Draft Design Right, Artist’s Resale Right and Copyright (Amendment) Regulations 2023
Draft Intellectual Property (Exhaustion of Rights) (Amendment) Regulations 2023
(5 months, 3 weeks ago)
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The Minister of State, Department for Science, Innovation and Technology (Andrew Griffith)
I beg to move,
That the Committee has considered the draft Design Right, Artist’s Resale Right and Copyright (Amendment) Regulations 2023.
The Chair
With this it will be convenient to consider the draft Intellectual Property (Exhaustion of Rights) (Amendment) Regulations 2023.
Andrew Griffith
Good morning, Mrs Cummins; it is a pleasure to serve once again under your chairmanship.
Intellectual property underpins our economy: it is the means by which businesses and individuals can commercialise their ideas, turning them into products and artistic impressions. IP drives innovation and investment, which, as set out in the Government’s innovation strategy, is vital to tackling the world’s largest challenges. Industries with an above average use of intellectual property contribute almost a quarter of UK output, 16% of UK employment and over half of goods exports. IP is crucial to support the Government’s long-term vision to cement the UK as a science and technology superpower and a global leader in innovation. Maintaining the current system is crucial to supporting innovation across the economy.
The draft regulations before the Committee use powers contained in the Retained EU Law (Revocation and Reform) Act 2023, or REUL, to amend or restate certain provisions in IP legislation. They make modest and targeted changes to the benefit of our IP framework in line with the aims of that Act. I will take each set of draft regulations in turn.
Subject to the Committee’s approval, the Design Right, Artist’s Resale Right and Copyright (Amendment) Regulations 2023 will amend provisions in four pieces of IP legislation, and I will explain more about these. The Design Right (Semiconductor Topographies) Regulations 1989 provide protection for designs that are semiconductor topographies, implementing international obligations under the World Trade Organisation TRIPS—trade-related aspects of intellectual property rights—agreement. Semiconductor topography design right is an IP right intended to protect the design of specific semiconductor products—for example, printed circuit boards—which can be relatively easy to copy.
In the UK, the law treats the protection of topographies of semiconductor products as a form of unregistered design right and extends protection to persons from certain qualifying countries. WTO members that are not EU member states are included as qualifying countries by being listed in the schedule to the regulations. The proposed amendment does not alter the design right but is simply intended to remove the need for further legislation to update the schedule when new countries join the WTO, to save parliamentary time.
The Artist’s Resale Right Regulations 2006 provide the basis for an artist’s resale right in the UK. ARR is a form of IP protection related to copyright. It gives creators of visual art, such as paintings or sculptures, an unwaivable statutory right to receive a royalty when their works are resold in the secondary market. The proposed amendments directly replace references to euros in ARR royalty calculations with pounds sterling and are intended to reduce regulatory burdens and costs for UK businesses. A transitional provision has been included so that this change will apply from 1 April 2024, which will allow industry time to prepare and adapt to the changes, in line with advice from the collective management organisations that administer ARR payment schedules.
The Copyright Tribunal Rules 2010 set out the rules of procedure for the copyright tribunal, which adjudicates on various commercial copyright licensing disputes, particularly concerning the terms of licensing schemes for copyright material. The amendments proposed by this instrument will mean a respondent or intervener in a copyright tribunal case will be required to provide an address for service in the UK rather than one located in the European economic area.
Lastly, the Collective Management of Copyright (EU Directive) Regulations 2016 set minimum standards for the governance, transparency and behaviour of collective management organisations established in the UK. CMOs operate as companies and are therefore subject to domestic company law. The amendments proposed by this instrument will reduce the regulatory burden on those CMOs, which qualifies small companies by exempting them from the requirement to audit the accounting information provided in annual transparency reports. The regulations also redefine other exemptions so that they apply to CMOs that qualify as a micro entity under the Companies Act 2006. That will include the removal of references to euros.
