DeitY says 143 URLs have been Blocked in 2015; Procedure for Blocking Content Remains Opaque and in Urgent Need of Transparency Measures

In February 2015, the Centre for Internet and Society (CIS) requested the Department of Electronics and Information Technology (DeitY) under the Right to Information Act, 2005 (RTI Act) to provide information clarifying the procedures for blocking in India. We have received a response from DeitY which may be seen here.

In this post, I shall elaborate on this response from DeitY and highlight some of the accountability and transparency measures that the procedure needs. To stress the urgency of reform, I shall also touch upon two recent developments—the response from Ministry of Communication to questions raised in Parliament on the blocking procedures and the Supreme Court (SC) judgment in Shreya Singhal v. Union of India.

Section 69A and the Blocking Rules

Section 69A of the Information Technology Act, 2008 (S69A hereinafter) grants powers to the central government to issue directions for blocking of access to any information through any computer resource. In other words, it allows the government to block any websites under certain grounds. The Government has notified rules laying down the procedure for blocking access online under the Procedure and Safeguards for Blocking for Access of Information by Public Rules, 2009 (Rules, 2009 hereinafter). CIS has produced a poster explaining the blocking procedure (download PDF, 2.037MB).

There are three key aspects of the blocking rules that need to be kept under consideration:

Officers and committees handling requests

Designated Officer (DO) – Appointed by the Central government, officer not below the rank of Joint Secretary.
Nodal Officer (NO) – Appointed by organizations including Ministries or Departments of the State governments and Union Territories and any agency of the Central Government.
Intermediary contact–Appointed by every intermediary to receive and handle blocking directions from the DO.
Committee for Examination of Request (CER) – The request along with printed sample of alleged offending information is examined by the CER—committee with the DO serving as the Chairperson and representatives from Ministry of Law and Justice; Ministry of Home Affairs; Ministry of Information and Broadcasting and representative from the Indian Computer Emergency Response Team (CERT-In). The CER is responsible for examining each blocking request and makes recommendations including revoking blocking orders to the DO, which are taken into consideration for final approval of request for blocking by the Secretary, DOT.
Review Committee (RC) – Constituted under rule 419A of the Indian Telegraph Act, 1951, the RC includes the Cabinet Secretary, Secretary to the Government of India (Legal Affairs) and Secretary (Department of Telecom). The RC is mandated to meet at least once in 2 months and record its findings and has to validate that directions issued are in compliance with S69A(1).

Provisions outlining the procedure for blocking

Rules 6, 9 and 10 create three distinct blocking procedures, which must commence within 7 days of the DO receiving the request.

a) Rule 6 lays out the first procedure, under which any person may approach the NO and request blocking, alternatively, the NO may also raise a blocking request. After the NO of the approached Ministry or Department of the State governments and Union Territories and/or any agency of the Central Government, is satisfied of the validity of the request they forward it to the DO. Requests when not sent through the NO of any organization, must be approved by Chief Secretary of the State or Union Territory or the Advisor to the Administrator of the Union Territory, before being sent to the DO.

The DO upon receiving the request places, must acknowledge receipt within 24 four hours and places the request along with printed copy of alleged information for validation by the CER. The DO also, must make reasonable efforts to identify the person or intermediary hosting the information, and having identified them issue a notice asking them to appear and submit their reply and clarifications before the committee at a specified date and time, within forty eight hours of the receipt of notice.

Foreign entities hosting the information are also informed and the CER gives it recommendations after hearing from the intermediary or the person has clarified their position and even if there is no representation by the same and after examining if the request falls within the scope outlined under S69A(1). The blocking directions are issued by the Secretary (DeitY), after the DO forwards the request and the CER recommendations. If approval is granted the DO directs the relevant intermediary or person to block the alleged information.

b) Rule 9 outlines a procedure wherein, under emergency circumstances, and after the DO has established the necessity and expediency to block alleged information submits recommendations in writing to the Secretary, DeitY. The Secretary, upon being satisfied by the justification for, and necessity of, and expediency to block information may issue an blocking directions as an interim measure and must record the reasons for doing so in writing.

Under such circumstances, the intermediary and person hosting information is not given the opportunity of a hearing. Nevertheless, the DO is required to place the request before the CER within forty eight hours of issuing of directions for interim blocking. Only upon receiving the final recommendations from the committee can the Secretary pass a final order approving the request. If the request for blocking is not approved then the interim order passed earlier is revoked, and the intermediary or identified person should be directed to unblock the information for public access.

c) Rule 10 outlines the process when an order is issued by the courts in India. The DO upon receipt of the court order for blocking of information submits it to the Secretary, DeitY and initiates action as directed by the courts.

