WORKING TOGETHER TOWARDS A RESPONSIBLE AND VIBRANT
SOCIETY
The Ministry of Information, Communication and the Arts (MITA)
received
the Report of the Censorship Review Committee 2003 (CRC) on 10 Jul
2003 and
the Committee released it publicly on 4 Sep 2003. MITA agrees with
the
philosophy and thrusts of Report, which is progressive and pragmatic.
A gradual approach to cater for greater diversity
2. Surveys published in recent years all show that a vast majority of
Singaporeans were satisfied with the existing levels of censorship.
The
Censorship Survey conducted by this CRC validates this finding, as 70%%
of
respondents are satisfied with current censorship standards. Thus any
change to
our censorship approach should be a gradual, calibrated process that
should not
undermine the mores of our society. We must continue to remain mindful
of the
concerns and values of the majority. The desire to protect the young
from
unsuitable content and to respect racial and religious sensitivities
remains strong.
3. At the same time, we recognise that the effects of globalisation
and
technological advances over the years have created greater diversity
of content
and channels of access. Singaporeans, like people from other
societies, are also
caught up by these trends and developments. Exposure to a wide array
of
content and communication channels has increased expectations for
greater
space and wider access in segments of our society. As we brace
ourselves for
the emerging economy where ideas, creativity and innovation are key
economic
and social imperatives, we must learn to accommodate this diversity
and
aspirations to nurture a more vibrant society.
4. Censorship must reconcile the concerns and values of the different
sections of the population. Whilst preserving the core values of our
society -
racial and religious harmony, the sanctity of the family unit,
maintaining an
environment conducive to the moral and social development of our
children - we
must also allow for greater choice and space. The way forward lies in
maintaining
a balance which enables us to strengthen our society's moral fibre and
social
cohesiveness and at the same time promote dynamism and vibrancy.
Censorship must be a shared responsibility
5. To accommodate greater diversity in our society, the parameters of
our
existing censorship framework will be refined. MITA agrees that for
censorship to
evolve and better serve society, there must be shared responsibility
involving the
regulators, industry players, community and artists. As technological
advances
create new pathways of access which makes it easier to evade
censorship
controls and safeguards, a censorship administration that relies
solely on
enforcement is untenable. A more sustainable approach is to put
greater
emphasis on education which upholds values and shapes social attitudes
and
behaviour. And for industry players, the community and artists to
participate more
actively in content regulation based on a shared perspective of what
our society
finds acceptable.
Greater parental responsibility
6. Respondents of the survey conducted by the CRC generally supported
less censorship for adults and in particular, more censorship for the
young.
Adults can be given more choices, but this means that parents must
take on
greater responsibility for the content their children have access to.
A more
responsible and civic-minded industry and community will also help to
nurture a
more effective censorship environment for all.
More space for creative expression with responsibility
7. More space can be given for creative and artistic expression but
those
who use the space to push the envelope must also be responsible and
accountable. They must be mindful not to offend the sensitivities of
other
members of society or undermine our racial and religious harmony.
Remaking Singapore
8. This is the first time two bodies, the Remaking Singapore
Committee
(RSC) and the CRC, which were convened separately, reviewed various
aspects
of censorship from different perspectives, enabling the government to
canvass a
wider spectrum of opinions on these issues. In the spirit of remaking
Singapore,
MITA agrees, in-principle, with the overall thrust proposed by the RSC
to enlarge
the space for expression, by further fine-tuning the balance that
maintains law
and order and yet not stifle the creativity of our people. However,
any relaxation
of rules must be accompanied by corresponding increases in
accountability on
the part of performing groups as well as higher levels of individual
and communal
responsibility in the wider society.
9. MITA expresses its deepest appreciation to the Chairman and members
of
CRC 2003 for their invaluable contribution in mapping out the next
phase in
Singapore's censorship development. A censorship review is a delicate
exercise
that must balance the divergent demands of society. To solicit a
diversity of
viewpoints across the spectrum, and then forge common ground out of
the
conflicting views, is an especially challenging task.
