National Do Not Email Registry - FTC
Federal Trade Commission
National Do Not Email Registry A Report to Congress
June 2004
Federal Trade Commission Timothy J. Muris, Chairman Mozelle W. Thompson, Commissioner Orson Swindle, Commissioner Thomas B. Leary, Commissioner Pamela Jones Harbour, Commissioner
Federal Trade Commission
Contents
Federal Trade Commission
Executive Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i
I. Introduction and Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
II. Information Gathering Processes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
III. The Email System and the Resulting Spam Problem . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3 A. How the Email System Works . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 1. The five-part dialogue . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 2. Email headers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 B. How Spammers Exploit the Email System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 1. Spammers exploit SMTP's anonymity. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 2. ISPs' response to spammers' email exploitation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11 C. Email's Lack of Authentication Enables Spammers to Exploit the Email System. . . . . . . . . . 12
IV. Possible Models for a National Do Not Email Registry and the Commission's Concerns . 13 A. Proposed Registry Models . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14 1. Registry of individual email addresses . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14 2. Registry of domains . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14 3. Registry of individual email addresses with a third-party forwarding service . . . . . . . . . . 15 B. Security/Privacy Concerns . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15 1. The high value of email addresses would likely make a Registry the National Do Spam Registry . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16 2. Existing computer security techniques are inadequate . . . . . . . . . . . . . . . . . . . . . . . . . . . 18 C. Obstacles to Enforcement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23 D. Practical/Technical Concerns . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26 1. A National Do Not Email Registry that includes individual email addresses poses practical concerns . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26 2. A National Do Not Email Registry that permits registration of domains poses additional concerns . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27 3. A National Do Not Email Registry that includes a third-party forwarding service poses additional concerns . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28 E. Impact on Spam . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31 F. Additional Concerns Regarding a Registry's Impact on Children with Email Accounts . . . . . 33
Federal Trade Commission
V. Proposed Plan and Timetable for Establishing a National Do Not Email Registry . . . . . . . 34 A. Conduct an Authentication Summit . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35 B. Convene a Federal Advisory Committee . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36 C. Mandate an Authentication System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36 D. Determine Whether an Authentication System Substantially Reduces Spam and Issue an ANPR Proposing a Registry, if Necessary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36
VI. Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37
Appendix 1: Request for Information
Appendix 2: List of Interviews
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