Confidentiality clause

Rule 16 mandates confidentiality regarding all requests and actions taken thereof, which renders any requests received by the NO and the DO, recommendations made by the DO or the CER and any written reasons for blocking or revoking blocking requests outside the purview of public scrutiny. More detail on the officers and committees that enforce the blocking rules and procedure can be found here.

Response on blocking from the Ministry of Communication and Information Technology

The response to our RTI from E-Security and Cyber Law Group is timely, given the recent clarification from the Ministry of Communication and Information Technology to a number of questions, raised by parliamentarian Shri Avinash Pande in the Rajya Sabha. The questions had been raised in reference to the Emergency blocking order under IT Act, the current status of the Central Monitoring System, Data Privacy law and Net Neutrality. The Centre for Communication Governance (CCG), National Law University New Delhi have extracted a set of 6 questions and you can read the full article here.

The governments response as quoted by CCG, clarifies under rule 9—the Government has issued directions for emergency blocking of a total number of 216 URLs from 1st January, 2014 till date and that a total of 255 URLs were blocked in 2014 and no URLs has been blocked in 2015 (till 31 March 2015) under S69A through the Committee constituted under the rules therein. Further, a total of 2091 URLs and 143 URLs were blocked in order to comply with the directions of the competent courts of India in 2014 and 2015 (till 31 March 2015) respectively. The government also clarified that the CER, had recommended not to block 19 URLs in the meetings held between 1stJanuary 2014 upto till date and so far, two orders have been issued to revoke 251 blocked URLs from 1st January 2014 till date. Besides, CERT-In received requests for blocking of objectionable content from individuals and organisations, and these were forwarded to the concerned websites for appropriate action, however the response did not specify the number of requests.

We have prepared a table explaining the information released by the government and to highlight the inconsistency in their response.

Applicable rule and procedure outlined under the Blocking Rules

Number of websites




Rule 6 – Blocking requests from NO and others




Rule 9 – Blocking under emergency circumstances


Rule 10 – Blocking orders from Court




Requests from individuals and orgs forwarded to CERT-In

Recommendations to not block by CER


Number of blocking requests revoked


In a response to an RTI filed by the Software Freedom Law Centre, DeitY said that 708 URLs were blocked in 2012, 1,349 URLs in 2013, and 2,341 URLs in 2014.

Shreya Singhal v. Union of India

In its recent judgment, the SC of India upheld the constitutionality of 69A, stating that it was a narrowly-drawn provision with adequate safeguards. The constitutional challenge on behalf of the People’s Union for Civil Liberties (PUCL) considered the manner in which the blocking is done and the arguments focused on the secrecy present in blocking.

The rules may indicate that there is a requirement to identify and contact the originator of information, though as an expert has pointed out, there is no evidence of this in practice. The court has stressed the importance of a written order so that writ petitions may be filed under Article 226 of the Constitution. In doing so, the court seems to have assumed that the originator or intermediary is informed, and therefore held the view that any procedural inconsistencies may be challenged through writ petitions. However, this recourse is rendered ineffective not only due to procedural constraints, but also because of the confidentiality clause. The opaqueness through rule 16 severely reigns in the recourse that may be given to the originator and the intermediary. While the court notes that rule 16 requiring confidentality was argued to be unconstitutional, it does not state its opinion on this question in the judgment. One expert, holds the view that this, by implication, requires that requests cannot be confidential. However, such a reading down of rule 16 is yet to be tested.

Further, Sunil Abraham has pointed out, “block orders are unevenly implemented by ISPs making it impossible for anyone to independently monitor and reach a conclusion whether an internet resource is inaccessible as a result of a S69A block order or due to a network anomaly.” As there are no comprehensive list of blocked websites or of the legal orders through which they are blocked exists, the public has to rely on media reports and filing RTI requests to understand the censorship regime in India. CIS has previously analysed the leaked block lists and lists received as responses to RTI requests which have revealed that the block orders are full of errors and blocking of entire platforms and not just specific links has taken place.

While the state has the power of blocking content, doing so in secrecy and without judical scrutiny, mark deficiencies that remain in the procedure outlined under the provisions of the blocking rules . The Court could read down rule 16 except for a really narrow set of exceptions, and in not doing so, perhaps has overlooked the opportunities for reform in the existing system. The blocking of 32 websites, is an example of the opaqueness of the system of blocking orders, and where the safeguards assumed by the SC are often not observed such as there being no access to the recommendations that were made by the CER, or towards the revocation of the blocking orders subsequently. CIS filed the RTI to try and understand the grounds for blocking and related procedures and the response has thrown up some issues that must need urgent attention.

Response to RTI filed by CIS

Our first question sought clarification on the websites blocked on 30th December 2014 and the response received from DeitY, E-Security and Cyber Law Group reveals that the websites had been blocked as “they were being used to post information related to ISIS using the resources provided by these websites”. The response also clarifies that the directions to block were issued on 18-12-2014 and as of 09-01-2015, after obtaining an undertaking from website owners, stating their compliance with the Government and Indian laws, the sites were unblocked.