10. MITA's positions on the recommendations of the 2003 CRC Report
are
contained in the attached ANNEX I and II.
Implementation
11. MITA and the Media Development Authority (MDA) will work out the
implementation details for the accepted recommendations, in
consultation with
the relevant industry players and the public, where necessary. The
changes will
be implemented over a period of time to allow MDA to make the
necessary
adjustments to censorship guidelines and administrative arrangements,
and to
prepare the consumers, the community and industry players.
12. Details of the 2003 CRC Report and MITA's press release can also
be
found on MITA website:
http://www.mita.gov.sg/
Ministry of Information, Communications and the Arts
8 September 2003
Contact Person: Ms Tham Siok Fun
Senior Corporate Communications Officer
MITA
Tel: 6837 9841
ANNEX I
OUR POSITION ON MAJOR CRC RECOMMENDATIONS
Regulation of Content Standards and Access
MITA agrees with the thrust of the CRC Report to allow greater leeway
in
the content standards for adults, while taking into account the
community's
sensitivities and the need not to undermine public order and national
interest. In
accordance with the principle of protecting the young from unsuitable
content,
MITA agrees with the need to continue to have stricter standards for
content
accessible to the young. Standards of violence and coarse language for
content
for young audiences will be tightened. MITA also agrees in-principle
with the
recommendation of the Remaking Singapore Committee (RSC) to extend
the
rating system to more forms of media, to allow the public to make more
informed
choices on the materials they access.
2. The current rating, belting and zoning system will be fine-tuned to
allow
greater access to adults and niche audiences, while ensuring that the
young,
unsolicited audiences and open spaces are appropriately protected.
Implementation Timeframe
3. The CRC has made some 60 recommendations. Some of the more
straightforward ones can be implemented this year, including the
recommendation on sequential dual rating and the exemption of selected
arts
genres from event licensing. Others, such as refining the film
classification and
introducing video classification, require more time as MDA will need
to review its
film classification guidelines. Most of the recommendations can be
implemented
within a year.
Films
4. MITA agrees with the creation of a new age category, Mature18
(M18), in
the new film rating system. M18 will allow cinema-goers of age group
18-21
greater access to some of the better quality films (e.g. well-
produced, strong
story with credible cast, critically-acclaimed or award winning) which
are rated
R(A) under the current rating system. Some of the films which are
rated NC16
currently due to violence will be moved up to the M18 category. NC16
will not be
lowered to NC15 at this stage. This is to protect younger viewers.
5. The new film ratings will therefore comprise: General (G),
Parental
Guidance (PG), No Children Under 16 (NC16), Mature 18 (M18) and
Restricted
21 (R21). MDA will need to re-look the guidelines for PG, NC16 and R21
as
some adjustments are needed with the introduction of M18. The revised
film
guidelines will be drawn up in consultation with the Films
Consultative Panel,
Films Appeal Committee and the film industry.
6. MITA concurs with the CRC that screening of R21 films in cinemas in
HDB
estates should still be disallowed at this stage. While the content
standards for
M18 films will be stricter than R21 films, MDA will regulate the
marketing and
promotion of M18 films in HDB estates to prevent sensationalised
publicity.
Cinema operators are to enforce age restrictions.
7. MITA agrees with the CRC that the fine-tuning of the film rating
system will
reduce the need to edit films.
Videos
8. MITA accepts the recommendation to introduce a full video
classification
system up to an M18 rating. MITA will also allow R21 videos only for
in-house
reference in educational institutions and libraries approved by MDA.
9. As video classification is a new practice, MDA will adopt a phased-
in
approach, introducing video classification after the implementation of
the
changes to film classification. Public feedback on M18 films will be
considered
before implementing the M18 rating for videos. Control measures will
be
introduced for the sale of restricted videos and the display of
promotional
materials, including video shop advertisements in HDB estates.