I now turn briefly to the draft Intellectual Property (Exhaustion of Rights) (Amendment) Regulations 2023. It is important to maintain a balanced, consistent and stable IP framework. An essential mechanism that provides this balance in our IP system is called the exhaustion of IP rights. Put simply, IP rights enable their owners to control the first sale of their creation, but our exhaustion of IP rights regime ensures that, once a good is lawfully placed on the market, the rights holder can no longer use their IP rights to control the subsequent distribution or resale of that good.
For example, after someone purchases a book, the copyright owner cannot stop them from selling that book to another person in the same territory. A functioning exhaustion regime is therefore crucial for commerce in our modern economy. The mechanism also underpins the rules on parallel imports, which are the importation of genuine IP-protected physical goods that have already been put on the market in other countries—medicines, for example.
After we left the European Union exhaustion of IP rights regime, the Government created a bespoke, unique, regional exhaustion regime. Under that regime, once a good is lawfully placed on the market in the UK or the European economic area, the relevant IP rights in that good are considered exhausted. The regime was created to provide certainty for businesses and consumers while the Government consulted on what the UK’s future exhaustion regime should be.
Our current exhaustion regime relies on retained EU law, which will no longer exist from 31 December 2023; without replacing that, our exhaustion regime would not operate effectively from the end of this year. That could create uncertainty about the operability of rules for IP-protected goods, which may impact on supply chains and create a chilling effect on commerce and investment in the UK. Our position is that Parliament must act now to ensure that the UK does have a functioning exhaustion regime from the end of this year onwards. These regulations achieve that purpose. Subject to the Committee’s approval, the regulations restate certain retained EU law to ensure the continued operation of that regime, but without making substantial changes to the policy area. That also achieves the aim of the rule by making our exhaustion laws more befitting for the UK statute book and only restate retained EU law that is necessary for the continued operation of the regime.
In terms of the impact of these regulations, consumers and businesses should not see any significant changes to trading practice, because in substance they ensure a continuation of the current regime that has been in place since 2021.
Nigel Mills (Amber Valley) (Con)
Can the Minister tell us how this applies to electronic sales? If I buy a book on a Kindle, it is always very hard for me to pass on to somebody else. Is that a right I do or should have under these regulations?
Secondly, is this regional principle now the Government’s policy? Does the Minister think a Europe-wide territory for exhaustion is the right answer, or are we going to look at this in our trade deals and try to expand that region to, say, the whole of the comprehensive and progressive agreement for trans-Pacific travel partnership as well?
Andrew Griffith
I will address the first, technical point in my winding up. I was about to come to the fact that the Government have consulted but have not listened to industry’s views about what a go-forward exhaustion regime post our departure from the European Union looks like. The regulations that the Committee is asked to approve today effectively maintain a continuation, to provide that certainty. The Government will respond to that consultation, in due course, to directly address the question asked by my hon. Friend the Member for Amber Valley. As part of that, there will be consideration of the relative merits of extending that territory to include new territories such as the CPTPP.
I hope that hon. Members on both sides will reflect on the fact that this is a complex area; it is very much determined by an interlocking web of international rules and treaties, and I think that it is right that the House should proceed cautiously, given the importance of IP protection to the UK’s economy. My hon. Friend makes an important point, and I hope that we can move forward on that, in collaboration with industry and on a cross-party basis, to provide the opportunities that are there for the UK.
In conclusion, this set of regulations seeks to use powers contained in the Retained EU Law (Revocation and Reform) Act 2023 to introduce only targeted changes, at this stage. Those changes will ensure that rights holders, businesses and consumers can continue to have certainty and confidence in the UK’s IP framework.
Matt Rodda (Reading East) (Lab)
Thank you, Mrs Cummins; it is a pleasure to serve under your chairship. I thank the Minister for his speech, and other Members for their contributions.
As we have heard, the first instrument modifies four distinct laws associated with intellectual property through the authority granted in the Retained EU Law (Revocation and Reform) Act 2023. The objective of the instrument is to implement various technical adjustments to align the UK’s IP framework with the objectives of the 2023 Act. The second instrument maintains existing exhaustion rights.
Intellectual property is the key to maintaining leading British industries, so it absolutely is important that we get it right, and I know that many people working in the creative industries and other sectors are looking to us in our discussions today. In the House, it is important that we are clear about what we do. We must give businesses and the public confidence and certainty that we are treating the issue appropriately.