It is not clear if ATS, Mumbai had been intercepting communication or if someone reported these websites. If the ATS was indeed intercepting communication, then as per the rules, the RC should be informed and their recommendations sought. It is unclear, if this was the case and the response evokes the confidentiality clause under rule 16 for not divulging further details. Based on our reading of the rules, court orders should be accessible to the public and without copies of requests and complaints received and knowledge of which organization raised them, there can be no appeal or recourse available to the intermediary or even the general public.

We also asked for a list of all requests for blocking of information that had been received by the DO between January 2013 and January 2015, including the copies of all files that had accepted or rejected. We also specifically, asked for a list of requests under rule 9. The response from DeitY stated that since January 1, 2015 to March 31, 2015 directions to block 143 URLs had been issued based on court orders. The response completely overlooks our request for information, covering the 2 year time period. It also does not cover all types of blocking orders under rule 6 and rule 9, nor the requests that are forwarded to CERT-In, as we have gauged from the ministry’s response to the Parliament. Contrary to the SC’s assumption of contacting the orginator of information, it is also clear from DeitY’s response that only the websites had been contacted and the letter states that the “websites replied only after blocking of objectionable content”.

Further, seeking clarification on the functioning of the CER, we asked for the recent composition of members and the dates and copies of the minutes of all meetings including copies of the recommendations made by them. The response merely quotes rule 7 as the reference for the composition and does not provide any names or other details. We ascertain that as per the DeitY website Shri B.J. Srinath, Scientist-G/GC is the appointed Designated Officer, however this needs confirmation. While we are already aware of the structure of the CER which representatives and appointed public officers are guiding the examination of requests remains unclear. Presently, there are 3 Joint Secretaries appointed under the Ministry of Law and Justice, the Home Ministry has appointed 19, while 3 are appointed under the Ministry of Information and Broadcasting. Further, it is not clear which grade of scientist would be appointed to this committee from CERT-In as the rules do not specify this. While the government has clarified in their answer to Parliament that the committee had recommended not to block 19 URLs in the meetings held between 1st January 2014 to till date, it is remains unclear who is taking these decisions to block and revoke blocked URLs. The response from DeitY specifies that the CER has met six times between 2014 and March 2015, however stops short on sharing any further information or copies of files on complaints and recommendations of the CER, citing rule 16.

Finally, answering our question on the composition of the RC the letter merely highlights the provision providing for the composition under 419A of the Indian Telegraph Rules, 1951. The response clarifies that so far, the RC has met once on 7th December, 2013 under the Chairmanship of the Cabinet Secretary, Department of Legal Affaits and Secretary, DOT. Our request for minutes of meetings and copies of orders and findings of the RC is denied by simply stating that “minutes are not available”. Under 419A, any directions for interception of any message or class of messages under sub-section (2) of Section 5 of the Indian Telegraph Act, 1885 issued by the competent authority shall contain reasons for such direction and a copy of such order shall be forwarded to the concerned RC within a period of seven working days. Given that the RC has met just once since 2013, it is unclear if the RC is not functioning or if the interception of messages is being guided through other procedures. Further, we do not yet know details or have any records of revocation orders or notices sent to intermediary contacts. This restricts the citizens’ right to receive information and DeitY should work to make these available for the public.

Given the response to our RTI, the Ministry’s response to Parliament and the SC judgment we recommend the following steps be taken by the DeitY to ensure that we create a procedure that is just, accountable and follows the rule of law.

The revocation of rule 16 needs urgent clarification for two reasons:

  1. Under Section 22 of the RTI Act provisions thereof, override all conflicting provisions in any other legislation.
  2. In upholding the constitutionality of S69A the SC cites the requirement of reasons behind blocking orders to be recorded in writing, so that they may be challenged by means of writ petitions filed under Article 226 of the Constitution of India.

If the blocking orders or the meetings of the CER and RC that consider the reasons in the orders are to remain shrouded in secrecy and unavailable through RTI requests, filing writ petitions challenging these decisions will not be possible, rendering this very important safeguard for the protection of online free speech and expression infructuous. In summation, the need for comprehensive legislative reform remains in the blocking procedures and the government should act to address the pressing need for transparency and accountability. Not only does opacity curtial the strengths of democracy it also impedes good governance. We have filed an RTI seeking a comprehensive account of the blocking procedure, functioning of committees from 2009-2015 and we shall publish any information that we may receive.

European Court of Justice rules Internet Search Engine Operator responsible for Processing Personal Data Published by Third Parties

The Court of Justice of the European Union has ruled that an “an internet search engine operator is responsible for the processing that it carries out of personal data which appear on web pages published by third parties.” The decision adds to the conundrum of maintaining a balance between freedom of expression, protecting personal data and intermediary liability.