10. MDA will also carry out public education initiatives to educate
the public on
the new film and video classifications.
11. For R21 videos, MDA will work with key institutions and libraries,
which
cater to students of film and media studies, to allow access to these
restricted
videos, for academic purposes.
Broadcast Media
12. The content standards for Free-to-Air (FTA) TV should continue to
be
stricter than those for other mediums such as film, video and cable
TV, because
of its wider accessibility to the young. While MITA agrees with the
CRC to allow
greater leeway to VOD and cable TV by allowing some adult-theme
programmes
during late-viewing hours, the call for allowing NC15 (or NC16)
programmes for
FTA TV requires further study by MDA.
13. For cable TV, MDA will work out the guidelines for NC16 and M18
programmes, in consultation with the industry and MDA's advisory
committees.
Classification for cable TV will be introduced together with video
classification.
Arts Entertainment
14. Under current content regulation, arts performances are already
given
greater leeway than other mediums in terms of content standards, in
view of their
niche audience. MITA agrees with most of the recommendations and views
of
the CRC and the RSC1 on arts entertainment. To encourage greater
community
participation in the content regulation process, MITA will set up an
appeal
committee for arts entertainment to advise the Minister of
Information,
Communications and the Arts on appeal cases. NAC will henceforth
consider
funding for performance art/forum theatre, subject to vetting of the
synopsis and meeting prevailing funding guidelines,
including the artistic merit of the performance. Currently, there
is no ban on performance art/forum theatre. The requirements for a
performance
licence, including the submission of a synopsis, will still be
necessary, but the
mandatory $10,000 security deposit will be lifted. Nevertheless, the
arts licensing
body will impose the security deposit as and when necessary, just as
for all other
public performances under the Public Entertainments and Meetings Act.
These are: to set up a Public Entertainments and Meetings Act Appeals
Advisory Committee
(for Arts Entertainment), to review the treatment of performance art
and forum theatre, to cease
prior vetting of play scripts, to adopt a green/red lane approach for
Public Entertainment
Licensing (for Arts Entertainment) and to designate performance venues
for relaxing rules.
15. Currently, MDA has exempted certain genres such as Chinese Opera
from the licensing requirement. MDA will study how the exemption list
can be
further expanded to include other categories such as traditional/
ethnic music and
dance. MITA will consider the proposal for a two-year term licence for
arts groups
with a proven track record of responsibility. Others will have to
apply for a licence
as and when a performance is staged, as is the current practice.
16. MITA accepts the CRC's recommendation not to pre-vet content that
is not
considered sensitive and MITA will continue to consider exempting arts
groups
who have consistently demonstrated social responsibility in their
handling of
sensitive issues from script pre-vetting. Guidelines on content
disallowed will still
have to be adhered to by all arts groups and performances. MDA will
work out
the exemption guidelines for script pre-vetting in consultation with
NAC and the
arts groups.
17. In addition to the CRC's recommendation to set up an arts appeal
committee, MDA will also set up an arts advisory committee for greater
public
participation.
Video Games
18. MITA agrees with the recommendation to introduce video games
classification to guide consumers and parents on sensitive content, in
view of
increasing concern internationally over the impact of video games on
the young.
MDA will research further on video games classification and work with
the video
games industry on a suitable classification model, including
guidelines and
consumer advice.
Publications
19. To allow greater access to adults, MITA agrees that some adult-
theme
publications, such as Cosmopolitan, can be allowed through
appropriate
channels. MDA will introduce safeguards to prevent unsolicited access
and
protect younger readers. MDA will also need to review its guidelines
for adulttheme
publications. Exploitative content will still be disallowed.
Internet
20. MDA will continue to take a light-touch approach in Internet
regulation.
Public and parental education will be further strengthened to protect
the young
from unsuitable influence from the Internet. MDA will study the
details of the
CRC's recommendations and work with the industry and the community in
implementing them.
