The Ministry of Justice has published a response to a consultation
paper that sought views on making all obscene images of children illegal
including cartoons and drawings:
1. The formal period of consultation began on
2 April 2007 and ended on 22 June 2007. All responses, including those
received shortly after the closing date, have been considered.
2. Prior to the consultation, the Criminal
Law Sub Group of the Home Secretary’s Task Force on Child Protection
on the Internet had been considering the issues raised by computer
generated images (CGIs), drawings and cartoons, which show graphic
depictions of sexual abuse of children or child-like characters.
3. Meetings have also taken place with a
number of interested parties to further evaluate the proposals. These
groups included the Children’s Charities’ Coalition for Internet
Safety (CHIS), the Child Exploitation & Online Protection Centre (CEOP),
the British Board of Film Classification (BBFC) and the Lucy Faithfull
Foundation.
4. The response to the consultation
illustrated the sensitivity surrounding many of the issues raised. The
creation of a new offence of the possession of cartoons, drawings,
computer generated images and other material which depicts, or appears
to depict, child sexual abuse is a significant step. It is recognised
that these images, unlike those produced in the making of indecent
photographs of children, do not involve harm to real children in their
creation, and the Government has further deliberated on the proposals,
in the light of the comments put forward. However, possession of the
material in question (which would be caught by the Obscene
Publications Act 1959 in respect of their publication) is cause for
increasing concern. Recent technological advances have provided a
challenge to the relevant legislative and physical protections that
existed to obstruct the availability of these types of extreme images.
It is important, in this changing environment, that the law is
responsive and remains fully equipped to protect the public, and, in
particular, the most vulnerable members of society. We continue to
believe that tightening up the law to cover possession of such
material is justified.
5. It was apparent from the responses to the
consultation that many people viewed the ‘definition of what will
constitute ‘pornographic’’ as troublesome and consider ‘pornography’
and ‘pornographic’ as ‘notoriously opaque concepts,’2 further,
pinpointing ‘the age of an unreal representational figure’ was seen as
problematic. They noted that ‘stylisations of animations freely mix
aspects typifying different ages. The inevitably subjective allocation
of an age would make impossible an assessment of legality.’3 In terms
of the proposed new offence, the age of the fictional character would
be a matter for the jury to take a view on.
6. A number of the respondents, including the
IWF, Channel 4 Television Corporation, BBFC and Professor Clare
McGlynn (Durham University), amongst others, asked that further
consideration be given to providing a defence of ‘public good,’
similar to the terms of the Obscene Publications Act. It was
recognised however that the conditions and applicability of
‘legitimate reason’ for possessing the material would need careful
scrutiny, in collaboration with a number of interested parties.
7. The consultation paper stated that ‘it is
not the intention to criminalise the possession of works of art,
historical artefacts or in any way hamper or limit police
investigations or medical research, for example, the legitimate visual
recreations of offences for investigative or risk evaluation purposes,
or the medical care and treatment of adult abusers.’ However, many of
the responses conveyed significant concern that the measures could
have an impact on valid artistic expression and it was suggested
‘there is a danger that the precise proposals as outlined may have
significant unintended consequences, including in relation to works
classified by the BBFC.’4 Concern was expressed towards a potential
breach of individual or personal freedoms and ‘criminalizing the
product of an individual’s imagination’. It was felt that this could
be a potential infringement of an individual’s right under Article 10
of the ECHR to freedom of expression although others pointed out, it
is not an absolute right and as such may be balanced with other rights
and interests. The potential effect of the proposals on historical
artefacts and judicial proceedings was also called into question,
where sketches are used in court cases, for example.
8. Many of the responses also recommended
that the defences for the possession of any material should adequately
cover the legitimate activities of law enforcement, broadcasters and
those involved in the internet industry (e.g. those who develop filter
systems). The new offence will include a defence of ‘legitimate
reason’ and aims to catch a range of material that is deemed
pornographic; the terms of which are outlined later.
9. A number of respondents highlighted issues
surrounding popular internet games and ‘virtual worlds’, such as the
creation of childlike ‘avatars’; these matters have been given further
consideration. It is anticipated that the new offence may catch
possession of material that depicts ‘avatars’ on the basis that it may
meet the requirements and thresholds of the new offence.
