h 13  HYPERLINK \l "_Toc252887427" 4.4 Enforcement of the Convention  PAGEREF _Toc252887427 \h 14  HYPERLINK \l "_Toc252887428" (a) The meaning of all appropriate measures  PAGEREF _Toc252887428 \h 14  HYPERLINK \l "_Toc252887429" (b) The concept of progressive realization  PAGEREF _Toc252887429 \h 15  HYPERLINK \l "_Toc252887430" (c) The Optional Protocol  PAGEREF _Toc252887430 \h 16  HYPERLINK \l "_Toc252887431" (d) Human rights complaints under the AHRC Act  PAGEREF _Toc252887431 \h 17  HYPERLINK \l "_Toc252887432" (e) Conclusion  PAGEREF _Toc252887432 \h 17  HYPERLINK \l "_Toc252887433" 5 Television broadcasting  PAGEREF _Toc252887433 \h 18  HYPERLINK \l "_Toc252887434" 5.1 Free-to-air broadcasting - captioning  PAGEREF _Toc252887434 \h 18  HYPERLINK \l "_Toc252887435" 5.2 Subscription broadcasting - captioning  PAGEREF _Toc252887435 \h 20  HYPERLINK \l "_Toc252887436" 5.3 Audio description  PAGEREF _Toc252887436 \h 22  HYPERLINK \l "_Toc252887437" 5.4 Digital multi-channels  PAGEREF _Toc252887437 \h 22  HYPERLINK \l "_Toc252887438" 5.5 Quality of captioning and audio description  PAGEREF _Toc252887438 \h 23  HYPERLINK \l "_Toc252887439" 5.6 Community television broadcasting  PAGEREF _Toc252887439 \h 24  HYPERLINK \l "_Toc252887440" 6 DVDs  PAGEREF _Toc252887440 \h 25  HYPERLINK \l "_Toc252887441" 7 Cinema  PAGEREF _Toc252887441 \h 26  HYPERLINK \l "_Toc252887442" 8 Screen Australia  PAGEREF _Toc252887442 \h 28  HYPERLINK \l "_Toc252887443" 9 The Internet  PAGEREF _Toc252887443 \h 29  HYPERLINK \l "_Toc252887444" 10 Advertising content  PAGEREF _Toc252887444 \h 30  HYPERLINK \l "_Toc252887445" 11 Emergency broadcasts  PAGEREF _Toc252887445 \h 30  Introduction The 鱨վ (the Commission) makes this submission to the Department of Broadband, Communications and the Digital Economy on its Access to Electronic Media for the Hearing and Vision Impaired - Approaches for Consideration Discussion Report. Summary The release in April 2008 of the Access to electronic media for the hearing and vision impaired Discussion Paper provided an opportunity to identify the policy and regulatory framework surrounding electronic media access, map out the levels of access provided arising from regulation, industry initiatives and community/industry agreements and compare levels of access with a number of overseas countries. The picture that emerged from that Discussion Paper and the submissions made in response to it was that levels of access varied considerably across media formats and that Australia lags significantly behind the levels of access available to people with a disability in comparable countries. This is true across the full range of established media forms such as television, DVD and cinema and in emerging media formats such as internet downloads. The Commission believes that, while the effect of discrimination law has been notable in some areas of media access, generally speaking discrimination law has not been sufficient in itself to deliver the systemic change envisaged on the introduction of the Disability Discrimination Act 1992 (Cth) (DDA). Similarly, while some parts of the media industry have been pro-active in addressing access issues, in general industry has not developed strategies to fully address its responsibilities. The Commission, therefore, welcomes the release of the current Discussion Report which identifies a number of approaches Government is considering aimed at improving access to electronic media. The Commission sees this as a positive recognition by Government of the need for a more systemic and pro-active approach to addressing the rights of people with a disability to equitable access to electronic media. The Commission also welcomes the commitment to ensuring that the final report to be tabled in Parliament in 2010 is consistent with a number of existing policy and regulatory commitments including the Social Inclusion Agenda; the National Arts and Disability Strategy; the National Disability Strategy and existing legal obligations under the DDA. The Commission also believes that more direct Government engagement in the area of access to electronic media will make a significant contribution to improving access and to fulfilling Governments responsibilities under the UN Convention on the Rights of Persons with Disabilities (the Convention). While supporting many of the proposed approaches in the Discussion Report, the Commission believes there are a number of areas where further action is required to ensure the rights of people with a disability are better addressed. The Commissions submission identifies the Governments obligations under the Convention, including most relevantly to take all appropriate measures to ensure that people with a disability enjoy access to television programs, films, theatre and other cultural activities, in accessible formats. The Commissions submission also identifies a number of alternative approaches that would enable the Government to comply with its obligations under the Convention. Recommendations The 鱨վ makes the following recommendations: Recommendation 1 - Free-to-air broadcasting: The Commission recommends that the Government proceed with the approach being considered to amend the Broadcasting Services Act to include targets and target dates to ensure 100% captioning between the hours of 6 am and 12 midnight on all free-to-air multi-channels, subject to justifiable concessions. Recommendation 2 - Free-to-air broadcasting: The Commission recommends that the proposed Review in 2013 have as one of its actions the development of strategies to achieve 100% captioning throughout the day on all multi-channels, subject to justifiable concessions. Recommendation 3 - Free-to-air broadcasting: The Commission recommends that, subject to appropriate changes to the BSA and further assessment of the consequences, the Government proceed with the approach being considered to have relevant parts of the BSA prescribed under the DDA. Recommendation 4 - Subscription broadcasting: The Commission recommends that the Government proceed with the approach being considered to amend the Broadcasting Services Act to include appropriate targets and target dates for captioning of subscription television broadcasts. Recommendation 5 - Subscription broadcasting: The Commission recommends immediate consideration is given to relevant Departmental and agency participation in discussions currently taking place between ASTRA, Media Access Australia, the Commission and community representatives. Recommendation 6 - Audio description: The Commission recommends that the Government proceed with the approach being considered to undertake a trial of audio description on the ABC as soon as possible. Recommendation 7 - Audio description: The Commission recommends that Government identify when the capacity to broadcast closed audio description will be available and establish a mechanism and timeline for consulting on appropriate targets and target dates for the provision of audio description to coincide with the introduction of that capacity. Recommendation 8 - Quality of captioning and audio description: The Commission recommends that the Government proceed with the approach being considered to facilitate the finalisation of the draft Captioning Quality Guidelines in consultation with broadcasters, the Commission, ACMA, Media Access Australia and community representatives. Recommendation 9 - Quality of captioning and audio description: The Commission recommends that further consideration be given to adopting finalised Captioning Quality Guidelines as a Code of Practice enforceable by ACMA. Recommendation 10 - Quality of captioning and audio description : The Commission recommends that Audio Description Quality Guidelines be developed during the trial of audio description on the ABC and adopted as a Code of Practice enforceable by ACMA when targets are included in the BSA. Recommendation 11 - Community television broadcasting: The Commission recommends that further consideration should be given to identifying actions that might be taken by community broadcasters to improve access now and that the issue be re-visited as part of the proposed 2013 review. Recommendation 12 - DVDs: The Commission recommends that the Government proceed with the approach being considered to proceed immediately to consult with industry, the Commission, community organisations and expert bodies to develop an industry standard requiring distributors of imported and locally made DVDs to include captions and audio description where they are already available. Recommendation 13 - DVDs: The Commission recommends that the Government proceed with the approach being considered to consider a regulatory approach to DVD access if no improvements have occurred by the end of 2012. Recommendation 14 - Cinema: The Commission recommends that changes be made to the Building Code of Australia and the draft DDA Disability (Access to Premises Buildings) Standards to require all new cinemas and cinemas undergoing renovation to provide access. Recommendation 15 - Cinema: The Commission recommends that Government provide further one-off funding to assist independent cinemas to provide access either by meeting the full cost or a percentage of the cost of set up. Recommendation 16 - Cinema: The Commission recommends that Government facilitate negotiations between the major cinema chains and interested parties to develop agreement on a progressive improvement in cinema access. Recommendation 17 - Cinema: The Commission recommends that if agreement on long term strategies cannot be negotiated Government