As I noted here a few days ago, the Federal Communications Commission held a workshop on Tuesday about “Speech, Democratic Engagement, and the Open Internet.” It was a shockingly one-sided affair with the deck being stacked almost entirely in favor of advocates of Net neutrality regulation. Worse yet, those advocates shamelessly made up spooky stories about a future of “private censorship” that could only be remedied by using the First Amendment as a club to beat private players into submission. The token opposition at this Chicken Little circus was Robert Corn-Revere, a Partner at the law firm of Davis Wright Tremaine LLP in Washington, D.C. Bob set the record straight–both in terms of baseless accusations that were flying that day as well as the revisionist histories of the First Amendment that were being put forward. I’m happy to report that Bob allowed PFF to reprint his remarks as a new white paper entitled, “The First Amendment, the Internet & Net Neutrality: Be Careful What You Wish For.”
In his essay, Corn-Revere discusses the relationship between the First Amendment and regulatory policy, particularly the treatment of new communications technologies, and he warns that government regulation of broadband networks could “provide the vehicle for advancing new First Amendment theories for media regulation” and online speech and expression more generally. “It should not be forgotten,” he argues, “that the federal government’s initial impulse was to censor the Internet and to subject it to a far lower level of First Amendment protection. It pursued this agenda for more than a decade but was blocked by a series of First Amendment rulings.” The Communications Decency Act and the Child Online Protection Act are just two notable examples. Luckily, the courts determined that “the open Internet would be at great risk if the government is allowed to exercise such power,” he notes, and they struck down such laws.
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Here in Washington, DC we’re finally experiencing a changing of the seasons. The summer heat is retreating as cool , autumn air invades. It’s a changing of the guard–just like what’s happening to ICANN with today’s expiration of its oversight by the U.S. government. Only its a spring-like blossoming for ICANN.
The Department of Commerce has allowed the JPA to expire, thus completing the transition of DNS management to ICANN. There were many skeptics that wanted to give ICANN more time to develop permanent mechanisms for true accountability. Others were concerned about the threat of capture, especially on hearing proposals from the United Nations and European Commission to assume control over a newly-independent ICANN.
Over at the NetChoice blog, Steve DelBianco says that we should be pleasantly surprised to see the new Affirmation of Commitments unveiled by ICANN today, because it does much to address both of those concerns. It creates review mechanisms for accountability, new domains, and domains in non-Latin characters (IDNs).
These new “review teams” could bring to ICANN something similar to the ‘official review’ we have for football and tennis. For close, controversial decisions, this framework could help ICANN to correct a bad call and get back on-track. I can see a couple of areas where these new review teams can have an impact right away:
I’m glad to see that the security review team has a forward-looking focus on making sure the DNS stays up 24-7, around the world, even under increasing security threats and a major expansion of top-level domains.
The review team for competition and consumer choice might finally get ICANN to get its registrars to fulfill the role they were designed for: to offer consumers a choice of all top level domains—not just the ones that a registrar prefers to sell.
So it seems more like a Spring-like flowering than a Fall dropping of the leaves. ICANN gets independence, plus there’s a balanced framework that brings all governments into the oversight process alongside private sector stakeholders, with a sharpened focus on security and serving global internet users.
Louis XVI
Americans often quote, or allude to, the French expression “Le Roi est mort, vive le Roi!” But few realize that this apparent paradox was meant quite literally by the French:From its first official proclamation in 1422 upon the coronation of Charles VII to 1774, when Louis XV finally died, the term expressed the abstract constitutional concept that sovereignty transfered from the old king (the first “Le Roi“) to the new king (the second ”Le Roi“) the very instant the old king died. Thus, France was literally never without a king until until the monarchy was finally dis-established in early 1793. When Louis XVI was guillotined later that year, his death was acclaimed simply with “Le Roi est mort!”
Tomorrow, September 30, ICANN’s Joint Project Agreement with the Department of Commerce finally terminates. “Le JPA est mort!” But a new agreement (the “Affirmation”) will take its place, apparently providing more accountability than the JPA ever did. Vive l’Affirmation! There may come a day when, like Louis XVI, ICANN’s JPA-like agreement with Commerce terminates and nothing is there to replace it, but that day has not yet come.
Grant Gross has a great piece on this new agreement. Grant extensively quotes my PFF Adjunct Fellow (my ICANN mentor and former ICANN board member) Mike Palage, who explained that the JPA’s successor (JPA II?):
will tell [ICANN] what it should do, but it can’t legally bind them [much like past agreements]… It gives the appearance in the global community that the U.S. government has recognized that ICANN has done what is was supposed to do. What it’s also doing is … it’s putting in some accountability mechanisms.”
