By Michael Palage & Berin Szoka, The Progress & Freedom Foundation
Over the next month, the ICANN Board will consider its options for ensuring that some framework is in place to ensure ICANN’s accountability to the global Internet community after the approaching expiration of its Memorandum of Understanding and Joint Project Agreement (MOU/JPA) with the U.S. Department of Commerce. We analyze these options in our new paper, “Choosing the Right Path to a Permanent Accountability Framework for ICANN.”
We urge the ICANN Board to allow the time necessary for the development of a permanent accountability framework in consultation with the global Internet community, as required by ICANN’s Bylaws. The authors caution the ICANN Board against rubber-stamping a recent proposal to essentially make the MoU/JPA a permanent instrument as inadequate to ensure ICANN’s long-term accountability. The alternative, simply ending ICANN’s relationship with the U.S. Government, would raise serious legal questions concerning ICANN’s ability to collect fees from registrars and registries and the transfer of property rights underlying the domain name system.
We conclude by calling on ICANN’s new CEO Rod Beckstrom to exercise the kind of leadership he advocated in his 2005 book, The Starfish and the Spider: The Unstoppable Power of Leaderless Organizations, which explains the advantages of decentralized managerial “nervous systems” (“starfish”) over top-down hierarchies (“spiders”):
Instead of focusing on ‘spider’-esque permanent instruments with a single government, Beckstrom and the ICANN Board should focus on more ‘starfish’-like solutions that both continue the USG’s stewardship role and involve more governments that want to participate in the unique private-public partnership known as ICANN—without compromising ICANN’s guiding principles and commitment to private sector leadership. Only this outcome will ensure the long-term viability of ICANN as a global trustee of the Internet’s unique identifiers.
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TLF readers are undoubtedly familiar with the concept of regulatory capture. It’s a form of government failure, when a regulatory agency becomes overly influenced by the special interests of those (often large companies) it oversees. Over at the NetChoice blog, my colleague Steve DelBianco talks about a different form of capture that’s equally bad–government capture of private sector management of the Internet’s addressing system. He asserts:
Before the US Government abdicates its oversight of the Internet Corporation for Assigned Names and Numbers (ICANN) it should take a long, hard look at the mounting efforts by world governments to assume greater power over the Internet’s addressing system. If those efforts meet no further resistance, the once-theoretical threat of “capture” could become a reality.
So what? In place of U.S. oversight, there are those that wish to create an international government bureaucracy to run ICANN:
In place of U.S. Government management, the [European] Commission recommends the creation of a multi-governmental tribunal with authority over ICANN. The European Commission posits that this new bureaucratic structure would not involve itself in “day-to-day” activities, but the distinction between “day-to-day” and other activities is utterly meaningless from a policy standpoint. Also, given the activism of the countries involved in such an effort, it would be ludicrous to expect such an entity to use its newfound power sparingly.
Steve’s post has a lot of background and explains things in detail, but I’ll share his ultimate conclusion: our Commerce Dept. should be working with ICANN to retain the protective aspects of the JPA while ICANN develops permanent mechanisms to prevent external capture. It better hurry…it has only until the end of September to do something!
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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We often talk about the problem of having all 50 states impose different regulatory requirements on the Internet, with the most restrictive standard effectively applying to all Internet actors.Fortunately, in the U.S. such efforts can be stamped down either by invoking the “Dormant Commerce Clause” (DCC) in court or by passing “preemptive federal regulation.” (Unfortunately, most who complain about patchwork approaches, both in industry and the advocacy community, usually forget about the DCC and move right to federal legislation.)
But what about the 195 independent countries in the world (to say nothing of their regional/local subdivisions)? What if they each tried regulating Internet activity? Our friends at the Center for Democracy at Technology report on a scary precedent set by a Belgian court in March when it ruled that Belgian law applied to Yahoo! merely because Belgian citizens could access Yahoo! Mail. Thus, the court ruled that Yahoo! violated Belgian law when the company refused to hand over user data in response to an email from a Belgian prosecutor. CDT rightly applauds Yahoo! for insisting that the Belgians “follow established diplomatic and legal processes in order to gain access to user information.” But as the post notes, the really scary prospect is that of one country asserting authority over every site or service on the Internet that can be accessed in their country.