consider mechanisms for regulating improvements in the industry. Recommendation 18 - Screen Australia: The Commission recommends that Government require Screen Australia to extend its funding criteria to require all producers who receive feature film investment funding to put aside budget for audio description for cinema and DVD releases. Recommendation 19 - Screen Australia: The Commission recommends that Government encourage Screen Australia to consider extending its policy to cover documentaries and short films. Recommendation 20 - Internet: The Commission recommends that further consideration be given to means by which Government can facilitate improvements in the area of internet download accessibility. Recommendation 21 Advertising content: The Commission recommends that the Government proceed with the approach being considered to work with the Australian Association of National Advertisers and the community sector to improve captioning of advertising content. Recommendation 22 - Emergency broadcasts: The Commission recommends that the Government proceed with the approach being considered to mandate captioning and audio information of essential information such as contact numbers on all pre-produced emergency announcements. Recommendation 23 - Emergency broadcasts: The Commission recommends that that the Government proceed with the approach being considered to ensure industry has the capability to broadcast accessible emergency information that is not pre-recorded in a timely and effective manner. The policy and regulatory context for access to electronic media There are already a number of policies, regulations, industry agreements and international obligations that can influence the provision of captioning and audio description in the area of electronic media. While some, such as the Disability Discrimination Act 1992 (DDA), have applied for many years, others, such as the National Arts and Disability Strategy, are very recent additions to the regulatory environment. Policy commitments The Australian Governments Social Inclusion Agenda seeks to reduce disadvantage and increase the social, civic and economic participation of the most disadvantaged members of our community including people with a disability. Access to information and participation in cultural and social activities are necessary to achieve a socially inclusive society in which all Australians feel valued and have the opportunity to participate fully in the life of our society. Any action aimed at ensuring equitable access to electronic media is consistent with the Governments Social Inclusion Agenda. The Australian Governments National Disability Strategy (NDS) is an important component of and reflects the Social Inclusion Agenda. The aim of the NDS is to ensure that people with a disability have the opportunity to fully participate in the economic, social and cultural life of the nation. While details of the NDS are yet to be announced the National People with Disabilities and Carer Council has recommended that one of the four strategic priorities of the NDS should be increasing the social, economic and cultural participation of people with a disability, their families and carers. The Councils report on consultations on the NDS, Shut out, clearly captures the need to improve access to electronic media in quoting one of the submissions it received: In this day and age, imagine if a person was told that they could only go to ten cinemas in Australia and to one of three sessions a week because of their gender, cultural background or religious beliefs. But as a deaf person, that is what I face. I am very limited in where I can go and when, to access things that other people take for granted. The Cultural Ministers Council (CMC), a forum including Ministers responsible for culture and the arts in Australia, finalised its National Arts and Disability Strategy in late 2009. The Strategy seeks to address the legislative requirements of Federal, state and territory relevant laws including the DDA, and is guided by the principles of the Convention. It is also seen as forming one part of the whole-of-government approaches to social inclusion currently being developed. One of the underlying principles of the Strategy is that : All Australians have the right to access and participate in high quality and professional arts and cultural activities, regardless of their abilities, age, gender, cultural and linguistic diversity, and geographic location. And one of the four focus areas is: Access and participation: Strategies to address the barriers which prevent people with a disability from accessing and participating in the arts and cultural activities, both as audiences and participants. These policies, individually and collectively, indicate a clear commitment at a policy level to achieving greater access to electronic media. The current investigation provides the Government with an opportunity to develop a range of integrated strategies, including regulation where appropriate, to meet these policy objectives. Regulatory requirements Obligations under discrimination law While the Broadcasting Services Act 1992 (Cth) (BSA) includes requirements in relation to captioning of free-to-air broadcasts during prime time viewing, the primary law relevant to the provision of captioning and audio description in the area of electronic media is discrimination law. Under existing discrimination law at both a state or territory and Commonwealth level it is unlawful to discriminate against people with a disability in a number of relevant areas, including access to goods, services or facilities, and (in the case of the DDA) Commonwealth laws and programs. Recent amendments to the DDA have clarified that there is an obligation on the part of those with responsibilities under the DDA to make reasonable adjustments for a person with a disability in order to ensure equitable access to the goods and services they provide, unless making those adjustments would result in an unjustifiable hardship. Consequently, in order to avoid a finding of unlawful discrimination in particular cases, broadcasters must now make reasonable adjustments, such as captions and audio description unless this would cause unjustifiable hardship. Limited systemic change achieved through complaints based system While the changes to the DDA make explicit the positive duty to make reasonable adjustments, achieving rights under the DDA still relies primarily on individuals making complaints and pursuing their complaints, ultimately to the Federal Court. The result is that the obligation to not discriminate against people with a disability under the DDA does not necessarily require cinemas or TV broadcasters to pro-actively and comprehensively identify and remove existing structural or systemic barriers that may disadvantage people with a disability. When introducing the Disability Discrimination Bill to Parliament on 26 March 1992 the Hon Brian Howe said: The Bill will assist all people with disabilities to exercise their rights as Australian citizens and represents a landmark in achieving human rights for all Australians. People with disabilities are entitled to the same rights and the same opportunities as all other Australian citizens. However, our society currently falls well short of realising this ideal. People are still subjected to discrimination purely on the basis of disability - discrimination which, I am sure all honourable members would agree, is socially damaging, morally unacceptable and a cost to the whole community The Disability Discrimination Bill will be instrumental in continuing social change and will have far-reaching and long-awaited effects for people with disabilities. Mr Howe emphasised the complaint-based nature of the proposed legislation and expected that this would promote gradual structural reforms and attitudinal change. While the conciliation of individual complaints has been instrumental in improving access in some areas this has not led to industry adopting a pro-active approach to compliance as envisaged at the introduction of the DDA. Limited systemic change achieved through attaching conditions to temporary exemptions under the DDA The Commission also has the power to grant temporary exemptions. Section 55 of the DDA deems action in accordance with the provisions of a temporary exemption to not be unlawful under the operative provisions of the DDA. This reduces the risk of successful individual complaints being brought against goods and service providers. The Commission has granted temporary exemptions to both free-to-air and subscription TV broadcasters on condition that the applicants are to achieve identified progressive increases in the amount of captioning over the period of the exemption. The Commission has also assisted in achieving some progress in access in the areas of DVD and cinema through voluntary agreements between parts of those industries and community representatives. While important progress has been made, the Commission does not believe either the temporary exemption power nor sector-specific voluntary agreements are necessarily the most effective or appropriate means of driving systemic change in the long term. The continued use of the temporary exemption power means that progress in the long term is unpredictable and leaves industry unsure of its long-term budgetary commitments and maintains a duplication of sometimes inconsistent regulation. The Australian Governments obligations under the Convention Summary When the Australian Government ratified the Convention on the Rights of Persons with