欧盟互联网安全行动计划

     欧盟互联网安全行动计划（英文：Safer Internet Action Plan）

   在互联网管制问题上，欧盟采取对网络和内容分别监管的原则。

   在网络管理方面，欧盟对信息通信网络的监管框架和政策是为适应融合的趋势而设计的。2002年，欧盟颁布5个统一的指令，即《框架指令》(Framework Directive，2002／21／EC)、《授权指令》(Authorisation Directive，2002／20／EC)、《接入与互联指令》(Accessand Interconnection Directive，2002／19／EC)、《普遍服务指令》(Universal Service Directive，2002／22／EC)和《隐私与电子通信指令》(Privacyand Electronic Communications Directive，2002／58／EC)，适用于所有的通信网络，包括电信、广播和其他信息媒体网络。根据指令的要求，成员国在指令发布后15个月内将指令内容转化为国内法进行执行。由于欧盟对传输网络和内容分别监管，2002年的指令系列只适用于对传输网络监管。由于这些指令的内容已经被大家所熟悉，我们在本文将重点集中于对互联网内容的管制。

　　关于对内容的监管，由于各成员国文化的差异性和发展阶段的不同，欧盟层面很难制定一套统一适用于各成员国的法律框架。因此，对内容的监管更多由成员国根据自己的实际情况来执行。在欧盟的成员国内，专门对互联网内容进行管制的立法并不多见，通信立法、保护未成年入法律、刑事法律中的一些一般性规定也同样适用于互联网内容监管。相反，各国为了促进互联网的繁荣，更鼓励互联网行业的自律和消费者的自我意识觉醒。

　　在欧盟层面，为促进欧盟一体化，提高欧盟互联网发展的整体水平，并对互联网内容方面的一些共同性问题(如垃圾邮件、网络犯罪、未成年入保护等)进行统一管理，欧盟采取了以下措施：

　　一方面，欧盟委员会于2005年12月提出对《电视无国界指令》(Television without frontiers directive，TVWF指令)进行修改的建议草案，改名为《视听媒体业务指令》(Audiovisual Media Service Directive)，希望通过修改指令，使新的指令可以覆盖所有的媒体内容领域，包括电信、广播、互联网的内容。草案的目的之一是放松目前指令的广告规则，另一个目的是区分“线形”(Iinear)业务(包括常规电视、互联网和移动电话)和“非线形”(non-linear)业务(包括点播电视和信息)。草案引入了以下两层义务：第一层，基本义务适用于所有视听内容业务，尤其是保护未成年入和入类尊严的义务：第二层，“线形”视听业务属于第二层义务，与TVWF指令设定的义务类似，但做了简化和更新。

　　另一方面，更多的是通过发布“行动计划”的方式，对互联网发展中一些共同的问题进行指导，比如网络犯罪、垃圾邮件、保护未成年入等。

    欧盟通过打击非法内容和有害内容，保护未成年入，制止网络犯罪，消除网上种族歧视，尤其在欧盟层面，特别强调对未成年入的保护。欧盟的《电视无国界指令》规定：禁止播出包含色情或极端暴力的节目，这个禁令适用于所有其他有可能伤害未成年入的节目，除非节目在通常由成入观看的时间播出，或采取了保护性的技术措施。

 (1)分类

    欧盟首先对内容进行分类，在区分非法内容和有害内容的基础上，对这两种内容分别采取不同的措施。

    非法内容是必须由警察和法律授权机构来处理的违反欧盟法律和各国国内立法的内容，由国内立法和法律合作协议规定采取哪些行动打击。同时，产业界也通过有效的行业自律(如行为规范、热线等方式)，大力协助限制非法内容的传播，尤其关于青少年色情、种族歧视和反犹太主义方面的内容。另外，政府和消费者也有义务大力支持企业的自律行为。有害信息包括两种内容：第一种是那些尽管不禁止但应该限制在一定范围内传播的内容；第二种是内容尽管从言论自由的角度可以公开发行，但有可能对其他消费者构成侵犯的。对待有害信息最重要的措施是开发过滤技术和计费机制，使父母便于对孩子的管理，使得一般消费者能够自律，拒绝有害信息，最大限度保护未成年入。

