Online Safety Super-Complaints (Eligibility and Procedural Matters) Regulations 2025

Baroness Jones of Whitchurch Excerpts

Tuesday 15th July 2025 Grand Committee

Moved by

[Baroness Jones of Whitchurch]

That the Grand Committee do consider the Online Safety Super-Complaints (Eligibility and Procedural Matters) Regulations 2025.

Relevant document: 29th Report from the Secondary Legislation Scrutiny Committee. Special attention drawn to the instrument

[The Parliamentary Under-Secretary of State, Department for Business and Trade and Department for Science, Information and Technology (Baroness Jones of Whitchurch) (Lab)]

My Lords, as the Online Safety Act sets out, the Secretary of State must make these regulations under Sections 169(3) and 170(1) of the Act. They enable the super-complaints regime to operate by establishing the eligibility criteria that entities must meet to submit a super-complaint, as well as the procedural matters relating to Ofcom’s assessment of super-complaints.

Super-complaints are an integral part of the Act’s complaints handling, reporting, and redress mechanisms. They provide a means for eligible entities, including civil society groups with expertise in online safety matters, to raise systemic issues about the features or conduct of one or more regulated services with Ofcom, the Act’s independent regulator.

Super-complaints cannot be made by individuals, nor can they be made about individual pieces of content. The Act establishes, under Section 169, the scope of issues that super-complaints can address. This includes where the features and/or conduct of regulated services may be causing significant harm to, significantly adversely affecting the freedom of expression of, or otherwise adversely impacting users, particular groups or the public. We expect super-complaints to typically be about cross-platform, systemic issues. However, a complaint may cover a single service if the complaint is particularly important or impacts a large number of users or members of the public.

The SI sets out several eligibility criteria that an entity must meet to be able to submit a complaint to Ofcom. Entities must: represent the interests of users of regulated services, particular groups, or members of the public; have a composition, governance and accountability arrangements that mean it can be relied on to act independently from regulated services, although funding, or representation in the entity’s governance from platforms, is allowed; contribute to public discussions on online safety matters as an expert; and be capable of being relied upon to have due regard to any guidance published by Ofcom. These criteria aim to ensure a wide range of entities are eligible while safeguarding the integrity of the process and reducing the risk of vexatious complaints.

In addition to the eligibility criteria, this SI also sets out the process and timeline for assessing super-complaints. Ofcom must assess the would-be complainant’s evidence against the eligibility criteria and determine whether an entity is eligible within 30 days. Ofcom must then inform an entity whether they are eligible or not and explain why. The time for assessing eligibility reduces to 15 days where entities have been found to be eligible within the past five years. In such circumstances, an entity must submit information to show that it is still an expert contributing significantly to public discussion on online safety. Eligible entities must also present current, objective and relevant evidence to support their view that one of the grounds for a complaint under the Act is met.

When assessing the admissibility of the complaint and the substance of the complaint itself, Ofcom must typically respond 90 days following the eligibility determination. This means that, as standard, the entire super-complaints process will conclude within 120 days, or 105 days where there is retained eligibility status. Ofcom may however stop the clock in certain circumstances, such as if additional information is required from the entity and the complaint cannot be progressed without it. But Ofcom may only stop the clock by the amount of time it takes to receive the requested information. Where Ofcom has determined that an entity is eligible, it must consider the complaint and evaluate the evidence presented to it. At the end of the process it must publish a response, including its determination on the matter. This may include what further action, if any, it anticipates.

In developing these regulations, the Government have consulted Ofcom and there has been a public consultation. We have listened closely to the views of stakeholders and, where possible, made changes to the policy consulted on. These changes are set out in further detail in the Government’s policy response published in June this year. In tandem with this SI being laid, a round table was also held with key civil society groups to set out the changes and our response to the concerns raised during the consultation process. These changes include lowering the bar for eligibility to enable new expert organisations to make complaints and removing the requirement to pre-notify Ofcom ahead of submitting a complaint.

The online world is complicated and ever-changing. As the Government, our aim is to remain agile and keep pace with emerging online harms. These regulations have been drafted to do just that, by ensuring Ofcom is made aware of emerging technologies, market operators and subsequent harms. I beg to move.

[Lord Stevenson of Balmacara (Lab)]

My Lords, I welcome my noble friend’s comments, which set the context for this interesting statutory instrument.

In the process of consultation that led to the final decisions, was there time for the department to begin to implement the Parkinson rule? When my noble friend and I last met some time ago, we discussed how and under what conditions one might be able to allow Select Committees in the Commons and here with expertise in these matters to look at SIs before they are laid. I notice that this was laid on 9 June, which is well after that meeting. Was there time to let the Select Committees see this and were there useful results from that? If not, can she give us some indication of when the department will be in a position to begin to process the Parkinson rule in relation to this?