Public Education and Consultation
21. The CRC and RSC call for greater use of consumer advice and
public
education to complement content regulation. Both call on the industry
players to
use consumer advice to alert or advise consumers and parents of
content that
may be sensitive. MITA agrees that the move towards greater public
education
is a step in the right direction for content regulation.
22. There are currently some 300 community members in the various
advisory
and appeal committees supporting MITA in content regulation. MDA will
study
how the community can play a more active role in the content
regulation process
and public education.
ANNEX II
SUMMARY OF CRC RECOMMENDATIONS AND OUR RESPONSES
S/N
CRC Recommendations
Response
Managing Access
1
Films
1.1
Replace current film ratings with Restricted 21 (R21), Mature
18 (M18), No Children Under 15 (NC15), Parental Guidance
(PG) and General (G) and make necessary adjustments to
their content standards. Cinema operators are to enforce age
restrictions according to MDA's licensing conditions.
Agreed for R21, M18,
PG and G. NC16 not
to be lowered to
NC15.
1.2
Allow sequential dual rating for films to provide wider choice
to consumers
Agreed.
1.3
Allow up to M18 films in cinemas in HDB estates but regulate
their marketing to avoid offending residents in HDB estates.
Agreed.
1.4
Continue to disallow R21 films in cinemas in HDB estates
Agreed.
2
Videos
2.1
Introduce a full video classification system similar to that for
film. But the sale of videos should be allowed up to M18 only,
for all video outlets. MDA should, however, regulate the sale
and marketing to prevent abuse.
Agreed.
2.2
Allow R21 videos at education institutions and libraries
approved by MDA for in-house reference.
Agreed.
2.3
MDA to determine the rating of a video title based on its
original content, to avoid multiple ratings of the same title.
Agreed.
3
Advertisements for NC15 and M18 films and videos
3.1
Continue to confine the showing of in-cinema trailers for R21
films to during the screening of R21 films.
Agreed.
3.2
In-cinema trailers of NC15 (or NC16) and M18 films should
correspond to or be of a lower rating to the film during which
they are shown.
Agreed.
3.3
NC15 (or NC 16) and M18 trailers should be allowed on FTA
Requires further
TV if edited to a standard suitable to the general TV viewers.
study.
S/N
CRC Recommendations
Response
4
Broadcast Media
4.1
Provide adults wider choice by progressively allowing NC15
standard programmes on FTA TV after 10 pm and M18
programmes on Cable TV international and premium tiers
after 10 pm and VOD services. These programmes to be
accompanied by appropriate consumer advice.
Agreed for M18
programmes on
Cable TV
international and
premium tiers after
10pm and VOD
services, but
recommendation for
NC16 programmes
on FTA TV after
10pm requires further
study.
4.2
MDA should apply the same content standards for all TV
programmes regardless of whether they are locally produced
or otherwise.
MDA will take into
account impact of
content on local
audience.
5
Arts Entertainment
5.1
Continue to allow greater leeway to arts entertainment in
terms of content standards, due to its niche audience.
Agreed.
5.2
Exempt pre-vetting of script if content of a play is not on race,
religion or does not undermine national stability or core
values.
Agreed. In addition,
MITA will continue to
consider exempting
arts groups who have
demonstrated social
responsibility in their
handling of sensitive
issues from script
pre-vetting. MDA will
work out the
exemption guidelines
for script pre-vetting.
5.3
Replace current event-based licence with a two-year term
licence.
MDA will consider a
two-year term licence
for arts groups with a
proven track record
of responsibility.
5.4
Extend current exemption from licensing to more categories
of innocuous arts entertainment.
Agreed.
5.5
Although not a censorship issue, this CRC supports the call
by arts groups for government agencies to give funding
support to performance art and forum theatre as with other
forms of art entertainment.
Agreed, subject
to NAC's funding
guidelines.