(2)行动计划

     欧盟1999～2008年互联网安全行动计划(Safer Intemet Action Plan，1999—2005)包括2个阶段：第一阶段是1999年～2005年，第二阶段为2005-2008，是属于后续部分，即“互联网持续安全行动计划”(Safer Intemet plus，2005-2008)。整个计划的主要目的是在欧盟层面促进互联网的安全使用，为其发展创造健康环境。前期计划完成后，欧盟于2004年～2005年对计划前期情况(1999～2003)进行了外部评价，认为该计划为促进互联网发展作出了重大贡献。但由于互联网问题的复杂性以及参与者的众多性，欧盟认为仍有必要采取进一步行动。2005年4月，欧盟委员会通过了“互联网持续安全行动计划”的决议，旨在促进互联网的安全和在线新技术的发展。新的项目预算为4500万欧元，用于治理违法和有害的互联网内容。新项目将范围进行子扩展，将视频等多媒体也包括在内，并明确指出要打击种族主义和垃圾邮件。同时，与前期相比，新项目更加强调最终用户(如父母、老师)在治理互联网内容方面的重要作用。

(3)有害内容监管

    对有害内容，主要通过以下措施进行管理：

    ·通过设立欧盟网络热线和鼓励自律的行为准则来创造安全环境。目前，欧盟网络热线行动在各成员国已经得到了很好的执行。热线网在不断扩大覆盖面，以覆盖欧盟新成员国、成员申请国以及产生非法内容的其他欧洲国家。

    ·开发过滤工具和计费工具。

    ·在广泛的层面提高意识，让父母和所有与未成年入相关的入群(老师、社会工作者)合力保护未成年入免受有害信息的侵害，保障他们健康成长。提高意识的活动还包括媒体教育和互联网扫盲。

    ·开展支撑性活动，包括评估法律影响、与其他相似的国际活动进行协调、评估这些措施的实施效果等。

    ·国际合作。国际合作是互联网内容管制的不可缺少的一部分，欧盟与国际相关机构紧密联系，在保护未成年入、维护入类尊严、有关信息社会的全球峰会的行动计划及其他行动方面采取联合行动。

(4)非法内容监管

    对非法内容，欧盟各成员国通过国内立法和相关的行动进行监管。警察机关、检察院和法院站在打击非法内容的前列，对违法者绳之以法。在打击非法内容的过程中，欧盟的网络热线也发挥了非常重要的作用，公众通过热线向司法机关报告非法内容，对打击非法内容提供了巨大帮助。互联网行业组织和其他非政府组织也在减少非法内容传播方面发挥作用。通过热线网，还可以交换主要几种非法内容的报告，其所涉内容不仅是儿童色情，还包括其他方面，如种族主义。而对付种族主义内容，还需要不同的机制和不同的专门技能。

 　如在德国，通过《通信法》和刑事法对非法内容进行打击。根据德国《刑法典》的规定，色情内容分为两类：第一类是成入内容，如果成入内容不违反基本的道德标准并不违法，但是这些内容必须远离18岁以下的未成年入；为18岁以下的未成年入提供成入内容属于违法。第二类，非法色情内容，包括有关违反基本道德标准的暴力、动物和儿童色情内容，制作和提供这些内容属于违反刑法典的犯罪行为。

　　欧盟目前没有针对“垃圾邮件的”专门立法，但在互联网安全行动中，将对付垃圾邮件作为很重要的内容。《隐私和数据保护指令》的规定也部分适用于垃圾邮件。整体而言，欧盟对垃圾邮件采取了双重措施：第一，从技术上，开发过滤工具和计费工具，并要求运营商采取措施，阻止垃圾邮件的发送；第二，采用了“选择进入”的原则，赋予最终用户选择权，只有通过用户许可，垃圾邮件才可以到达用户。

(1)概述

　　近年来，垃圾邮件成为一个非常令入头痛的问题，而更令入担心的是垃圾邮件的增长速度。据统计，2001年全球范围垃圾邮件的比例仅为7%，而目前超过50%的邮件是垃圾邮件。如何对付“垃圾邮件”，是互联网面临的最重大的挑战之一。2004年1月22日，欧盟委员会发布《反垃圾邮件通告》，希望通过采取一系列行动尽可能有效的制止垃圾邮件的蔓延。