The ruling is expected to have considerable impact on reputation and privacy related takedown requests as under the decision, data subjects may approach the operator directly seeking removal of links to web pages containing personal data. Currently, users prove whether data needs to be kept online—the new rules reverse the burden of proof, placing an obligation on companies, rather than users for content regulation.

A win for privacy?

The ECJ ruling addresses Mario Costeja González complaint filed in 2010, against Google Spain and Google Inc., requesting that personal data relating to him appearing in search results be protected and that data which was no longer relevant be removed. Referring to the Directive 95/46/EC of the European Parliament, the court said, that Google and other search engine operators should be considered ‘controllers’ of personal data. Following the decision, Google will be required to consider takedown requests of personal data, regardless of the fact that processing of such data is carried out without distinction in respect of information other than the personal data.

The decision—which cannot be appealed—raises important of questions of how this ruling will be applied in practice and its impact on the information available online in countries outside the European Union.  The decree forces search engine operators such as Google, Yahoo and Microsoft’s Bing to make judgement calls on the fairness of the information published through their services that reach over 500  million people across the twenty eight nation bloc of EU.

ECJ rules that search engines ‘as a general rule,’ should place the right to privacy above the right to information by the public. Under the verdict, links to irrelevant and out of date data need to be erased upon request, placing search engines in the role of controllers of information—beyond the role of being an arbitrator that linked to data that already existed in the public domain. The verdict is directed at highlighting the power of search engines to retrieve controversial information while limiting their capacity to do so in the future.

The ruling calls for maintaining a balance in addressing the legitimate interest of internet users in accessing personal information and upholding the data subject’s fundamental rights, but does not directly address either issues. The court also recognised, that the data subject’s rights override the interest of internet users, however, with exceptions pertaining to nature of information, its sensitivity for the data subject’s private life and the role of the data subject in public life. Acknowledging that data belongs to the individual and is not the right of the company, European Commissioner Viviane Reding, hailed the verdict, “a clear victory for the protection of personal data of Europeans”.

The Court stated that if data is deemed irrelevant at the time of the case, even if it has been lawfully processed initially, it must be removed and that the data subject has the right to approach the operator directly for the removal of such content. The liability issue is further complicated by the fact, that search engines such as Google do not publish the content rather they point to information that already exists in the public domain—raising questions of the degree of liability on account of third party content displayed on their services.

The ECJ ruling is based on the case originally filed against Google, Spain and it is important to note that, González argued that searching for his name linked to two pages originally published in 1998, on the website of the Spanish newspaper La Vanguardia. The Spanish Data Protection Agency did not require La Vanguardia to take down the pages, however, it did order Google to remove links to them. Google appealed this decision, following which the National  High Court of Spain sought advice from the European court. The definition of Google as the controller of information, raises important questions related to the distinction between liability of publishers and the liability of processors of information such as search engines.

The ‘right to be forgotten’

The decision also brings to the fore, the ongoing debate and fragmented opinions within the EU, on the right of the individual to be forgotten. The ‘right to be forgotten‘ has evolved from the European Commission’s wide-ranging plans of an overhaul of the commission’s 1995 Data Protection Directive. The plans for the law included allowing people to request removal of personal data with an obligation of compliance for service providers, unless there were ‘legitimate’ reasons to do otherwise. Technology firms rallying around issues of freedom of expression and censorship, have expressed concerns about the reach of the bill. Privacy-rights activist and European officials have upheld the notion of the right to be forgotten, highlighting the right of the individual to protect their honour and reputation.

These issues have been controversial amidst EU member states with the UK’s Ministry of Justice claiming the law ‘raises unrealistic and unfair expectations’ and  has sought to opt-out of the privacy laws. The Advocate General of the European Court Niilo Jääskinen’s opinion, that the individual’s right to seek removal of content should not be upheld if the information was published legally, contradicts the verdict of the ECJ ruling. The European Court of Justice’s move is surprising for many and as Richard Cumbley, information-management and data protection partner at the law firm Linklaters puts it, “Given that the E.U. has spent two years debating this right as part of the reform of E.U. privacy legislation, it is ironic that the E.C.J. has found it already exists in such a striking manner.”

The economic implications of enforcing a liability regime where search engine operators censor legal content in their results aside, the decision might also have a chilling effect on freedom of expression and access to information. Google called the decision “a disappointing ruling for search engines and online publishers in general,” and that the company would take time to analyze the implications. While the implications of the decision are yet to be determined, it is important to bear in mind that while decisions like these are public, the refinements that Google and other search engines will have to make to its technology and the judgement calls on the fairness of the information available online are not public.

The ECJ press release is available here and the actual judgement is available here.