Communications Minister Malcolm Turnbull says film and music companies, not internet users, should foot the bill for any scheme cracking down on online piracy.

Mr Turnbull also says companies arguing for tough anti-piracy measures will have to justify why Australians pay more to download movies and music, and why they have to wait longer to access it, than overseas consumers.

But Mr Turnbull said governments could not ignore the issue of illegal downloading because of the dangers it posed to the viability of the creative sector.

Mr Turnbull and Attorney-General George Brandis on Wednesday released a discussion paper on online copyright infringement containing proposals to tackle illegal downloading.