10. Many responses cited the lack of specific
research or scientific evidence showing any direct link between the
possession of these images to an increased risk of sexual offending
against children, as problematic. Among the respondents who argued
that it was unjustifiable to make it illegal to possess the material
in the absence of clinical research, there were a number who regularly
viewed the material. In contrast, it was put forward that ‘such
research could not, and should not, be conducted as it would be
unethical and potentially dangerous since it would mean exposing
individuals to potentially harmful material with a risk of harm to
children.’ Secondly, it was argued ‘the establishment of ‘direct
links,’ to the causation of harm, is perhaps misconceived since human
behaviour is not so reducible to only one influence (i.e. images of
child abuse), but is a result of many different factors.’5 Strong
views were also expressed about the possible role of the material in
actual abuse, with many respondents suggesting that the material
served as a legal outlet for potential offenders, whilst others
suggested that the material reinforced inappropriate perceptions of
children, allowing a sense of social acceptance towards actual child
abuse. Since the close of the formal consultation period, we have held
a series of meetings with interested parties on these issues and have
considered the views and experiences outlined in the response to the
formal consultation.
11. A large majority of those in support of
further action to tackle non-photographic images of child sexual abuse
supported the creation of a new, free-standing offence, as proposed in
the consultation. Overall, of the respondents who expressed a
preference, 42 respondents were in favour of further legislation in
general, as opposed to the 21 respondents in favour of doing nothing.
12. Of the 87 responses, however, many failed
to answer the questions posed in the consultation, but rather explored
general problems surrounding the main issues.
The proposed offence
13. The consultation paper outlined the
proposed offence itself, stating that it would have two thresholds.
The first would be an objective test for the jury that the material
was pornographic. In terms of the pornography threshold, the material
should be of such a nature that it must reasonably be assumed to have
been produced solely or principally for the purposes of sexual
arousal. This test is intended to eliminate, for example, works of
art, news and documentary programmes by mainstream broadcasters which
are of public interest and works classified by the BBFC (other than
those classified R18 for sale only in licensed sex shops.)
Content of material
14. The second threshold would be an
objective test for the jury in respect of the content of the image. It
was suggested in the consultation paper that the threshold for fantasy
images should be different from that of ‘indecent’ which is used for
images involving real children.
15. In the case of non-photographic
depictions of the sexual abuse of children, the offence will outline a
number of specific acts in order to provide clarity and precision. To
some extent, this threshold will be based on the scale of seriousness
in the Court of Appeal Sentencing Guidelines (R v Oliver and others
(2003) 2 Cr.App.R(S) 15) and the revised guidance, published by the
Sentencing Guidelines Council.6 The offence should criminalise
nonphotographic visual images depicting the following:
- An image which focuses excessively on a
child’s genitalia
- A person of any age performing an act of
intercourse or oral sex with a child
- An act of masturbation by, of or involving
a child
- Penetration of the vagina, anus or mouth
of a child with a part of the person’s body or with anything else
- Bestiality involving a child
The third element
16. It is not our intention to criminalise
possession of material which it would be lawful to publish in the UK
(material which would not fall foul of the Obscene Publications Act).
To that end we envisage the offence having a third element to it,
namely that the material caught is of an obscene character. It should
be noted that this third element to the offence was not proposed in
the consultation paper, but has been included to ensure that the
offence catches the intended material.
Defences
17. We have considered the concerns expressed
by broadcasters and those in the internet industry to ensure that that
there are adequate defences to cover those who need to have contact
with the material in the course of their legitimate work, those who
stumble across the material accidentally or are sent it unsolicited.
These are likely to mirror the defences provided for the possession of
indecent photographs of children in the Criminal Justice Act 1988 S160
(2): if the defendant can prove he had a legitimate reason for having
the image; or he had not seen it and did not know or suspect it to be
illegal; or it was sent to him unsolicited and he did not keep it for
an unreasonable time.
Penalties
18. In the consultation, it was proposed that
there should be a maximum penalty of three years’ imprisonment, or an
unlimited fine, or both for possession of material depicting
non-photographic visual depictions of child sexual abuse. The offence
will be an either way offence and, on summary conviction, the maximum
penalty will be six months, or a fine up to the statutory maximum
(currently £5,000), or both.
19. A maximum penalty of three years’
imprisonment will place the offence in the sentencing framework below
the offence of possession of indecent photographs of a child (section
160 of the 1988 Act) which has a maximum penalty of five years’
imprisonment or a fine or both.
20. It is expected that prosecutions for the
simple possession of non-photographic depictions of child sexual abuse
would be extremely low, since the police generally find these images
alongside indecent photographs or pseudo-photographs of children. One
of the benefits of the creation of a new possession offence would be
to give the police the power to forfeit these images, which at present
they do not have.
Timing
21. The Government plans to bring forward
legislation to introduce the new offence and a three year penalty, as
soon as the Parliamentary timetable allows.