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My PFF colleague Mike Palage just released a paper about a series of recent applications for national trademark rights in terms that correspond to likely strings for new top-level domain names, or TLDs, (e.g., “.BLOG”). These attempts highlight just one way in which ICANN’s new generic TLD (gTLD) application process is likely to be “gamed.” But it is also a strategy to which some trademark holders may feel compelled to resort to defend their rights to that string. Unfortunately, it does not appear that ICANN is addressing these important public policy considerations. In fact, based upon some of the provisions in the proposed draft registry agreements, it appears that ICANN staff’s actions may increase, rather than decrease, the ambiguity that opens the door to such gaming of the system.
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PFF Adjunct Fellow Mike Palage, who served on the ICANN board from 2003 to 2006, filed these comments (PDF) on the NTIA’s recent Notice of Inquiry regarding ICANN’s future. Mike’s four key points were as follows:
- ICANN’s Periodic Review of its internal operations and supporting organizations has failed, and has become nothing more than a “perpetual motion machine of public comments and documentation producing no meaningful results.” Only a second Evolution and Reform Process can solve ICANN’s current deficiencies;
- ICANN must hardcode into its policies and its contracts the principle that its policies cannot supersede national laws;
- ICANN must cease any operational role in technical infrastructure as required by its bylaws and focus instead on its mission as a technical coordinator; and
- Congress must avoid “kicking the JPA can down the road” and instead provide much-needed leadership by creating a solid foundation for ICANN 3.0 in legislation after proper consultation with the Government Accountability Office.
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I’ve been working closely with PFF Adjunct Fellow & former ICANN Board member Michael D. Palage on ICANN issues. Michael had this to say about the ongoing saga of ICANN’s attempt to create new gTLDs.
During the recent ICANN Board meeting in Mexico City, the Board authorized the creation and funding of an Implementation Recommendation Team (IRT). This team was to be comprised of “an internationally diverse group of persons with knowledge, expertise, and experience in the fields of trademark, consumer protection, or competition law, and the interplay of trademarks and the domain name system to develop and propose solutions to the overarching issue of trademark protection in connection with the introduction of new gTLDs.” This IRT is tasked to produce a report for consideration by the ICANN community at the Sydney meeting.
The IRT consists of 24 members:
- Chairwoman Caroline G. Chicoine; and
- Seventeen members; and
- Six ex officio members: Four IPC-elected officers and two-GNSO elected Board Directors (Bruce Tonkin and Rita Rodin Johnston).
I have a number of friends and colleagues serving on this team and I wish them well in their important endeavor.
I’ve previously proposed a number of rights-protection mechanisms that IRT should consider. Today, I offer a few suggestions that I hope will guide IRT as they embark on their important work tomorrow. In particular, I hope they’ll implement some of my suggestions intended to make the IRT process more transparent-so the rest of the global Internet can follow along with their important work and provide constructive input where possible.
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By Mike Palage, PFF Adjunct Fellow & former ICANN Board Member
TPI’s Tom Lenard and Larry White released a study yesterday entitled ICANN at a Crossroads: A Proposal for Better Governance and Performance (PDF). ICANN is, indeed, at a crossroads: A number of critical Internet governance issues will be decided over the next 6-12 months-such as:
- How to roll out new gTLDs like .BLOG, which I’ve discussed here and here (PDF).
- ICANN’s future as an increasingly independent organization, which I’ve discussed here.
There is an acute need to better educate the public and policymakers about these complex issues and about how ICANN works-something that will be addressed by my upcoming primer on ICANN. For that reason, I welcome TPI’s contribution to this important debate about the future of the Internet. I share TPI’s concerns about the inadequacy of mechanisms currently in place to ensure ICANN’s accountability and the absence of any checks on ICANN’s ever-expanding budget.
But I strongly disagree with TPI’s conclusion that:
ICANN should remain a nonprofit organization, but it should be governed by and accountable to its direct users: the registries and the registrars. The seats on ICANN’s board could be rotated among the major operators in a manner that would reflect the diversity of viewpoints among the registries and registrars.
