Keir Starmer QC, the Director of Public Prosecutions, has said:
“On 30 July 2012 Daniel Thomas, a semi-professional footballer, posted a homophobic message on the social networking site, Twitter. This related to the Olympic divers Tom Daley and Peter Waterfield. This became available to his “followers”. Someone else distributed it more widely and it made its way into some media outlets. Mr Thomas was arrested and interviewed. The matter was then referred to CPS Wales to consider whether Mr Thomas should be charged with a criminal offence.
“The Communications Act 2003 makes it an offence to send a communication using a public electronic communications network if that communication is “grossly offensive”. It is now established that posting comments via Twitter constitutes sending a message by means of a public electronic communications network. It is also clear that the offence is committed once the message is sent, irrespective of whether it is received by any intended recipient or anyone else. The question in this case is therefore whether the message posted by Mr Thomas is so grossly offensive as to be criminal and, if so, whether a prosecution is required in the public interest.
“There is no doubt that the message posted by Mr Thomas was offensive and would be regarded as such by reasonable members of society. But the question for the CPS is not whether it was offensive, but whether it was so grossly offensive that criminal charges should be brought. The distinction is an important one and not easily made. Context and circumstances are highly relevant and as the European Court of Human Rights observed in the case of Handyside v UK (1976), the right to freedom of expression includes the right to say things or express opinions “…that offend, shock or disturb the state or any sector of the population”.
“The context and circumstances in this case include the following facts and matters:
(a) However misguided, Mr Thomas intended the message to be humorous.
(b) However naïve, Mr Thomas did not intend the message to go beyond his followers, who were mainly friends and family.
(c) Mr Thomas took reasonably swift action to remove the message.
(d) Mr Thomas has expressed remorse and was, for a period, suspended by his football club.
(e) Neither Mr Daley nor Mr Waterfield were the intended recipients of the message and neither knew of its existence until it was brought to their attention following reports in the media.
“This was, in essence, a one-off offensive Twitter message, intended for family and friends, which made its way into the public domain. It was not intended to reach Mr Daley or Mr Waterfield, it was not part of a campaign, it was not intended to incite others and Mr Thomas removed it reasonably swiftly and has expressed remorse. Against that background, the Chief Crown Prosecutor for Wales, Jim Brisbane, has concluded that on a full analysis of the context and circumstances in which this single message was sent, it was not so grossly offensive that criminal charges need to be brought.
“Before reaching a final decision in this case, Mr Daley and Mr Waterfield were consulted by the CPS and both indicated that they did not think this case needed a prosecution.
“This case is one of a growing number involving the use of social media that the CPS has had to consider. There are likely to be many more. The recent increase in the use of social media has been profound. It is estimated that on Twitter alone there are 340 million messages sent daily. And the context in which this interactive social media dialogue takes place is quite different to the context in which other communications take place. Access to social media is ubiquitous and instantaneous. Banter, jokes and offensive comment are commonplace and often spontaneous. Communications intended for a few may reach millions.
“Against that background, the CPS has the task of balancing the fundamental right of free speech and the need to prosecute serious wrongdoing on a case by case basis. That often involves very difficult judgment calls and, in the largely unchartered territory of social media, the CPS is proceeding on a case by case basis. In some cases it is clear that a criminal prosecution is the appropriate response to conduct which is complained about, for example where there is a sustained campaign of harassment of an individual, where court orders are flouted or where grossly offensive or threatening remarks are made and maintained. But in many other cases a criminal prosecution will not be the appropriate response. If the fundamental right to free speech is to be respected, the threshold for criminal prosecution has to be a high one and a prosecution has to be required in the public interest.
“To ensure that CPS decision-making in these difficult cases is clear and consistent, I intend to issue guidelines on social media cases for prosecutors. These will assist them in deciding whether criminal charges should be brought in the cases that arise for their consideration. In the first instance, the CPS will draft interim guidelines. There will then be a wide public consultation before final guidelines are published. As part of that process, I intend to hold a series of roundtable meetings with campaigners, media lawyers, academics, social media experts and law enforcement bodies to ensure that the guidelines are as fully informed as possible.
“But this is not just a matter for prosecutors. Social media is a new and emerging phenomenon raising difficult issues of principle, which have to be confronted not only by prosecutors but also by others including the police, the courts and service providers. The fact that offensive remarks may not warrant a full criminal prosecution does not necessarily mean that no action should be taken. In my view, the time has come for an informed debate about the boundaries of free speech in an age of social media.”