The file contains a letter from the Norwegian Minister for Justice, Knut Storberget, asking all Norwegian Internet Service Providers (ISPs) to create a nation wide censorship system on a "voluntary basis" or face the passage of laws compelling them to do so.
The letter was sent to internet providers in Norway.
It was leaked because such a move should be debated in the Parliament rather than implemented without debate behind closed doors. It has been leaked because secret censorship lists are inherently unjust and undemocratic. And it has been leaked because other countries with blacklists such as Australia (mandatory, unimplemented), Thailand (mandatory, implemented), Finland (voluntary, implemented) and Denmark (voluntary, implemented) have been exposed including material on their lists that they promised not to.