I am grateful to the Secondary Legislation Scrutiny Committee for its very full 29th report, which went through this SI in somewhat surprising detail—we do not normally get four or five pages on an instrument each time, but that tells the story behind some of my concerns about the department’s approach to this. The committee’s first conclusion is that:

“The draft Regulations are drawn to the special attention of the House on the ground that they are politically or legally important or give rise to issues of public policy likely to be of interest to the House”.


We are grateful to it for doing that. These are interesting and important issues.

The committee’s first point for consideration is that it worries whether the regulator, Ofcom, will have the resources to carry out the sort of work envisaged in this SI and the much larger scheme of work that it is involved in. I would be grateful if my noble friend could give some thought to that in her response. I do not think she mentioned it. We understand the basis on which Ofcom makes its funding needs available—there has been notification of that recently around the level of fees to be exercised on the companies in scope of the regulator—but that is not the narrow point raised here. It is more about the question of capacity and scale, and the ability to think more widely about the system it is trying to regulate, than it is just about the money. I would be grateful if my noble friend would say a few things about how the department judges that and how it thinks Ofcom will be able to scale up its current work, which is immense. It is very important to include this activity, which in the Bill was originally intended to be of assistance to Ofcom, although some of the way it has come out does not seem to have delivered on that.

Secondly, I recollect that we spent quite a long time on the Bill working out why the Government of the day did not think it necessary to have some form of ombudsman system in place for internet matters. I am sure the noble Lord, Lord Clement-Jones, will make some points about this. This was well argued and well thought through in our debates, and we had many meetings offline to try to find a way forward. We did not get what we wanted, but it was a very big Bill and other things perhaps took priority. However, we did get agreement from Ministers, in the Bill, that there would be a review shortly after its implementation— I think within two years—of how the complaints processes for users of IT systems in this country, particularly in new media, were being dealt with by individual companies. Clearly, the expectation is that each company will have its own structure but that, on occasion, issues would be raised across more than one provider. The question was how an ordinary citizen would cope with that if there was not some form of ombudsman system. I strongly believe that there needs to be an ombudsman system for this whole area, and I hope that the review to be carried out by Ofcom within two years will recommend that. This is not referred to in this SI. Will the Minister say a few words about the department’s current thinking on that?

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[Viscount Camrose (Con)]

To pick up exactly where I left off, as with any regulatory mechanism, transparency is key to ensuring public trust and parliamentary accountability. We therefore urge the Government to clarify how the outcomes of this process will be communicated to Parliament and the public, particularly where serious harms are identified. Only then can we be confident that this mechanism will not only protect users but uphold the openness and scrutiny that must underpin all aspects of the Online Safety Act.

[Baroness Jones of Whitchurch (Lab)]

My Lords, I thank all noble Lords for their valuable contributions to this debate, including those who have rightly identified that we have taken the comments from the stakeholder engagement to heart and made changes to the eventual proposals. I will go through the very many questions that noble Lords have asked. I pay tribute to the work of the Secondary Legislation Scrutiny Committee; we welcome its report and the scrutiny it has given to our proposals.

In no particular order, I will first pick up the question of scrutiny. The noble Lord, Lord Stevenson, asked about Parkinson’s law—if I can put it that way. We have spoken about this and there have been a number of different discussions about it. We recognise that the Science, Innovation and Technology Committee and the Lords Communications and Digital Committee play a vital role in scrutinising the regime. The SI was shared with those committees in advance. He will know that Parkinson’s law is not as emphatic as it might be—it is a caveated law—but we nevertheless take on board the concerns raised about it and have met the chairs of those committees to talk about how we can take these issues forward. We have had a very good dialogue with them, on the understanding that we do not want to delay what can sometimes be very important and game-changing regulations by having a long extra scrutiny process. Nevertheless, we are trying to find a way to resolve this issue and discussions are continuing with officials.

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[Lord Clement-Jones (LD)]

I am sorry to interrupt the Minister, but she said 2028. When will the actual review begin? That sounds an impossible end date for anybody to be satisfied with progress on an ombudsman being considered, let alone appointed. Does the review start in 2028, or in 2026? When does it start taking input?

[Baroness Jones of Whitchurch (Lab)]

The only information that I have is that we are anticipating that the report would be published and available in early 2028—so, obviously, it would need to start well before then. The noble Lord will know that setting up ombudsman schemes is not a simple process. However, we look forward to the outcome of that report, because we recognise some of the issues being raised.