Disabilities (the Convention) in July 2008 it committed itself to undertake to ensure and promote the full realization of all human rights and fundamental freedoms for all persons with disabilities without discrimination of any kind on the basis of disability. The Convention identifies areas where adaptations have to be made so that people with a disability can exercise their human rights and areas where the protection of their rights must be reinforced because those rights have been routinely violated. The Australian Government has several legal obligations under the Convention that are relevant to the accessibility of electronic media. In particular, Article 4 - General obligations; Article 9 Accessibility; Article 21 - Freedom of expression and opinion, and access to information and Article 30 - Participation in cultural life, recreation, leisure and sport. Article 4 of the Convention General Obligations Article 4 of the Convention sets out the general obligations of the Australian Government, including that it undertake to ensure and promote the full realisation of all human rights and fundamental freedoms for all persons with disabilities without discrimination of any kind. Relevantly, Article 4 of the Convention obliges the Government to take all appropriate measures to eliminate discrimination on the basis of disability by any person, organisation or private enterprise. Under Article 4 of the Convention, the Government has also committed to: adopt all appropriate legislative, administrative and other measures for the implementation of the rights recognised in the Convention; take all appropriate measures, including legislation, to modify or abolish existing laws, regulations, customs and practices that constitute discrimination against persons with disabilities; take into account the protection and promotion of the human rights of persons with disabilities in all policies and program; and refrain from engaging in any act or practice that is inconsistent with the Convention and to ensure that public authorities and institutions act in conformity with the Convention. Article 9 of the Convention Accessibility Article 9 of the Convention requires the Australian Government to take appropriate measures to ensure people with a disability have equitable access to information and communications, including information and communications technologies and systems, and to other facilities and services open or provided to the public, both in urban and in rural areas. Article 9 of the Convention specifically requires the Australian Government, amongst other things, to identify and eliminate obstacles and barriers to accessibility in the area of information and other services, including electronic services. Article 9 also obliges the Australian Government to: develop, promulgate and monitor the implementation of minimum standards and guidelines for the accessibility of facilities and services open or provided to the public; ensure that private entities that offer facilities and services which are open or provided to the public take into account all aspects of accessibility for persons with disabilities; promote access for persons with disabilities to new information and communications technologies and systems, including the Internet; and promote the design, development, production and distribution of accessible information and communications technologies and systems at an early stage, so that these technologies and systems become accessible at minimum cost. The Office of the High Commissioner for Human Rights has published a Handbook for Parliamentarians on the Convention. The Handbook explains that: Accessibility (article 9) involves providing equal access to facilities and services in the community for all members of society, including persons with disabilities. It is a guiding principle of the Convention (article 4) and is relevant to all areas of implementation. Although some of the provisions for accessibility in the Convention may be costly to implement in the short term, there are a number of low-cost, low-tech solutions that would have immediate impact. For example, providing access to information can be relatively inexpensive and will improve the lives of persons with disabilities enormously Television is recognized as an essential source of information and a vehicle for accessing cultural and sporting events. Parliamentarians, in cooperation with the media industry, can work to make television accessible to deaf individuals and elderly persons by providing closed-captioning or subtitles. These measures have already been adopted in more than 30 countries around the world. In addition, the Australian Government is specifically required under Article 21 and Article 30 of the Convention to ensure people with a disability receive information and take part in cultural life, on an equal basis with others, respectively. Article 21 of the Convention Access to information First, Article 21 requires the Australian Government to take all appropriate measures to ensure that people with a disability can exercise the right to freedom of expression and opinion. In order to ensure people with a disability can enjoy this right, Article 21 lists the following appropriate measures which the Australian Government is required to take: urging private entities that provide services to the general public, including through the Internet, to provide information and services in accessible and usable formats for people with a disability; encouraging the mass media, including providers of information through the Internet, to make their services accessible to people with a disability; Article 30 of the Convention Participation in cultural life Finally, under Article 30 of the Convention, the Australian Government is required to take all appropriate measures to ensure that people with a disability: enjoy access to cultural materials in accessible formats; enjoy access to television program, films, theatre and other cultural activities, in accessible formats; enjoy access to places for cultural performances or services, such as theatres, museums, cinemas, libraries and tourism services, and, as far as possible, enjoy access to monuments and sites of national cultural importance. Similar human rights obligations arise under Article 15 of the International Covenant on Economic, Social and Cultural Rights (ICESCR) (right to participation in cultural life). The ICESCR Committees General Comment No. 21 on the Right of Everyone to take part in Cultural life specifically recognizes that the right to participation in cultural life, recreation, leisure and sport in Article 15 of the ICESCR includes the right of persons with disabilities to have access to films, tv, etc in accessible formats. The Committee also comments that violations can occur through the direct action of a State Party or of other entities or institutions that are insufficiently regulated by the State Party, including, in particular, the private sector. In the Committees view: all members of civil society have responsibilities under the Covenant - , private organizations and business, - also have responsibilities in relation to the effective implementation of the right of everyone to take part in cultural life. State parties should regulate the responsibility incumbent upon the corporate sector and other non-state actors with regard to the respect for this right. The Committee emphasizes that violations can occur through omissions or failures of a state party to take the necessary measures to comply with its legal obligations under Article 15 of the ICESCR. The Committee states that: violations through omission include the failure to take appropriate steps to achieve the full realization of the right of everyone to take part in cultural life, and the failure to enforce relevant laws or to provide administrative, judicial or other appropriate remedies to enable people to exercise in full the right to take part in cultural life. Enforcement of the Convention Responsibility for compliance with the Convention ultimately rests with the Australian Government which must take all appropriate measures to ensure rights are realised, including by sufficiently regulating the private sector. This part summarises the standard of compliance required by the Convention and the means by which it is enforced domestically and internationally. The meaning of all appropriate measures The Convention does not define what all appropriate measures means. However, the UN Office of the High Commissioner for Human Rights has stated in its Parliamentary Handbook on the Convention that to comply with the requirement to take appropriate measures, State Parties might have to adopt policy and regulatory initiatives, in addition to legislation, setting out the detail of the rules and standards required to ensure equal enjoyment of specific rights by persons with disabilities. Further, the Committees General Comment. No. 9 on the domestic application of the ICESCR explains that: ... all appropriate means is a broad and flexible approach which enables the particularities of the legal and administrative systems of each State, as well as other relevant considerations, to be taken into account. But this flexibility coexists with the obligation upon each State party to use all the means at its disposal to give effect to the rights recognized in the Covenant. In the context of the right to participation in cultural life in Article 15 of the ICESCR, the Committee has stated that all appropriate means must be given its full and natural meaning. Further, State Parties will