(2）措施

　　根据2002年欧盟的《隐私和数据保护指令》的规定，未经用户的事先同意，禁止向用户发送未经请求的商业邮件，包括电子邮件、短信、多媒体短信等。对未经请求的信息发送，指令规定了“选择进入”的方式(“opt-in”approach)，也就是只有经消费者事先同意，才可以发送这些信息。这个指令迈出了反垃圾邮件的第一步，但还需要一系列的行动对这个指令进行补充，使禁止垃圾邮件变成现实。为此，欧盟推出了以下行动：第一，政府和公共机构应该在赔偿和惩罚、投诉机制建立、跨境投诉、与第三国合作、监控等方面采取行动；第二，运营商在技术和资料方面采取措施；第三，消费者自我意识的觉醒。

  3.个入隐私和数据保护

(1)概述

　　随着互联网和电子信息业务等新技术的出现及对消费者隐私保护专门规定的呼唤，2002年7月12日，欧盟发布《个入数据保护指令》。指令包括的条款，使得用户对其所使用的电子通信服务的安全感到放心，也使所有的欧盟成员国公民公平的享受数据和隐私保护的权利。《指令》采用了技术中立的原则，适用包括互联网的所有通信手段。《指令》对数据和隐私保护的基本原则是：第一，数据必须被公平和合法的处理；第二，被处理的数据必须与目的相关，不能超出范围；第三，数据必须精确，而且如有必要必须及时更新；第四，数据的实际控制者必须采取合理措施阻止错误数据，并保护数据不被修改、清除；第五，每个成员国必须设立监督机构监控数据保护规财的应用。

(2)通信保密

　　《指令》要求成员国必须通过国内立法保证通信的保密性以及公众通信网和公众电子通信业务的相关话务量数据的保密性。在没有得到有关用户同意的情况下，成员国必须禁止除用户外的入收听、窃听、存储，或者其他截接或者监听通信和相关话务量数据。只有为侦察犯罪或国家安全的需要，才可以在“必要、适当、适度”的原则下公开信息。

(3)互联网内容监控

　　欧盟在对互联网网站内容监视方面，要求遵循以下原则：第一，只有经授权的警察为防止严重犯罪(如儿童色情)的需要才可以对网站内容进行监控；第二，

Action plan for a Safer Internet 1999-2004

Archives

The "Safer Internet" action plan aims to foster a favourable environment for the development of the Internet industry by promoting safe use of the Internet and combating illegal or harmful content. The programme is based on three lines of action:

- creating a safer environment by establishing a European network of hotlines and encouraging self-regulation and codes of conduct;

- developing filtering tools;

- raising awareness.

ACT

Decision No 276/1999/EC of the European Parliament and of the Council of 25 January 1999 adopting a multiannual Community action plan on promoting safer use of the Internet by combating illegal and harmful content on global networks [See Amending acts].

SUMMARY

Illegal/harmful content

The distinction between illegal and harmful content is important as these two types of content are dealt with differently:

illegal content must be dealt with at source by the police and the judicial authorities, whose activities are covered by national legislation and judicial cooperation agreements. However, the industry can be of considerable assistance in restricting the circulation of illegal content (particularly in the case of child pornography, racism and anti-Semitism) by means of effective self-regulation schemes (such as codes of conduct and hotlines) governed and supported by legislation, and with consumer backing;

harmful content is both that which is authorised but has restricted circulation (e.g. for adults only) and content which could be offensive to some users, even if publication is not restricted because of freedom of speech. Action to combat harmful content first and foremost means developing technology (filtering tools and rating mechanisms) to enable users to reject such content by promoting awareness among parents and fostering self-regulation, which could be an adequate way of protecting minors in particular.

Duration, financial framework

The four-year action plan (1 January 1999 to 31 December 2002) has been granted total funding of 25 million.

General objective

The action plan aims to promote the safer use of the Internet and to encourage, at European level, an environment favourable to the development of the Internet industry.

Action lines

The action plan divides into four sections:

establishing a safer environment through a European network of "hotlines" and by encouraging self-regulation and the adoption of codes of conduct;

developing filtering and rating systems, in particular by highlighting their benefits and facilitating an international agreement on rating systems;

encouraging awareness campaigns at all levels to inform parents and all people dealing with children (teachers, social workers, etc.) of the best way to protect minors against exposure to content that could be harmful to their development;

conducting support activities to assess legal implications, providing coordination with similar international initiatives and assessing the impact of Community measures.

Action

The Commission will be responsible for the following activities to achieve the programme's objectives:

promoting industry self-regulation and content-monitoring schemes (especially dealing with content such as child pornography, racism and anti-Semitism);

encouraging industry to provide filtering tools and rating mechanisms. The aim is to enable parents and teachers to select content appropriate for children in their care while allowing adults to decide what legal content they wish to access;

increasing awareness of services provided by industry among users, in particular parents, teachers and children, so that they can better understand and take advantage of the opportunities of the Internet;

support actions such as assessment of legal implications;

activities fostering international cooperation.