6
Video Games
S/N
CRC Recommendations
Response
6.1
Introduce video games classification based on the
classification system of the Entertainment Software Rating
Board (ESRB) in the US. But, content currently unacceptable
to MDA should continue to be disallowed.
Agreed in-principle.
6.2
MDA should ensure that video games importers implement
the ESRB classification system within two years, preferably
by an association of the game industry. Otherwise, MDA
should find alternative ways to enforce the classification.
Agreed in-principle.
7
Advertisements
7.1
Continue with current policy of imposing stricter content
standards for advertisements in public places and in
mediums that have greater impact on the general audience.
Agreed.
7.2
Assess the suitability of an advertisement on the presentation
of the content and not on the product advertised.
MDA will continue to
assess
advertisements
based on the
product,
presentation, impact,
context and other
factors, in
consultation with
relevant agencies.
7.3
The Advertising Standards Authority of Singapore and MDA
should continue to work together in regulating the content
standards for advertisements.
Agreed.
8
Publications
8.1
A full classification system, as in the case of films and videos,
is not necessary or practical for local and foreign
publications.
Agreed.
8.2
But, allow permissible publications where content may be
sensitive to some, through suitable channels to adult readers.
Agreed. MDA will
work out the
guidelines.
9
Sound recordings
9.1
Continue to allow the industry players to regulate sound
recordings in accordance with MDA's content guidelines. But,
MDA should require them to display consumer advice,
alerting potential buyers of sensitive content especially in
songs.
Agreed.
10
Internet
10.1
Continue with light touch regulation.
Agreed.
10.2
Update the symbolic ban on the 100 websites to include sites
with other harmful content such as paedophilia and child
pornography. This symbolic ban will remain until MDA finds a
viable alternative.
Agreed.
10.3
Internet Content Providers should label their websites using
Agreed.
any reputable international content rating system.
S/N
CRC Recommendations
Response
10.4
Internet Service Providers should develop and subscribe to a
code of conduct and put greater effort in protecting the young
by developing an effective filtering system within a period of
two years. Otherwise MDA should impose other effective
measures.
Agreed.
10.5
MDA should set up a multi-agency task force to study the
inculcation of appropriate Net culture among the young
through public education programmes.
Agreed.
Content Standards
11
Content Disallowed
11.1
Continue to disallow content that undermines public order
and nation's security, denigrates race and religion or erodes
moral values through pornography, deviant sexual practices,
sexual violence, child pornography, bestiality, etc.
Agreed.
11.2
Gradually enlarge common space for discussion of racial and
religious issues through various mediums, as a long-term
approach in fostering racial and religious understanding and
harmony.
Agreed.
11.3
Continue to strike a balance between allowing more space
for creativity and maintaining moral standards.
Agreed.
12
Homosexuality
12.1
Take a more flexible and contextual approach when dealing
with homosexual themes and scenes in content.
Agreed in-principle.
12.2
Allow greater leeway for adults, through suitable channels, to
access such content provided it is not exploitative.
Agreed in-principle.
13
Violence
13.1
Impose stricter standards for content with strong violence or
elements of torture, targeting at the young through higher
ratings, late hour belting, control of sale, and provision of
consumer advice.
Agreed.
14
Sexual Content and Nudity
14.1
Allow greater leeway to non-exploitative sex and nudity
relevant to the context, for content for adults. But, continue to
impose stricter standards for such content in public space.
Agreed in-principle.
14.2
Allow adults access to magazines such as Cosmopolitan and
programmes such as Sex and the City through suitable
distribution channels.
Agreed in-principle.
15
Coarse language
15.1
Impose a stricter standard for coarse language in content,
especially for those for the young.
Agreed.
15.2
Apply the same standard for coarse language in local and
foreign content, which takes into consideration the impact.
Agreed.