Having worn many hats in the ICANN eco-system-as a consultant for both registries and registrars and as a business user and IP attorney-I must say that adopting this model of direct-user control would be suicidal for ICANN. Filling the ICANN Board with registries and registrars would create at least the appearance of a cartel, allowing those opposed to ICANN’s underlying model of public/private-partnership to capture the organization. Neither capture by private interests opposed to the “public” part of the model nor a counter-attack by those who object to the “private” part of the model would be a good thing for Internet users or ICANN stakeholders.
Having invested over 10 years of my life in ICANN’s diverse and inclusive public/private partnership model, I speak from first-hand experience that ICANN is far from perfect as an organization. I’ve often feared that ICANN is heading in the wrong direction and I’ve never hesitated to say so. But despite these shortcomings, the various stakeholders I work with in the seemingly byzantine “ICANN process” remain as committed as ever to the principles set forth in NTIA’s 1998 White Paper as the foundations of Internet governance. The staying-power of this shared belief in a common set of principles among all stakeholders reaffirms my faith in the public/private partnership-whatever other changes need to be made.
Lenard and White are right about one thing: We do need a new model for ensuring ICANN’s accountability after the expiration of ICANN’s current relationship with the U.S. Government. But the model they suggest isn’t it—as Steve Delbianco has pointed out.
Former Washington State Governor Gary Locke will likely face some grilling questions at his confirmation hearing tomorrow in the Senate. But will he face any questions about the future of the Internet?
Senators will likely grandstand over the census, the bailout, and the AIG bonuses. The future of Internet governance, however, will surely be sacrificed at the altar of politics. But as my colleague Mark Blafkin writes in his blog post, Al Gore may have invented the Internet, but the next Secretary will have a large role in determining its future:
As part of the Joint Project Agreement (JPA), the Department of Commerce is set to sever its agreement to backstop the Internet Corporation for Assigned Names and Numbers (ICANN) at the end of the year. While the Department of Commerce plays no role in the day-to-day management of the Internet, it has played an important role in both holding ICANN accountable for its promises regarding private sector-leadership, and protecting ICANN from institutional capture. We should be thinking about asking these questions:
- Before the U.S. Government gives up oversight of ICANN, how do you believe the security of the core infrastructure of the Internet can be protected? For example, should NTIA agree to ICANN’s plan to take over all security management for the Internet root zone?
- How will ICANN’s accountability be ensured in the absence of Department of Commerce oversight – especially accountability to the private sector stakeholders?
- If ICANN is fully privatized, what can be done to protect ICANN from capture by foreign governments or the United Nations, which has asserted its own right to manage “Critical Internet Resources” – not the private sector?
These questions are of interest to many in the Internet governance community, if not Commerce Committee.
ICANN has just released a second draft of its Applicant Guidebook, which would guide the creation of new generic topmore generic top-level domains (gTLDs) such as .BLOG, .NYC or .BMW. As ICANN itself declared (PDF), “New gTLDs will bring about the biggest change in the Internet since its inception nearly 40 years ago.” PFF Adjunct Fellow Michael Palage and former ICANN Board member addressed the key problems with ICANN’s original proposal in his paper ICANN’s “Go/ No-Go” Decision Concerning New gTLDs (PDF & embedded below), released earlier this week.
ICANN deserves credit for its detailed analysis of the many comments on the original draft which Mike summarized back in December. ICANN also deserved credit for addressing two strong concerns of the global Internet community in response to the first draft:
- ICANN has removed its proposed 5% global domain name tax on all registry services, something Mike explains in greater detail in his “Go/No-Go” paper.
- ICANN has commissioned a badly-needed economic study on the dynamics of the domain name system “in broad.” But such a study must address how the fees ICANN collects from specific user communities relate to the actual costs of the services ICANN provides. The study should also consider why gTLDs should continue to provide such a disproportionate percentage of ICANN’s funding—currently 90%—given increasing competition between gTLDs and ccTLDs (e.g., the increasing use of .CN in China instead of .COM).
These concerns are part of a broader debate: Will ICANN abide by its mandate to justify its fees based on recovering the costs of services associated with those fees, or will ICANN be free to continue “leveraging its monopoly over an essential facility of the Internet (i.e., recommending additions to the Internet’s Root A Server) to charge whatever fees it wants?” If, as Mike has discussed, ICANN walks away from its existing contractual relationship with the Department of Commerce and claims “fee simple absolute” ownership of the domain name system, who will enforce such a cost-recovery mandate?
But ICANN simply “kicked the can down the road on the biggest concern”: how to minimize abusive domain name registrations (e.g., cybersquatting, typosquatting, phishing, etc.) and reduce their impact on consumers. Continue reading →
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