From prunesquallor@proproco.co.uk Mon, 1 Nov 1999 07:55:42 -0000 Date: Mon, 1 Nov 1999 07:55:42 -0000 From: John R T Brazier prunesquallor@proproco.co.uk Subject: FIPR Consultation Library Submissions This is a multi-part message in MIME format. ------=_NextPart_000_0001_01BF243E.878250A0 Content-Type: text/plain; charset="iso-8859-1" Content-Transfer-Encoding: 7bit -----BEGIN PGP SIGNED MESSAGE----- Hash: SHA1 Dear Gus, Please find attached my submission (sorry for the delay, one damn thing after another!). It's in HTML format, but generated by MS Office so it will be horrible if you look at the code. By the way, how are things? Saw you at SFS3.5, but I had to flee early and couldn't stay. Hope things are going well. All the best, John B -----Original Message----- From: owner-ukcrypto@maillist.ox.ac.uk [mailto:owner-ukcrypto@maillist.ox.ac.uk] On Behalf Of Gus Hosein Sent: 09 October 1999 11:49 To: ukcrypto@maillist.ox.ac.uk Subject: FIPR Consultation Library Submissions Call for Submissions to the Draft Electronic Commerce Bill 1999 Library by the Foundation for Information Policy Research (http://www.fipr.org) In line with previous consultation initiatives, the Foundation for Information Policy Research is offering its web site as a library of submissions to the UK Draft Electronic Commerce Bill 1999. Previous archiving has resulted in 11 responses to the IOCA review consultation paper (library can be reviewed at http://www.fipr.org/ioca/library.html); and 40 responses to the April "Building Confidence in Electronic Commerce" consultation report (available at http://www.fipr.org/library/library.html). In continuing its efforts to promote openness and discourse in developing policies that may affect the landscape for electronic commerce, and technology policy in general, FIPR welcomes the opportunity to publish the contributions of individuals, organisations, and companies to the government consultation process. If you are interested in submitting your own response, we request that the submitted document is in ascii text or html format (but we can also accept Postscript, PDF, and MS-Word), and sent to Gus Hosein, at ecomm99@fipr.org. If you would prefer us to link to a document on your own site, just send us the URL. Relevant Links: FIPR Draft E-Commerce Bill Call for Submissions (this message): http://www.fipr.org/ecomm99/call.html FIPR Draft E-Commerce Bill Library: http://www.fipr.org/ecomm99/library.html Analysis of the (draft) Electronic Communications Bill 1999 -- A summary of opinions from UKCrypto and elsewhere, by Richard Clayton: http://www.fipr.org/ecomm99/index.html gus. ~~~~~~~~~~~~~~~~~~~~~~~~~~~ PGP ElGamal 2048/1024-bit key ID: 0x35502083 PGP RSA 2048-bit key ID: 0x6019F689 ~~~~~~~~~~~~~~~~~~~~~~~~~~~ Gus Hosein Tutorial Fellow Department of Information Systems The London School of Economics and Political Science Houghton Street, London WC2A 2AE ~~~~~~~~~~~~~~~~~~~~~~~~~~~ -----BEGIN PGP SIGNATURE----- Version: PGP Personal Edition 6.0.2 iQA/AwUBOB1HfTYZ46XY1JH9EQKH+wCgiu8vUNEjv8FXRyRGxJ6J1byQwwsAoLCP FrZGzZz37hYC2oCG2Px0k69c =SROJ -----END PGP SIGNATURE----- ------=_NextPart_000_0001_01BF243E.878250A0 Content-Type: text/html; name="Electronic Communications Bill.htm" Content-Transfer-Encoding: quoted-printable Content-Disposition: attachment; filename="Electronic Communications Bill.htm"
RESPONSE TO THE =
DRAFT
LEGISLATION
=91ELECTRONIC =
COMMUNICATIONS
BILL=92
Date:=A0=A0=A0=A0=A0=A0=A0=A0 7 October =
1999
Version:=A0=A0 1.0
John R T =
Brazier
Professional =
Projects Co Ltd
19 Barttelot =
Rd
Horsham
West =
Sussex
RH12 =
1DQ
Table of =
Contents
Summary.................................................................=
.........................................................................=
................................ 3
Introduction.................................................................=
.........................................................................=
..................... 4
Acknowledgements.................................................................=
.........................................................................=
...... 4
1.=A0=A0=A0=A0=A0=A0=A0=A0=A0 Process =
Overview.................................................................=
...................................................................... =
5
2.=A0=A0=A0=A0=A0=A0=A0=A0=A0 The =
Registration of Approved Suppliers
and Their Regulation................................ 5
a)=A0=A0=A0=A0=A0=A0 =
There is not a
need for this legislation (at present).......................................................... =
5
b)=A0=A0=A0=A0=A0=A0 =
The voluntary
scheme will not be used.................................................................=
..................... 5
c)=A0=A0=A0=A0=A0=A0 =
The powers taken
are too extensive and ill-defined......................................................... =
5
d)=A0=A0=A0=A0=A0=A0 =
Recommendations.................................................................=
..................................................................... =
5
3.=A0=A0=A0=A0=A0=A0=A0=A0=A0 =
Facilitation of Electronic Commerce.................................................................=
........................ 5
a)=A0=A0=A0=A0=A0=A0 =
Electronic
signatures should be identical to normal written
=A0=A0=A0=A0=A0=A0=A0=A0=A0=A0 signatures
in law.................................................................=
...................................................................... =
6
b)=A0=A0=A0=A0=A0=A0 =
The facilitation
of electronic documents should be more radical...................... 6
c)=A0=A0=A0=A0=A0=A0 =
Recommendations.................................................................=
..................................................................... =
6
4.=A0=A0=A0=A0=A0=A0=A0=A0=A0 The =
Investigation of Protected
Electronic Data................................................................ =
6
a)=A0=A0=A0=A0=A0=A0 =
Part III is inappropriate
for the Bill.................................................................=
............................. 6
b)=A0=A0=A0=A0=A0=A0 =
There is an
attack on civil liberties within the Bill.......................................................... =
7
c)=A0=A0=A0=A0=A0=A0 =
Recommendations.................................................................=
..................................................................... =
8
5.=A0=A0=A0=A0=A0=A0=A0=A0=A0 The =
Miscellaneous and Supplemental