16
Chinese Dialects
S/N
CRC Recommendations
Response
16.1
Continue to allow films with limited use of dialects, and full
dialect use on Cable TV, Arts Central on FTA TV, videos,
and some radio news. But, extend this further by allowing
limited screening of full Chinese dialect films at cinemas on a
single film print per title basis.
Agreed in-principle.
Dialect films with
artistic merit will be
considered for
screening without
affecting the Speak
Mandarin Campaign.
17
Contextual Approach
In implementing the content guidelines, MDA and relevant
regulators should take into consideration the artistic merit
and context.
Agreed.
Community Involvement
18
Advisory and Appeal Committee
Continue with the current consultation process with greater
participation from the community. Allow a third of members in
advisory and appeal committees to be nominated by the
public, subject to the Minister's approval on the final member
list.
18.1
In the longer term, appeal committees should be given
greater arbitrating power on appeal cases.
Agreed with greater
community
participation in
advisory and appeal
process. Details
require further study.
18.2
Establish an Appeal Committee for arts entertainment to
advise Minister.
Agreed.
18.3
MDA should explore more platforms to involve industry
player, community and consumer groups, like CASE, in the
consultation process.
Agreed.
19
Timely Reviews
19.1
Continue to convene major comprehensive reviews of
censorship policies and guidelines like the CRC, at shorter
intervals. MDA should also evaluate specific censorship
issues as and when the need arises.
Agreed.
20
Public Education
20.1
MDA should work with industry players to explore ways to
educate consumers on sensitive content to help them make
informed choices.
Agreed.
20.2
MDA should expand its public education programmes to
include setting up a website and a central hotline for
censorship issues.
Agreed.
20.3
MDA should create a multi-agency council to inculcate
community and parental guidance in censorship as a long
term public education strategy.
Agreed.
Industry Responsibility
21
Consumer Advice
21.1
Industry players to make greater use of consumer advice for
sensitive content such as violence, gore, horror, sexual
content and nudity, coarse language, drug consumption,
Agreed.
homosexuality, race and religion, to promote parental
guidance and informed choice.
S/N
CRC Recommendations
Response
21.2
While MDA should provide standard wordings for use in
mandatory consumer advice for films and videos as part of
the rating requirement, industry players should continue to
provide consumer advice for broadcast media and arts
entertainment. For other mediums like publications and
sound recordings, consumer advice should be provided when
the need arises. For video games, consumer advice should
be provided when ESRB classification is introduced.
Agreed.
21.3
MDA should work with industry players for a set of suitable
advisory labels to prevent exploitation of consumer advice for
marketing purposes.
Agreed.
21.4
MDA should enforce compliance to ensure that industry
players issue suitable consumer advice for sensitive content.
Agreed.
21.5
Industry players are encouraged to explore the use of online
consumer advice, in addition to traditional methods of
displaying consumer advice on product packaging,
advertising materials and points of sale.
Agreed.
22
Joint Regulation
22.1
To promote joint regulation with industry players, MDA
should encourage industry players to organise themselves as
credible industry groups and take on a greater role in
regulation, like the Advertising Standards Authority of
Singapore.
Agreed.
22.2
To promote joint regulation with industry players, MDA
should provide broadly-framed content guidelines to industry
players, explain censorship decisions clearly and make them
readily available to industry players.
Agreed.
22.3
To promote greater industry responsibility, film distributors,
not the Board of Film Censors, to take up the role of editing a
film to meet classification guidelines.
Agreed.
22.4
Rename "Board of Film Censors" under MDA as "Board of
Film Classification".
Agreed.
Licensing and Enforcement
23
Licensing
23.1
MDA should continue using the licensing mechanism to
enforce censorship policies and guidelines, with simplified
procedures.
Agreed.
24
Enforcement
24.1
Continue with current policy of focusing enforcement action
on distributors, exhibitors and makers of content.
Agreed.
24.2
MDA should exercise adequate enforcement effort to support
the implementation of the revised censorship policies and
Agreed.
guidelines.
S/N
CRC Recommendations
Response