need to justify why the measures they have taken are the most appropriate means of fulfilling the right. The Committee further notes that while legislation and justifiable remedies are particularly encouraged, other measures which may also be considered appropriate include, but are not limited to, administrative, financial, educational and social measures. The concept of progressive realization Article 4(2) of the Convention states that: with regard to economic, social and cultural rights, each State party undertakes to take measures to the maximum of its available resources and, where needed, within the framework of international cooperation, with a view to achieving progressively the full realization of these rights, without prejudice to those obligations contained in the present Convention that are immediately applicable according to international law. This formula imports the standard of progressive realization to those rights in the Convention recognized as economic, social and cultural rights. The concept of progressive realization gives State Parties (particularly developing countries) flexibility but it does not absolve states of the responsibility to protect economic, social and cultural rights. The fact that realization is required over time (or progressively) should not be misinterpreted as depriving obligations of all meaningful content. The Committee has also stated that progressive realization imposes an obligation to move as expeditiously and effectively as possible towards the full realization of the rights in question. More specifically, in the context of the right to participation in cultural life in Article 15 of the ICESCR, the Committee has commented that notwithstanding recognition of the problems arising from limited resources, States parties still have a specific and continuing obligation to take deliberate and concrete measures aimed at the full implementation of the right of everyone to take part in cultural life. It is also important to note that those rights in the Convention recognized as civil and political rights are not subject to the standard of progressive realization and must be protected immediately. The Convention does not specify which rights within it are designated civil and political or economic, social or cultural rights. However, in the Commissions view, rights in the Convention that expand upon specific rights under the ICCPR will generally be regarded as civil and political rights (for example Article 21) and rights in the Convention that expand upon specific rights under the ICESCR will generally be regarded as economic, social and cultural rights (for example Article 30). The Optional Protocol The Australian Government ratified the Conventions Optional Protocol in July 2009. The Optional Protocol to the Convention on the Rights of Persons with Disabilities introduces two procedures to strengthen the implementation of the Convention: an individual communications procedure and an inquiry procedure. The inquiry procedure allows persons to submit information to the Committee on the Rights of Persons with Disabilities indicating grave or systematic violations of the provisions of the Convention by the Australian Government.  The individual communications procedure permits individuals and groups of individuals to complain to the Committee on the Rights of Persons with Disabilities that the Australian Government has breached one of its obligations under the Convention. The Committees views and recommendations will appear in its public report to the General Assembly. Human rights complaints under the AHRC Act Further, under the 鱨վ Act 1986 (AHRC Act), human rights are now defined to include the rights and freedoms recognised under the Convention. Therefore, it is now possible to make a complaint that an act or practice of the Commonwealth is inconsistent with the rights guaranteed in the Convention under the AHRC Act. Further, s 3(3) of the AHRC Act, defines an act as including a refusal or failure to do an act. Where a human rights complaint cannot be conciliated, the President of the Commission will report acts or practices or failures to act found inconsistent with or contrary to any human right to the Federal Attorney-General. The report may include recommendations for the payment of compensation, or the taking of other remedial action. For example, it would be open to the Commission to consider whether a failure to sufficiently regulate the private sector to ensure it provides access to electronic media on an equal basis with others is inconsistent with Article 30 (the right to participation in cultural life). This is because it is possible for a violation to occur under the Convention through actions of the private sector that are insufficiently regulated by the State Party. Similarly, it would be open to the Commission to consider whether a failure to urge or encourage the private sector to provide broadcast information and services in accessible formats is inconsistent with Article 21 (the right to access information). Conclusion While enacting the DDA is one appropriate measure to implement the Governments obligations under the Convention, relevantly under Articles 4, 21 and 30 of the Convention, the Government is obliged to take all appropriate measures. As stated earlier, the DDA is limited in its effect due to its reliance on individuals to make complaints. Therefore, in the Commissions, view other appropriate measures targeted at achieving progressive and systemic change to realize the rights under the Convention are also required to ensure the Government complies with its Convention obligations and to avoid a finding that it has acted inconsistently with human rights under the AHRC Act. Together these policy and regulatory as well as international legal obligations present a compelling justification for the Government to take stronger action to achieve the goal of equitable access to existing electronic media and assure access to emerging electronic media. Television broadcasting Free-to-air broadcasting - captioning There has been a significant and welcomed increase in the provision of captions on free-to-air television programs over the past seven years. From an average of less than 45% of broadcast hours providing captions on primary channels between the hours of 6am and 12 midnight in 2003, the average broadcast hours providing captions are set to achieve 80% by the end of 2010 and 85% by the end of 2011. Indeed some broadcasters are already achieving more than 85% captioning already. This improvement has been brought about initially as a result of individual complaints under the DDA, but more recently as a result of compliance conditions attached to a series of Temporary Exemptions granted to the free-to-air broadcasters in 2003 and 2008 by this Commission. While the Temporary Exemption mechanism has assisted to achieve improvements in the availability of captioning, the Commission believes it is inappropriate for this mechanism to be used as the main driver of change in the long term. The Commission therefore welcomes the approach being considered by the Government to update the captioning targets within the BSA in order to map out and drive change in this area. This approach recognises the limited capacity of current discrimination law to drive systemic change and acknowledges the leadership role that needs be played by the Government to address responsibilities under the Convention. The Commission believes this offers a number of advantages to all interested parties. Firstly, setting clear targets and target dates provides industry with the opportunity to plan budgetary commitments. Second, setting appropriate targets and target dates reassures people with a disability that progress towards equitable access is being achieved with Government support and without the need for individuals to pursue their existing rights through complaints mechanisms. Third, compliance monitoring can be undertaken by the Australian Communications and Media Authority (ACMA), which is an organisation better suited than the Commission to addressing compliance questions within the TV broadcasting sector. Setting appropriate targets and target dates under the BSA would assist in meeting a number of the Governments own policy priorities including the Social Inclusion Agenda, the National Disability Strategy and the Council of Cultural Ministers National Arts and Disability Strategy. In order to achieve full compliance with the Convention and existing obligations under the DDA, however, captioning targets would need to show a progressive move towards 100% captioning throughout the day for all free-to-air broadcast channels. The move to 100% captioning of free-to-air broadcasts might be achieved in a number of stages. Firstly, BSA requirements could build on the existing DDA Temporary Exemption timetable which requires 85% captioning between 6 am and 12 midnight by the end of 2011 to achieve 100% captioning between 6 am and 12 midnight by the end of 2014 on nominated primary channels. In the short term, depending on the outcome of the current separate consultation on multi-channel captioning, multi-channels might be subject to different, but comparable requirements. Second, Government would need to make it clear that the proposed Review in 2013 will include in its terms of reference the development of strategies for progressing towards 100% captioning throughout the day on all multi-channels. The Commission acknowledges that these targets might be subject to some concessions and exemptions where they could be justified because, for