We recognise that artists, creative industries and others make an enormous contribution to our economy and to society, as do scientists, researchers and entrepreneurs. Long-standing legal protections of IP, such as copyright and patent, are important and need to be recognised. More broadly, the intellectual property system exists to balance the interests of creators and the public, ensuring access to work. It is important that we strike the right balance, so I hope that, as we said earlier, we are able to work on a cross-party basis on this. I look forward to the Minister’s answering a couple of specific questions that I have for him.
Having spoken to people in the industries, I would like to ask the Minister to reassure them on a couple of points. The point about collective management organisations is interesting; it appears that the regulations would make them exempt from some requirements that they currently have to comply with. Will the Minister update me on the assessment his Department made that led to this decision? There has been some comment that the exemption may be unnecessary, and there are concerns that some CMOs might not pledge to use this exemption; new CMOs could exist in the future, which may further complicate this matter. Will the Minister write to me on that specific point about CMOs?
Additionally, will the Minister respond to the suggestion that rights holders can insist on transparency reports without legal obligations resting on CMOs to produce them? Some commentators believe that that may be unrealistic. I ask the Minister to write to me about that point as well.
Finally—this is another point about CMOs—the regulations are touted as a key solution to navigate the impact of AI on creatives and rights holders as we move forward to a permitted-but-paid system of AI training or to AI use on protected content. Will the Minister also write to me about that point?
Regulation of all the infrastructure of collective licensing in the UK is critical. We should not be pushing for more transparency without considering it very carefully and, where possible, without placing undue burdens on organisations. I look forward to colleagues’ contributions on these points and, indeed, on the aspect covered by the second statutory instrument.
Andrew Griffith
I thank the hon. Member for Reading East for his comments and for rightly highlighting the importance of intellectual property to the UK economy. I will happily write to him. The Government consulted extensively on the reforms to collective management organisations. This change affects only the smallest CMOs and, as Members would expect, it seeks to get the right balance between protecting rights holders—there is no desire to see a diminution in rights holders’ ability to get the transparency they need and achieve fair recompense—and reducing some of the burdens on the smallest CMOs. The hon. Gentleman knows the seven smallest CMOs affected by this change.
I will write to the hon. Gentleman about the very important issue of AI training. We will again ensure that rights holders are fully affected. He has spent significant time on that important issue, as has the Department, and I will continue to engage on it.
My hon. Friend the Member for Amber Valley asked about the scope of the regulations and whether they extend to digital content. He used the example of the Kindle. That is not dealt with by these regulations, which are about the protection of IP in a physical form. There are separate regulations and copyright laws that deal with that issue. That illustrates the complexity, and it is right that, rather than move too quickly, we take the time to look at the interlocking tapestry.
Ian Lavery (Wansbeck) (Lab)
For the sake of clarity, will the Minister inform the Committee what sort of exhaustion regime the Government intend to introduce? When is that likely to happen?
Andrew Griffith
As I said in my remarks, the Government are consulting on that, and it is right that we take the time. To be transparent, I cannot give the hon. Gentleman a specific time and date. The issue is complex, and officials are working through when that is, but we have consulted and that regime will come. I hope we all agree that it is more important to be right than to be fast in this domain; that is certainly the strong message that we hear from industry.
In the meantime, the regulations, if the Committee supports them today, will provide valuable certainty to industry. The last thing anyone wants is for us to go into the start of next year with uncertainty. These regulations give us the opportunity to take the time. If the hon. Gentleman wants to make representations, I will be happy to entertain them. Hon. Members on both sides of the House engage very strongly with the industry, and I hope that when we reach agreement on what the regime looks like, we can do it on as much of a cross-party basis as possible.
Question put and agreed to.
Draft Intellectual Property (Exhaustion of Rights) (Amendment) Regulations 2023
Resolved,
That the Committee has considered the draft Intellectual Property (Exhaustion of Rights) (Amendment) Regulations 2023.—(Andrew Griffith.)