Section 92A: It's Not Over
Sunday, February 22nd, 2009The blackout ends tomorrow, and the new Copyright law comes into effect next Saturday. Section 92A of the amended Copyright Act 1994 will probably remain, and it is what it is: it’s not a violation of rights, nor is it, in itself, a piece of legislation that “presumes guilt until proof of innocence.”
It’s a terrible clause that is both too prescriptive and too vague. It starts to say something but then it doesn’t say enough. I joined the blackout, not because I think the law is wrongheaded: it’s not. I’ve joined because the amended Act is poor legislation and the faults in section 92A should either be hammered out and the law made more specific, or the section should be completely removed. In its current form it’s a mess and it relies on ISPs to clean it up. But if those ISPs don’t get it right, copyright holders could test them in court and ruin them. It’s a court case that ISPs can’t avoid without being very, very careful: they need to keep copyright holders happy.
Rhetoric about innocence until proof of guilt may not be all that relevant. Copyright infringement is usually a civil offence, not a criminal one. It can become criminal if you engage in piracy: making copies and selling them, or setting up an enterprise that sells products based on the creative ideas you don’t hold under copyright. But a private citizen who makes copies for personal use, or downloads a TV show from a torrent will not be tried as a criminal under current law or under any changes in this Act. They are, however, violating terms of use, both those tacitly agreed when (and if) the product was purchased and those applied implicitly by the 1994 Copyright Act. That’s a civil case between a defendant and a plaintiff. At the risk of being didactic, a civil case between a private enterprise and an individual isn’t covered under New Zealand’s 1990 Bill of Rights Act. Our Bill of Rights, which guarantees things like a fair hearing and presumption of innocence, is designed to protect you in the case of a criminal accusation.
If a Copyright holder accused you of a crime such as piracy, now or under this new law, your day in court would be guaranteed and you would get your trial and all the rights that go along with it. The burden of proof is on the Crown and it has to prove beyond a reasonable doubt that you’re guilty of the crime you are accused of.
In a civil case, as in the case of an alleged copyright infringement, things are different. The burden of proof is on the plaintiff but they only have to prove that you are more likely to have infringed than not. You both argue your case before a judge and the judge decides for either the defendant or the plaintiff. If they win, you would normally pay damages, commensurate with the magnitude of the infringement. If you win, you might get court costs and some compensation. For argument’s sake, and as others more eloquent than I have pointed out, something like the court-ordered termination of an internet connection would be very, very unusual.
Despite the standard of proof being much lower, civil cases against copyright infringers have proven hard for copyright holders to win. Not only that, they’re costly, nasty exercises that result in redresses that are way out of step with the actual losses due to infringements because they have to be tackled one at a time and in depth; they cause huge public relation debacles; and they’re not actually achieving what a successful civil case should be achieving: making the result for a citizen so punitive that others will be deterred from following their example. Despite all of these trials and the closure of many P2P networks and Torrent trackers, file-sharing is on the rise.
So where does that leave us with section 92A?
92A Internet service provider must have policy for terminating accounts of repeat infringers
“(1) An Internet service provider must adopt and reasonably implement a policy that provides for termination, in appropriate circumstances, of the account with that Internet service provider of a repeat infringer.
“(2) In subsection (1), repeat infringer means a person who repeatedly infringes the copyright in a work by using 1 or more of the Internet services of the Internet service provider to do a restricted act without the consent of the copyright owner.
On the surface, this intent of this law isn’t actually that bad. It says that an ISP should have a policy that allows for the termination of accounts of repeat infringers, a repeat infringer being a person that repeatedly infringes copyright in “a work”.
This clause seems to say that if you upload a Madonna song to YouTube once, you’re an infringer. It might be saying that if you upload it the same song three or four times, you are a repeat infringer. It’s not clear if you’re a repeat infringer if you infringe the copyright of many different works, and do this repeatedly, with each work being infringed once.
But okay, let’s say you’ve been running a file-sharing application, and your copy of Madonna’s Like a Virgin has been shared with many people. Or you’re using a torrent and you’re uploading to three or four different peers while downloading from three or four others. That probably constitutes repeated infringement in “a work”.