example, of technical issues or the need to deal with unforseen circumstances. The Commission also offers in principle support for the prescription of relevant parts of the BSA under the DDA to address regulatory duplication and uncertainty. The intended effect of prescribing parts of the BSA under the DDA would be that compliance with captioning requirements in the BSA would constitute compliance with the DDA. The Commissions support for such an approach would depend on a number of conditions. Firstly, the date for progressive improvements in captioning between the hours of 6 am and 12 midnight reaching 100% (with justifiable concession) being the end of 2014. Second, that the 2013 review specifically include a requirement that a timetable for a progressive move to 100% captioning throughout the day (with justifiable concessions) be developed. Third, that the instrument developed to prescribe sections of the BSA does not have any unintended consequences, for example, prescribing relevant parts of the BSA must not limit progressive increases in captioning levels during the period 12 midnight to 6 am. Finally that suitable compliance mechanisms be established under the authority of ACMA. Recommendation 1: The Commission recommends that the Government proceed with the approach being considered to amend the Broadcasting Services Act to include targets and target dates to ensure 100% captioning between the hours of 6 am and 12 midnight on all free-to-air multi-channels, subject to justifiable concessions. Recommendation 2: The Commission recommends that the proposed Review in 2013 have as one of its actions the development of strategies to achieve 100% captioning throughout the day on all multi-channels, subject to justifiable concessions. Recommendation 3: The Commission recommends that, subject to appropriate changes to the BSA and further assessment of the consequences, the Government proceed with the approach being considered to have relevant parts of the BSA prescribed under the DDA. Subscription broadcasting - captioning The availability of captions on subscription television is not currently regulated through the BSA. Progress in this area has been driven initially by individual complaints and since 2004 as a result of conditions attached to a Temporary Exemption for subscription TV broadcasters. The Temporary Exemption granted in June 2004 sets out a number of conditions including the number of channels required to provide captions and the required percentage of hours captioning on those channels. Those conditions were met and in many instances exceeded. The Commission commends the industry for its efforts to date. The Temporary Exemption expired in June 2009 and the Commission is currently considering a new application from subscription TV broadcasters for a Temporary Exemption. In light of this it would be inappropriate for the Commission to comment on short-term targets or compliance issues. Comments will focus on possible mechanisms for achieving longer-term improvements. In general the Commission believes that subscription television should be regulated in the same way as free-to-air television in relation to the provision of captions. The suggestion that subscription television is different and should be treated differently to free-to-air television is less persuasive as we move towards digital multi-channelling of free-to-air broadcasters. The Commission understands that captioning requirements for subscription and free-to-air television broadcasters in comparable overseas countries, including Canada and the UK, are addressed through the same regulatory mechanisms. While the Commission accepts there may be good reason for identifying a number of exemptions and concessions, as well as different timetables for compliance to those applied to free-to-air television, essentially the objective must be to work towards full and equitable captioning on all channels. The Commission therefore welcomes the approach being considered by the Government to amend the BSA to require subscription broadcasters to meet specified captioning targets by 2014. Again this approach recognises the limited capacity of current discrimination law to drive systemic change and acknowledges the leadership role that needs be played by Government to address its responsibilities under the Convention. Setting appropriate targets and target dates under the BSA would assist in meeting a number of the Governments own policy priorities including the Social Inclusion Agenda, the National Disability Strategy and the Council of Cultural Ministers National Arts and Disability Strategy. The Commission acknowledges the complexities of determining appropriate captioning targets in the area of subscription television and is currently involved in facilitating discussions between broadcasters and community representatives on this very issue in the context of a Temporary Exemption application likely to cover the period up to the end of 2014. Given that the Government is considering establishing targets for inclusion in the BSA covering the same period, the Commission proposes that the relevant Government Department and agencies, such as ACMA, join those discussions, subject to agreement from the applicants and community representatives. The independent expertise the Department and ACMA could offer would greatly assist the process of unravelling the complexity of the issue and assessing the merit of the differing views of interested parties. This would also ensure regulatory consistency and assist in avoiding unnecessary duplication. Recommendation 4: The Commission recommends that the Government proceed with the approach being considered to amend the Broadcasting Services Act to include appropriate targets and target dates for captioning of subscription television broadcasts. Recommendation 5: The Commission recommends immediate consideration is given to relevant Departmental and agency participation in discussions currently taking place between ASTRA, Media Access Australia, the Commission and community representatives. Audio description As the Discussion Report identifies, the provision of audio described television broadcasts is an established part of the regulatory environment in countries such as the UK. Clearly the provision of some level of audio description is both technically feasible and does not impose onerous financial burden. The Commission understands that there are some technical issues that need to be resolved in order to be able to provide closed audio description in Australia, but that these technical difficulties will be resolved when Australia adopts new standards for digital television based on the MPEG4 or similar specification. When these technical issues are resolved the Commission believes that audio description should be subject to the same regulatory controls as captioning under the BSA for both free-to-air and subscription television. In the meantime the Commission welcomes the proposal to trial audio description on the ABC as soon as possible. The Commission believes that the trial should focus on technical issues associated with broadcasting, the quality of audio description, the capacity of suppliers to deliver audio description and the potential use of audio description files created overseas. During the trial period consultation should be completed on possible targets and target dates for the provision of audio description on both free-to-air and subscription television which should then become part of the BSA. Recommendation 6: The Commission recommends that the Government proceed with the approach being considered to undertake a trial of audio description on the ABC as soon as possible. Recommendation 7: The Commission recommends that Government identify when the capacity to broadcast closed audio description will be available and establish a mechanism and timeline for consulting on appropriate targets and target dates for the provision of audio description to coincide with the introduction of that capacity. Digital multi-channels The Commission has separately responded to the Governments Discussion Paper on captioning requirements on multi-channels during the digital switchover period. The Commission notes that free-to-air broadcasters are currently protected from complaints under the DDA for any channels (including digital simulcasts and SD or HD multi channels) so long as the primary analogue channel achieves certain levels of captioning as set out in the current DDA Temporary Exemption. This means at the moment there are two regulatory requirements affecting captioning on free-to-air channels. Firstly, while the BSA requires some captioning on core channels, the DDA Temporary Exemption includes conditions that require a much higher level of captioning on current primary channels than those required by the BSA. Second, while the DDA Temporary Exemption protects broadcasters from complaints in relation to captioning on digital simulcast programs or multi-channels the current BSA regulations require some captioning on digital simulcast and multi-channels. The granting of the DDA Temporary Exemption in October 2008 in part took into consideration the BSA requirements in this area. In the case of digital simulcast channels, the BSA requires automatic replication of captions shown on the analogue channel during prime time. In the case of multi-channel programs which were previously shown on the analogue channel with captions, there is a requirement that they must be replicated on any multi-channel. While the provision of captions on digital simulcasts and multi-channels