If this precedent stands, it’s likely to cause, at the very least, many companies to limit access to their sites or services by persons from countries with burdensome regulatory approaches. Even if those foreign laws are well-intentioned and laudable—such as efforts to punish fraud (as in the Belgian case) or to crack down on, say, child porn or protect user privacy)—the result could be to balkanize Internet services. This would be especially unfortunate, given the incredible importance of services that might previously have seemed “un-serious” like Twitter or Facebook as “technologies of freedom.” CDT notes the danger to Internet freedom:
To understand how problematic this ruling is, we need only imagine how the governments of China, Iran, Vietnam or other repressive regime of your choice may decide that the precedent set here is one well worth following. Such actions undermine Belgium’s moral authority since, after all, it would only be hypocritical for Western democracies to criticize such radically overbroad assertions of jurisdiction by other nations.
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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A few months ago, Adam Thierer penned The Pragmatic (Internet) Optimist’s Creed in response to calls from “Internet pessimists” for increased regulation of the Internet on many fronts. Adam‘s recent 4-way debate with pessimists Larry Lessig and Jonathan Zittrain (as well as optimist Declan McCullagh) inspired me to pen the following cheeky homage to Lessig, the Father of Internet Pessimism, whose work has launched a thousand efforts to increase government control of the Internet in the name, ironically, of “freedom:”
Our Lessig, who art in Harvard,
Hallowed be thy blog.
Thy Free Culture come.
Thy Code be done,
In Washington as it is in thy Ivory Tower.
Give us this day our Net Neutrality.
And forgive us our trespasses against Internet Openness,
As we forgive those who question thy genius,
And lead us not into trusted systems of perfect control,
But deliver us from digital rights management and architectures of identity.
For thine is the wisdom,
and the clairvoyance, and the coolness,
for ever and ever.
Amen.
Lest I become the Salman Rushdie of pragmatic Internet optimists/regulatory-skeptics, let me emphasize that my techno-blasphemy is meant in good humor. But then, that’s probably what poor Rushdie said…
Government officials have an uncanny knack for deflecting blame they deserve onto others. The latest group on the receiving end of this blame game is The Lime Group, creators of the popular file-sharing service LimeWire. Rather than the government taking responsibility for its own utter incompetence in managing its network security and internal IT protocols, it’s found a convenient scapegoat.
Salon.com reports today that the House Committee on Oversight and Government Reform is reopening its investigation of services like LimeWere that allow consumers to distribute files online. Committee chairman Edolphus Towns (D-NY) and ranking Republican Darrell E. Issa have explained their renewed interest in LimeWire and other peer-to-peer (P2P) services, as Salon explains:
They cited press reports this year and last year of computer users making available the blueprints and avionics for Marine One, the president’s helicopter; more than 150,000 tax returns; 25,800 student loan applications; 626,000 credit reports and tens of thousands of medical files with names, addresses and Social Security numbers for patients with AIDS, cancer and mental illnesses.
Congressmen Towns and Issa don’t seem to realize that LimeWire is just one of hundreds of applications that allow end-users to share files with each other. To say that we should investigate these software applications for working as they were designed just plain misses the point.
The Pentagon’s leak of Marine One plans was entirely preventable had the proper limitations been placed on individual users machines—in this case a private contractor—something a high-school student working as an IT admin could easily do. Rather than looking at LimeWire as a place to lay blame, Congress should be asking for a full-scale investigation into the DoD and other agency IT managers, as they’re the dolts who allowed LimeWire to be installed on machines laden with sensitive data. This sort of policing and investigation into government incompetence is what the Oversight and Government Reform Committee is supposed to do.
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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.
The Technology Liberation Front is the tech policy blog dedicated to keeping politicians' hands off the 'net and everything else related to technology.