So do you get disconnected if a copyright holder catches you and accuses you? The answer is: it depends. It depends on a document that is being drafted right now: the Telecommunications Carriers’ Forum’s Draft Code of Practice, which is a template document which all of the New Zealand’s ISPs will crib from in order to write their own Code of Practice. It depends on the Code of Practice that your own ISP adopts. It depends on what that document says about how a repeat infringer is identified, and defined, and the level of evidence required for the ISP to accept that a user has repeatedly infringed using the ISP’s service.
The copyright holders and ISPs have tussled over this document like dogs over a bone. The problem is, if the ISP adopts a Code of Practice that is too lenient on users, or too strict on the standard of evidence it requires over infringements, copyright holders will take them to court and they will fight over the words ‘in appropriate circumstances’. ISPs, particularly small ones, will want to avoid that situation at all costs. They have to overcompensate or risk their business.
So what’s in the Code? Here’s what the Draft Code of Practice says about repeated infringement:
To avoid doubt, an Infringer need not Infringe repeatedly with respect to the same category of work under the Act or with respect to the same Copyright Holder, to qualify as a Repeat Infringer.
The Draft Code of Practice is clarifying section 92A (2) and saying that actually, a repeat infringer is someone who repeatedly infringes copyrights in any works, in any categories, from any copyright holders. So you’re a repeat infringer if you share a Madonna song, and a Rihanna song, and an Animal Collective song, and you only share each once. The Draft Code, at the behest of entertainment industry interests, has interpreted the statute in the widest possible way.
The Draft Code of Practice also defines the levels of evidence required for someone to have made an infringement. They are:
11.1 A judgement of a Court (interim or final) finding Infringement under the Act;
11.2 A Copyright Holder Notice which complies with this Code;
11.3 such other evidence as that Party is prepared, in its sole discretion, to accept would be sufficient to satisfy a Court that an Infringement under the Act has taken place.
11.1 says that if a copyright holder took you to court, and won, that’s satisfactory evidence of an infringement. 11.3 says that if the ISP is satisfied that the evidence presented to them would be sufficient to satisfy a court, that’s satisfactory evidence of an infringement. So either you go to court, or the ISP makes the judgement that the evidence is satisfactory on its own merits.
But under 11.2, a copyright holder can issue a Copyright Holder Notice, which contains information about the how a copyright was infringed, the method by which the infringement was detected, the time and date, and so on. The Draft Code of Practice says that this is acceptable evidence of an infringement. The Draft Code also says (in its current form) that a user can issue a Counter-Notice, disputing the allegation of infringement, but this is being debated, and copyright holders have proposed an alternative Counter-Notice procedure that puts the copyright holder themselves in an position where they themselves decide the validity of a Counter-Notice.
With the inclusion of 11.2 and 11.3, we will have to deal with ISPs being in the position of an adjudicator. If the alternative Copyright Holder Notice procedure is taken up, the copyright holders themselves are in the adjudication position. Copyright holders, who would be the plaintiffs in a civil case, get to play judge.
The alternative is that the ISP plays judge, but they and the entertainment industry have intermingled interests. ISPs are also their distributors. They fight over this but on other things they’re business partners. Would you be comfortable being the defendant in a court case if you knew the judge and the plaintiff were business partners? Would you really get the same consideration as you would get in a court or arbitration? I don’t believe you would. Users need the opportunity to state their case before an impartial judge in a proper court of law, (or a Copyright Court, as suggested by the Creative Freedom Foundation): anything else is corruption waiting to happen. They may trust themselves to be impartial, but that’s arrogance and hubris, and just not good enough.
The Draft Code of Practice, assuming all ISPs adopt it unchanged, will be the law in essence. We may lose this fight, and through our government’s inaction, section 92A may come into effect. That’s why it’s hugely important to write a submission to the Telecommunications Carriers’ Forum to let them know that they cannot accept any evidence short of a Court judgement finding infringement, or an agreed impartial body, such as a Copyright Court, finding infringement.
You can find more information at the Telecommunications Carriers’ Forum site. Please make a submission to submissions@tcf.org.nz: they close on Friday the 6th of March, in two weeks. This matters. Beyond that, we will have to vote with our wallets, by choosing the ISPs whose actual Code of Practice offers us the most protection from false allegations of copyright infringement.