is currently driven by the BSA, by the end of 2011 (which will be half way through the roll out of digital TV) protection from complaints under the DDA afforded by the current Temporary Exemption will no longer apply. This means that at the end of 2011, unless the broadcasters successfully apply for a further DDA Temporary Exemption, they could be subject to successful DDA complaints, no matter what regulations or exemptions exist within the BSA. Clearly this duplication of requirements is complex, inconsistent and means that free-to-air broadcasters have no certainty about what they need to do to comply with existing laws. In the long term this duplication needs to be addressed as part of this broader investigation into media access and the Commission has already stated its support for the BSA to be amended to cover digital multi-channels and for the relevant parts of the BSA to be proscribed under the DDA. In the short term, the Commission is considering approaches to multi-channel captioning with interested parties during the switchover period. The Commission stresses the importance of ensuring that any decisions taken in relation to the current transition period need to be taken in the context of the objects of the DDA and the Governments obligations under the Convention to take all appropriate measures to ensure compliance with its requirements. Quality of captioning and audio description As the Discussion Report notes discussions on the development of Captioning Quality Guidelines have been taking place between Free TV Australia and representatives from the Deaf and hearing impaired community. The Commission supports the approach being considered by the Government that it facilitates the finalisation of the draft in consultation with broadcasters, the Commission, ACMA, Media Access Australia and community representatives. The Commission believes that if, as is being considered, targets for captioning on television are included in an updated BSA and prescribed under the DDA it would be appropriate for the guidelines to be adopted as a Code of Practice to be enforced by ACMA. The Commission has stated its support for a trial of audio description on the ABC and the subsequent adoption of targets under the BSA. The Commission proposes that as part of that trial quality guidelines be developed to be adopted as a Code of Practice when targets are adopted within the BSA. Recommendation 8: The Commission recommends that the Government proceed with the approach being considered to facilitate the finalisation of the draft Captioning Quality Guidelines in consultation with broadcasters, the Commission, ACMA, Media Access Australia and community representatives. Recommendation 9: The Commission recommends that further consideration be given to adopting finalised Captioning Quality Guidelines as a Code of Practice enforceable by ACMA. Recommendation 10: The Commission recommends that Audio Description Quality Guidelines be developed during the trial of audio description on the ABC and adopted as a Code of Practice enforceable by ACMA when targets are included in the BSA. Community television broadcasting While recognising the difficulties that community television broadcasters might face in providing access to their services they are nonetheless currently subject to the provisions of the DDA. Complaints of disability discrimination could currently be made against broadcasters to the Commission and in the event the complaint cannot be conciliated, an application could be made to the Federal Court. While the Commission notes that an individual broadcaster might have a defence of unjustifiable hardship under the DDA, to avoid a finding of unlawful discrimination, broadcasters must still make all adjustments to provide equitable access to people with a disability that fall short of imposing an unjustifiable hardship. Further, the onus of proving that a hardship is unjustifiable rests with the broadcasters and should not be assumed without cogent evidence. The Commission therefore believes that further consideration should be given to identifying actions that might be taken by community broadcasters to improve access including, for example, imposing a requirement that any program broadcast on community television previously broadcast elsewhere with access features replicate those features. The Commission also proposes that the issue of access to community television broadcasts be specifically identified as one of the items for consideration in the proposed 2013 review. Recommendation 11: The Commission recommends that further consideration should be given to identifying actions that might be taken by community broadcasters to improve access now and that the issue be re-visited as part of the proposed 2013 review. DVDs As noted in the Discussion Report the Commission facilitated discussions in 2007 between community organisations, Media Access Australia and the Australian Visual Software Distributors Association (AVSDA) which resulted in AVSDA developing its Accessibility Framework for the Home Entertainment Film Industry. While this initiative has resulted in welcomed improvements in the availability of access features on DVDs, it is still the case that there is a gap between the availability of access features on DVDs produced overseas and the availability of those features on imported copies. In addition, while the AVSDA Framework provides its members with encouragement to improve access AVSDA does not represent the whole of the DVD sector. The Commission therefore welcomes the approach being considered by the Government to consult with interested parties to develop a more robust industry-wide standard requiring distributors of imported and locally made DVDs to include captions and audio description where they are already available. The Commission notes, however, that a voluntary industry standard would not protect the DVD industry from potential complaints under the DDA in relation to any particular DVD that did not have access features. The Commission welcomes the proposal to consider further regulatory measures if the availability of accessible DVDs does not improve by the end of 2012. The Commission notes that benchmark data needs to be collected in order to assess whether or not improvements have occurred. Recommendation 12: The Commission recommends that the Government proceed with the approach being considered to proceed immediately to consult with industry, the Commission, community organisations and expert bodies to develop an industry standard requiring distributors of imported and locally made DVDs to include captions and audio description where they are already available. Recommendation 13: The Commission recommends that the Government proceed with the approach being considered to consider a regulatory approach to DVD access if no improvements have occurred by the end of 2012. Cinema The Commission is currently considering an application on behalf of Hoyts Corporation, Greater Union Organisation, Village Cinemas and Reading Cinemas for a DDA Temporary Exemption. In light of this it would be inappropriate for the Commission to comment on short-term targets or compliance issues. Comments will focus on possible mechanisms for achieving longer term improvements. Access to cinemas in the form of captioning and audio description is extremely limited. Currently only 24 cinemas of the more than 490 cinema complexes around Australia provide captioning and only 12 of those provide audio description (4.9% of all cinema complexes provide captioning and 2.4% of all cinema complexes provide captioning and audio description). Of those cinemas that do provide some level of access it is limited to one screen within the cinema complex and only three screenings a week. Twelve of the accessible cinemas are operated by the cinema chains referred to above and 12 are independent operators who have received funds from the Federal Government under a one-off funding program to improve cinema access for older Australians. While individual complaints, voluntary industry agreements and limited government funding have led to the current level of access they have not resulted in systemic change or pro-active compliance with the DDA across the cinema industry. The Commission is concerned that the Government has not put forward any proposals to address the low level of access in the cinema industry other than to review the situation in 2013. Given the current extremely limited level of cinema access in Australia, the Governments proposal to not take any deliberate or concrete measures to either legislate, or take appropriate action to encourage improvements for another three years might be difficult to justify as an appropriate measure under the Convention. This raises the question of whether a human rights complaint could be made under the AHRC Act or a complaint could be taken to the Committee on the Rights of Persons with Disabilities under the Optional Protocol. The failure to put forward any proposals to address the low levels of cinema access is particularly disappointing given one of the expected outcomes of the media access investigation when announced by the then Minister in 2007 was to catch up with overseas performance. In announcing the investigation the Minister stated: ... the first step must be a comprehensive assessment of where we stand against international benchmarks and where we need to lift our efforts. The Commission notes that the Discussion Report highlights Australias poor performance in this area when compared with the United Kingdom and the United States of