[Lord Clement-Jones (LD)]

But if the report will be available only then and the regulations need to be made, the prospect of having an ombudsman is not there until 2029—something like that—or maybe 2030. Does not the Minister find that rather unsatisfactory, especially given her knowledge of the benefits of ombudsman services?

[Baroness Jones of Whitchurch (Lab)]

I can only repeat what I said. Ofcom is going to produce a report on this; it will look at the pros and cons of the issue and it may decide that there are other ways in which to deal with individual complaints that would not necessarily be an ombudsman service. We have to give it the space to do that thinking and develop that work; it will also need to look at how the tech companies themselves respond to complaints and what gaps need to be filled by that process. So it is not a simple process—but I understand the noble Lord’s frustration with this. If we have any more information about the timescale for this, I shall write to the noble Lord.

[Lord Clement-Jones (LD)]

I am sorry to interrupt again, but it partly depends on how much confidence we have in the tech companies in terms of how they deal with complaints.

[Baroness Jones of Whitchurch (Lab)]

We will know the outcome of that much sooner than 2028, because I am sure that we will all have experience of complaints that go forward and whether they are responded to efficiently in the coming months, because there will be the opportunity to do that. In the regulations, as the noble Lord knows, all the regulated companies are required to have a named individual and a process for people to raise complaints.

The noble Lord, Lord Stevenson, asked about appeals. I reassure noble Lords that Ofcom’s response will be informed by its regulatory experience, as well as the information presented as part of the complaint and any additional information that has been requested, before arriving at an appropriate determination. I also remind the Committee that the objective of a super-complaint is, ultimately, to bring to the attention of Ofcom an issue, a risk or a harm that it might otherwise have been unaware of. It is not to adjudicate an individual decision or necessarily to trigger enforcement action. Ofcom has the flexibility to use any of its online safety regulatory powers to address issues raised by the super-complaint. This may include a formal enforcement action, a change in guidance or codes of practice or, indeed, no action at all.

[Lord Stevenson of Balmacara (Lab)]

I may not have made the point as clearly as I should have. It is not the fact that Ofcom will be unaware of an issue that is being raised as much as that the need to get a super-complaint going may frustrate Ofcom finding out about small but high-risk activity that is remote from its main activity. We went through this in some detail towards the end of the Bill and in recent SIs that have stemmed from it. Size is never the only issue that will affect how individuals are being attacked or treated by these companies. I feel very uncomfortable about a situation where a super-complaint cannot be mounted because of lack of experience or a lack of quality in its processes, when the issue itself will then get ignored. I ask the Minister to perhaps reflect on that later.

[Baroness Jones of Whitchurch (Lab)]

As I have said, small organisations can get involved in the super-complaint process. The wording is designed as it is to allow new campaigning organisations, if you like, to come through, because this is a new territory that we are operating in, and we do not want to consult with or hear messages from just the usual, established organisations. I think that Ofcom will be sensitive about all this, but it will also, as we know, be able to enforce against small but risky services.

Ofcom is looking at what is happening in the smaller sphere, if I can put it like that. Ofcom has already started enforcement action against some of the non-compliant small but risky services. For example, it is investigating whether small services such as 4chan are complying with the illegal safety duties. There are other small services that Ofcom is now taking action against as well. I hear what the noble Lord has said, and I am confident that Ofcom will want to hear from all voices, not just the large players in this sector. I should also say that Ofcom is subject to standard regulatory redress mechanisms, such as judicial review.

The noble Baroness, Lady McIntosh, asked when the guidance will be in place. The Government expect Ofcom to have finalised the guidance by quarter 1 of 2026. This instrument comes into force on 31 December 2025. The guidance does not need to be finalised before the regime can come into effect. The guidance will contain important and useful information, so complainants may wish to wait until the final guidance is published before submitting a complaint, and Ofcom will consult on that guidance. But those organisations who know exactly what consumer complaints they wish to pursue do not have to wait for the guidance.

The noble Lord, Lord Wrottesley, and the noble Viscount, Lord Camrose, asked about Ofcom’s transparency and whether it will produce statistics on the evidence that it is acquiring. Ofcom recognises the importance of transparency around the work that it does and is considering how best to publish that information about super-complaints as it implements the new regime. Ofcom will publish responses to accepted super-complaints, including if they are rejected on admissibility grounds, and summaries of these complaints as required under the regulations.

Again, Ofcom and the Government will continue to communicate and develop those risks and make sure that the codes are kept under review. It is about not just producing the reports but communicating to the wider public if new risks are identified. We all accept that one purpose of the super-complaints is to bring things to Ofcom’s attention of which it might not otherwise be aware to enable it to move quite quickly to address those issues.