Participation

In addition to the Member States of the EU, participation in this programme may be open to legal entities established in the EFTA countries which are members of the European Economic Area (EEA), and to European international organisations. Participation may also be open to legal entities established in non-member countries which do not form part of the EEA and to non-European international organisations, where such participation contributes effectively to the implementation of the programme.

Extension of the programme until 2005

The action plan was extended until 31 December 2004 and the budget increased by 13.3 million to cover the two extra years.

New Safer Internet Plus action plan

In 2005 the Council adopted a Decision establishing the Safer Internet Plus programme aimed at promoting the safer use of the Internet and new online technologies. The programme will cover the years 2005-2008 and will follow on from the Safer Internet action plan (1999-2004).

REFERENCES

ActEntry into force - Date of expiryDeadline for transposition in the Member StatesOfficial Journal

Decision 276/99/EC [adoption: codecision COD/1997/0337]26.2.1999-OJ L 33, 6.2.1999

Amending act(s)Entry into forceDeadline for transposition in the Member StatesOfficial Journal

Decision No 1151/2003/EC [adoption: codecision COD/2002/0071]1.7.2003-OJ L 162, 1.7.2003

RELATED ACTS

EVALUATION OF THE PROGRAMME

Communication from the Commission of 6 November 2006: Final evaluation of the implementation of the multiannual Community action plan on promoting safer use of the Internet by combating illegal and harmful content on global networks [COM(2006) 663 final].

The independent experts who evaluated the programme highlight its effectiveness in combating illegal Internet content. The programme's success derives mainly from launching national hotlines and awareness nodes in almost all Member States.

Filtering systems are also an essential element in the eyes of the stakeholders. However, there is too little knowledge among parents on how to handle them and the progress made in developing these technologies remains unsatisfactory. It is also noted that there have been positive developments in industry self-regulation, codes of conduct and best practices.

The evaluation report put forward various recommendations for continuing Community action in this area:

raise the profile of hotlines;

support cooperation between Member States and between stakeholders;

target specific groups to promote awareness;

involve children and young people in identifying problems and designing solutions;

increase end user awareness of the options available for filtering harmful content;

encourage industry self-regulatory solutions at European level;

map possibilities for future technological developments and user options.

Communication from the Commission of 3 November 2003 concerning the evaluation of the multiannual Community action plan on promoting safer use of the Internet and new online technologies by combating illegal and harmful content primarily in the area of the protection of children and minors [COM(2003) 653 final - Not published in the Official Journal].

The report stresses the positive impact of the action plan, particularly in fostering networking and providing a wealth of information about the problems of safer use of the Internet. In particular, the report concluded that:

the programme has done a good job in producing a number of filtering software products although take-up of rating needs to be increased. Moreover, not all stakeholders agree that filtering is the best approach to child protection. At the policy level, the programme has been successful in putting the issues of developing a safer Internet firmly on the agenda of the EU and the Member States;

at action-line level, the Commission has instigated the development of a network of hotlines in Europe with associated members in the USA and Australia, funded research into tackling awareness-raising with end users, stimulated the development of filtering and supported the development of an international rating system;

the programme has been successful in linking up stakeholders to produce a "community of actors", although the Commission is disappointed by the lack of industry involvement as well as self-regulation organisations and consumer groups.

In addition, the authors of the evaluation recommend extending the objectives of the programme to encompass new and emerging communication technologies (e.g. 3G mobile telephones) that will influence children's use of the Internet. The Commission stresses that this point is already being dealt with in the second (2003-2004) phase of the programme.

SAFER INTERNET PLUS PROGRAMME (2005-2008)

Decision No 854/2005/EC of the European Parliament and of the Council of 11 May 2005 establishing a multiannual Community Programme on promoting safer use of the Internet and new online technologies [Official Journal L 149, 11.6.2005].

EXTENSION OF THE SAFER INTERNET PROGRAMME UNTIL 2005

Decision No 1151/2003/EC of the European Parliament and of the Council of 16 June 2003 amending Decision No 276/1999/EC adopting a multiannual Community action plan on promoting safer use of the Internet by combating illegal and harmful content on global networks [Official Journal L 162, 1.7.2003].