America. The Commission proposes that there are a number of approaches Government could take to meet its obligations under the Convention to take all appropriate measures to eliminate discrimination on the basis of disability in relation to cinema access. In order to ensure access in the long term industry expansion the Government could ensure that all new cinemas and existing cinemas undergoing refurbishment are required to provide access by making changes to the Building Code of Australia and the DDA Disability (Access to Premises Buildings) Standards soon to be put before Parliament. This would mean that all commercial decisions concerning new or refurbished cinemas would need to take account of this requirement. While this would address access in the long term expansion of the cinema industry it would not address the urgent need to improve access in the existing cinema industry. This could be achieved through a two pronged approach. First, Government could consider an expansion of the one-off funding program to assist independent cinemas to provide access either by meeting the full cost or a percentage of the cost of set up. Secondly Government could take an active role in assisting with negotiations with the major cinema chains to implement a long term program for cinema access expansion. While the Commission must finalise the application before it from the major cinema chains for a Temporary Exemption from the DDA (on condition of access being provided in an additional 23 cinemas) the Commission does not believe the use of this mechanism to drive change is appropriate in the long term. Direct Government participation in negotiations to identify a long term solution would assist interested parties to resolve a number of issues including: the number of cinemas required to provide access to achieve comparability with overseas levels of access; mechanisms to maintain that comparability; the use of alternative and emerging technologies; the number of screenings at accessible cinemas and marketing and promotional strategies. The Commission proposes that if agreement on long-term improvements cannot be negotiated by the proposed review date of 2013 the Government consider mechanisms for regulating improvements in the industry. One such regulatory mechanism could be the development of a Disability Standard under the DDA in the area of cinema access. Recommendation 14: The Commission recommends that changes be made to the Building Code of Australia and the draft DDA Disability (Access to Premises Buildings) Standards to require all new cinemas and cinemas undergoing renovation to provide access. Recommendation 15: The Commission recommends that Government provide further one-off funding to assist independent cinemas to provide access either by meeting the full cost or a percentage of the cost of set up. Recommendation 16: The Commission recommends that Government facilitate negotiations between the major cinema chains and interested parties to develop agreement on a progressive improvement in cinema access. Recommendation 17: The Commission recommends that if agreement on long term strategies cannot be negotiated Government consider mechanisms for regulating improvements in the industry. Screen Australia Screen Australia currently has a policy that requires all Australian feature films it finances to have a budget set aside to provide captioning for cinema and DVD releases. As a Government agency Screen Australia has a direct responsibility to ensure Government funds are expended in a way that ensures compliance with the non-discriminatory obligations of the Convention. In order to meet this obligation the Commission believes that all Australian feature films financed by Screen Australia must also provide for audio description. The Commission also believes that consideration should be given to extending this policy to include documentaries and short films funded by Screen Australia. Recommendation 18: The Commission recommends that Government require Screen Australia to extend its funding criteria to require all producers who receive feature film investment funding to put aside budget for audio description for cinema and DVD releases. Recommendation 19: The Commission recommends that Government encourage Screen Australia to consider extending its policy to cover documentaries and short films. The Internet The Commission notes the summary in the Discussion Report of the initiatives currently taking place within the internet download sector and the concerns expressed by providers about the difficulties associated with providing access on an emerging format. However, the Commission notes the obligation the Government has under article 9 of the Convention to take appropriate measures to: ... promote the design, development, production and distribution of accessible information and communications technologies and systems at an early stage, so that these technologies and systems become accessible at minimum cost and under article 21 of the convention to ensure access to information by: Urging private entities that provide services to the general public, including through the Internet, to provide information and services in accessible and usable formats for persons with disabilities; Encouraging the mass media, including providers of information through the Internet, to make their services accessible to persons with disabilities; The Commission is concerned that simply monitoring industry developments and encouraging partnerships between industry and community will not provide sufficient incentive to address access requirements on this emerging media or fulfil the Governments responsibilities to take all appropriate measures to achieve compliance with the Convention. Recommendation 20: The Commission recommends that further consideration be given to means by which Government can facilitate improvements in the area of internet download accessibility. Advertising content The Commission notes that while there are no regulations specifically requiring television advertising to provide captions and audio description the general discrimination provisions of the DDA apply. The Commission has dealt with a number of complaints in this area. The Commission would support Government action to work with the Australian Association of National Advertisers (AANA) and the community sector to improve the availability of access in advertising content. Recommendation 21: The Commission recommends that the Government proceed with the approach being considered to work with the Australian Association of National Advertisers and the community sector to improve captioning of advertising content. Emergency broadcasts The need for information broadcast on television to be accessible is clearly important to ensure people with a disability have access to information in the event of an emergency. The Convention has specific reference to the responsibility of the Government under article 9 to eliminate obstacles and barriers to accessibility including in the areas of: Information, communications and other services, including electronic services and emergency services The Commission would support Government action to address this responsibility by mandating a requirement for captions and audio information of essential information such as contact numbers on all pre-produced emergency announcements. The Commission would also support Government action aimed at ensuring emergency information that is transmitted and not pre-recorded is also available in accessible formats. The Commission notes that it is this type of information that is most likely to be of vital importance in the event of an emergency as it will provide the most up-to-date information and advice. Recommendation 22: The Commission recommends that the Government proceed with the approach being considered to mandate captioning and audio information of essential information such as contact numbers on all pre-produced emergency announcements. Recommendation 23: The Commission recommends that that the Government proceed with the approach being considered to ensure industry has the capability to broadcast accessible emergency information that is not pre-recorded in a timely and effective manner.  National People with Disabilities and Carer Council Shut out. August 2009  HYPERLINK "http://www.fahcsia.gov.au/sa/disability/pubs/policy/community_consult/Pages/default.aspx" http://www.fahcsia.gov.au/sa/disability/pubs/policy/community_consult/Pages/default.aspx  Council of Cultural Ministers National Arts and Disability Strategy 2009  HYPERLINK "http://www.cmc.gov.au/publications/national_arts_and_disability_strategy" http://www.cmc.gov.au/publications/national_arts_and_disability_strategy  Anti-Discrimination Act 1977 (NSW), s 49M, Equal Opportunity Act 1995 (Vic), ss 4, 6(b), 42; Anti-Discrimination Act 1996 (NT), ss19(j), 38, 41; Discrimination Act 1991 (ACT), s 7(j), 19, 20; Equal Opportunity Act 1984 (SA), ss 76, Equal Opportunity Act 1984 (WA), ss 66A, 66J, 66k; Anti-Discrimination Act 1998 (Tas), ss 16K, 22, 48; Anti-Discrimination Act 1991 (Qld), ss 7(1)(h), 45, 46; and DDA, ss 23, 24 and 29.  DDA, ss 5, 6 and 24. Section 4 of the DDA defines reasonable adjustment as meaning an adjustment made by a person unless making the adjustment would impose an unjustifiable hardship on the person.  See s 11 of the DDA. Note that the burden of proving a hardship would impose an unjustifiable hardship rests with the person claiming unjustifiable hardship.  Explanatory Memorandum, Disability Discrimination And Other Human Rights Legislation Amendment Bill 2008 (Cth), [35], at  HYPERLINK "http://parlinfo.aph.gov.au/parlInfo/download/legislation/ems/r4024_ems_8bc886ee-d639-4080-a1a4-1e6c421c3cf5/upload_pdf/321472.pdf;fileType=application%2Fpdf#search=%22legislation/ems/r4024_ems_8bc886ee-d639-4080-a1a4-1e6c421c3cf5%22" http://parlinfo.aph.gov.au/parlInfo/download/legislation/ems/r4024_ems_8bc886ee-d639-4080-a1a4-1e6c421c3cf5/upload_pdf/321472.pdf;fileType=application%2Fpdf#search=%22legislation/ems/r4024_ems_8bc886ee-d639-4080-a1a4-1e6c421c3cf5%22, (viewed 28 January 2010).  Commonwealth, Second Reading of Disability Discrimination Bill on 26 May 1992 (Hon Brian Howe)  HYPERLINK "http://parlinfo.aph.gov.au/parlInfo/search/display/display.w3p;adv=yes;db=;group=;holdingType=;id=;orderBy=customrank;page=0;query=Bill%20will%20assist%20all%20people%20with%20disabilities%20to%20exercise%20their%20rights%20as%20Australian%20citizens;querytype=;rec=1;resCount=Default" http://parlinfo.aph.gov.au/parlInfo/search/display/display.w3p;adv=yes;db=;group=;holdingType=;id=;orderBy=customrank;page=0;query=Bill%20will%20assist%20all%20people%20with%20disabilities%20to%20exercise%20their%20rights%20as%20Australian%20citizens;querytype=;rec=1;resCount=Default  House of Representatives Standing Committee on Legal and Constitutional Affairs Parliament of Australia, Access all Areas (2009), para 1.8 at  HYPERLINK "http://www.aph.gov.au/house/committee/laca/disabilitystandards/report/chapter1.htm" http://www.aph.gov.au/house/committee/laca/disabilitystandards/report/chapter1.htm (viewed 29 Jan 2009)  DDA, s 55.  See: Exemptions under the Disability Discrimination Act  HYPERLINK "http://humanrights.gov.au/disability_rights/exemptions/exemptions.html" http://humanrights.gov.au/disability_rights/exemptions/exemptions.html .  Article 4(1)  HYPERLINK "http://www.un.org/disabilities/convention/conventionfull.shtml" http://www.un.org/disabilities/convention/conventionfull.shtml  UN Enable, Parliamentarians Handbook, p 5, s0-22. See:  HYPERLINK "http://www.un.org/disabilities/documents/toolaction/ipuhb.pdf" http://www.un.org/disabilities/documents/toolaction/ipuhb.pdf. The Convention complements existing international human rights treaties. It does not create any new rights but rather clarifies States existing obligations and legal duties to respect and ensure the equal enjoyment of all human rights by all persons with disabilities  Article 4(1)(e) of the Convention.  Article 9(1)(b) of the Convention.  Office of the High Commissioner for Human Rights, From Exclusion to Equality Realizing the Rights of Persons with Disabilities. Handbook for Parliamentarians on the Convention on the Rights of Persons with Disabilities and its Optional Protocol (No 14-2007), 79.  Article 21 recognizes that in order to effectively exercise the right to freedom of expression, people with a disability must be able to exercise the freedom to seek, receive and impart information and ideas on an equal basis with others and through all forms of communication of their choice.  International Covenant on Economic, Social and Cultural Rights, opened for signature 16 December 1966, 999UNTS 3 (entered into force 3 January 1976). Australia ratified the ICESCR on 10 December 1976.  Committee on Economic, Social and Cultural Rights, General Comment No. 21 Right of everyone to take part in cultural life (2009), E/C.12/GC/21, [31].  Committee on Economic, Social and Cultural Rights, General Comment No. 21 Right of everyone to take part in cultural life (2009), E/C.12/GC/21, [62].  Committee on Economic, Social and Cultural Rights, General Comment No. 21 Right of everyone to take part in cultural life (2009), E/C.12/GC/21, [73].  Committee on Economic, Social and Cultural Rights, General Comment No. 21 Right of everyone to take part in cultural life (2009), E/C.12/GC/21, [63].  See: Office of the High Commissioner for Human Rights, From Exclusion to Equality Realizing the Rights of Persons with Disabilities. Handbook for Parliamentarians on the Convention on the Rights of Persons with Disabilities and its Optional Protocol (No 14-2007),Ch 5. The Handbook also notes that While parliaments might not be enacting these detailed regulations, it might be appropriate to adopt legislation that allows for standards to be set in these areas and to request that those standards be presented to the legislature for information and/or approval.  Committee on Economic, Social and Cultural Rights, General Comment No. 3 On the nature of States Parties Obligations (1990), HRI/GEN/1/Rev.8, [4].  Committee on Economic, Social and Cultural Rights, General Comment No. 3 On the nature of States Parties Obligations (1990), HRI/GEN/1/Rev.8, [7].  See further, Office of the High Commissioner for Human Rights, From Exclusion to Equality Realizing the Rights of Persons with Disabilities. Handbook for Parliamentarians on the Convention on the Rights of Persons with Disabilities and its Optional Protocol (No 14-2007),Ch 4.  Committee on Economic, Social and Cultural Rights, General Comment No.3 on the nature of States Parties Obligations (1990), HRI/GEN/1/Rev.8, [11].  Committee on Economic, Social and Cultural Rights, General Comment No.3 on the nature of States Parties Obligations (1990), HRI/GEN/1/Rev.8, [11].  See also P, French for Queensland Advocacy Incorporated, Human Rights Indicators for People with Disability A resource for disability activists and policy makers (2007), 15, which states that broadly speaking Articles 10-23 and 29 of the Convention are civil and political rights and Articles 24-28 and 30 of the Convention are economic, social and cultural rights.  Office of the High Commissioner for Human Rights, From Exclusion to Equality Realizing the Rights of Persons with Disabilities. Handbook for Parliamentarians on the Convention on the Rights of Persons with Disabilities and its Optional Protocol (No 14-2007),31.  Office of the High Commissioner for Human Rights, From Exclusion to Equality Realizing the Rights of Persons with Disabilities. Handbook for Parliamentarians on the Convention on the Rights of Persons with Disabilities and its Optional Protocol (No 14-2007), 31.  Office of the High Commissioner for Human Rights, From Exclusion to Equality Realizing the Rights of Persons with Disabilities. Handbook for Parliamentarians on the Convention on the Rights of Persons with Disabilities and its Optional Protocol (No 14-2007), 31.  Office of the High Commissioner for Human Rights, From Exclusion to Equality Realizing the Rights of Persons with Disabilities. Handbook for Parliamentarians on the Convention on the Rights of Persons with Disabilities and its Optional Protocol (No 14-2007), 31.  The Convention is a relevant international instrument under the AHRC Act.  Section 11(1)(f) of the AHRC Act.  Section 29(2)(c) of the AHRC Act.  Committee on Economic, Social and Cultural Rights, General Comment No. 21 Right of everyone to take part in cultural life (2009), E/C.12/GC/21, [63].  See the Commissions notice of temporary exemption granted 2003  HYPERLINK "http://humanrights.gov.au/disability_rights/exemptions/tvcap/dec.htm" http://humanrights.gov.au/disability_rights/exemptions/tvcap/dec.htm (viewed 29 January 2010)  See the Commissions notice of temporary exemption granted 2008  HYPERLINK "http://humanrights.gov.au/disability_rights/exemptions/tvcap/dec082.htm" http://humanrights.gov.au/disability_rights/exemptions/tvcap/dec082.htm (viewed 29 January 2010)  DDA, s 11(2).  Minister for Broadband, Communications and the Digital Economy Media release 12 Sept 2007  HYPERLINK "http://www.minister.dbcde.gov.au/coonan/media/media_releases/ensuring_access_to_electronic_media_for_the_hearing_impaired" http://www.minister.dbcde.gov.au/coonan/media/media_releases/ensuring_access_to_electronic_media_for_the_hearing_impaired (viewed 29 January 2010)  Department of Broadband, Communications and the Digital Economy, Access to Electronic Media for the Hearing and Vision Impaired: Approaches for Consideration Discussion Report, (2009)  DDA , s31     鱨վ Discussion Paper January 2010 Australian Human Rights Commission ABN 47 996 232 602 Level 8 Piccadilly Tower 133 Castlereagh Street Sydney NSW 2001 GPO Box 5218 Sydney NSW 2001 General enquiries Complaints infoline TTY www.humanrights.gov.au 1300 369 711 1300 656 419 1800 620 241 鱨վ Discussion Paper January 2010 %DHIJK< K L M T U g ǻtk`kUMUGAG5hmh2<5CJ^J h$f^J hT+^JhZCJ,^Jhmh2<CJ,^Jhmh2<CJP^Jhmh2<^Jhmh2<CJ4^Jhmh2<6CJ4^J hmh2<5B*CJ$^Jph hmhT+5B*CJ$^Jphh2<5B*CJ$^Jphh]hT+5@CJ( h]hT+6B*CJ^Jph hkhT+h]hT+5@CJ ^J$jh]hT+5@CJ U^J %DEFG .T$IfgdF) .$IfgdF)d.$IfgdF))$&dIfPgdF) NJ$IfgdF)z9;GHIJK< L oYYY>>/$d  &d  Np Pp ]^$dh7$8$H$]^a$kd$$IflCr $ R tm(44 laytF)L M N O P Q R S T U g  q O  I  nO "!g h           ; < ӻܰܧyܰnܧj*hd1DU'jhpThd1D>*B*Uphj0hd1DUjhpTU hpThpT5OJQJh!hpT0J$^J'jhpThd1D>**p!p0$!p0$2<^Jjhmh2<U^J+< = > ? @ O P Q k l m n o p q r s      ŻŰŻާŻńŻާp'jhpThd1D>*B*Uphjhd1DU'jhpThd1D>*B*UphhpTh!hpT0J$j$hd1DUjhpTU hpThpT5OJQJh!hpT0J$^Jjh!hpT0J$U'jhpThd1D>*B*Uph'  - . / I J K L M N O P Q m n o p s t   úúúvkj hd1DUhpT6OJPJQJ^J'jhpThd1D>*B*Uphjhd1DU'jhpThd1D>*B*UphhpTh!hpT0J$jh!hpT0J$Ujhd1DUjhpTU hpTh!hpT0J$^JhpT56OJQJ*        6 7 8 9 < = } ~  ' ( ) C D E F G H I J K g h i j ζΗx'j}hpThd1D>*B*Uphjhd1DU'jhpThd1D>*B*Uphjhd1DU'jhpThd1D>*B*UphhpTh!hpT0J$hpT6OJPJQJ^Jjh!hpT0J$U hpTjhpTU/j m n :;<=@ArstúúÕúvú'jqhpThd1D>*B*Uphjhd1DUhpT6OJPJQJ^J'jwhpThd1D>*B*UphhpTh!hpT0J$jh!hpT0J$Ujhd1DUjhpTU hpThpT56OJQJh!hpT0J$^J*  &'(),-abc}~¾ª¾‹¾jhd1DU'jehpThd1D>*B*Uphjhd1DU'jkhpThd1D>*B*UphhpTh!hpT0J$hpT6OJPJQJ^Jjh!hpT0J$U hpTjhpTUjhd1DU.   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