Provisions............................................................... =
8
6.=A0=A0=A0=A0=A0=A0=A0=A0=A0 The Effects =
of Technology.................................................................=
.................................................. 8
a)=A0=A0=A0=A0=A0=A0 =
The development
of concealment.................................................................=
.................................. 8
b)=A0=A0=A0=A0=A0=A0 =
The enhancement
of key management.................................................................=
........................ 8
c)=A0=A0=A0=A0=A0=A0 =
Perfect systems.................................................................=
.........................................................................=
. 9
d)=A0=A0=A0=A0=A0=A0 =
Conclusions.................................................................=
.........................................................................=
.......... 9
7.=A0=A0=A0=A0=A0=A0=A0=A0=A0 Other =
Ideas.................................................................=
.........................................................................=
............. 9
a)=A0=A0=A0=A0=A0=A0 =
Tax reduction
incentives.................................................................=
..................................................... 9
b)=A0=A0=A0=A0=A0=A0 =
Government use
of electronic commerce.................................................................=
................. 9
c)=A0=A0=A0=A0=A0=A0 =
Review.................................................................=
.........................................................................=
....................... 9
d)=A0=A0=A0=A0=A0=A0 =
Recommendations.................................................................=
................................................................... =
10
8.=A0=A0=A0=A0=A0=A0=A0=A0=A0 =
Conclusions.................................................................=
.........................................................................=
....... 10
This document is a response to a request for = comments to the Electronic Communications = Bill, a piece of draft legislation that is expected to appear before Parliament = in the near future. This is the latest in a series of responses that aim to = support the DTI and the Government in meeting their target to make the UK the = best place for electronic commerce in the world while meeting the needs of = law enforcement.
The document proposes the following:
=B7  = ; That Part I of the Bill should be dropped as the Government has no current intention of using it. Its powers are also = currently too wide.
=B7  = ; Part II should be simplified and strengthened, = making electronic signatures and documents identical in law as rapidly as = possible.
=B7  = ; Part III should also be removed, as it does not = belong in the Bill. After a number of issues have been dealt with the redraft = should be placed within the appropriate parts of the Police and Criminal = Evidence Act (PACE) and the Interception of Communications Act (IOCA).
=B7  = ; It is believed that developments in technology = will undermine the aims of Part III in the Bill, so reinforcing the = suggestion that it should be removed.
=B7  = ; It is suggested that Part IV may belong within = the Telecommunications Act, rather than this Bill.
=B7  = ; It is proposed that electronic commerce could be further facilitated by adjustment in the taxation regime, by leadership = of the Government in its own use of electronic commerce, and by a review in = three years of the Bill=92s function.
We would like to thank the DTI for the opportunity = of responding to the Bill.
This document is a response to the Electronic Communications Bill. It aims to assist the = Government in its aims of making the UK the world's best place to trade = electronically.
This document would not = have been possible without the help from a large number of people, especially at = FIPR and on the UKCRYPTO mail list, and we would like to take the opportunity of thanking them.
Before going into the detailed responses to the = Bill, of which there are a number, we would like to make the comment that the = process of development of the Bill has been a model of open democracy. This will = now be the third set of comments from this party going into the Bill=92s = formulation, and it is clear that the combined comments from all parties have had a significant effect on the contents of the Bill. Thus a true conversation = has been held with all interested groups, and such openness can only speak = well of our democratic systems. We earnestly hope that such openness will = continue.
These comments refer to = Part I of the Bill, Clauses 1 to 5.
The Government itself has stated that it is looking = to industry to provide self-regulation; thus powers are being taken which = are not intended to be used. It would seem better to leave such powers out of = the Bill, and legislate for them if and when they are needed =96 when it will also = be clearer what sort of powers will be required.
The scheme will be voluntary. We believe that it is = unlikely that most service providers will register, because (i) they do not need = it, (ii) it will cost money for registration and (iii) many service = providers may feel that such a license will carry a stigma, and deter customers. This = is because of the history of this Bill; some customers may believe that = Government accreditation will in practical terms be a license to leak customer data = to assorted Governmental agencies (no doubt a misapprehension, but this = view may well exist).
These reasons will reduce the likelihood of uptake = of a voluntary licensing scheme. However, this is not a call for a mandatory = scheme: the Government should support all the steps taken to allow industry self-regulation.
Because Part I is trying to cover all possible = future eventualities, the power it takes are far too wide. Thus Clause 5 = generally seems to give the Secretary of State powers to do almost anything under = this Bill for licensing purposes. (It should also be noted that Clauses 8, = 9.5 and 9.6 also seem to give Ministers generally considerable freedom of scope = under this Bill, extending the powers further.) For example, it would appear = that the Secretary of State could impose mandatory key escrow at any time under = this Bill =96 something that has been shown to be not workable by many past submissions from many groups.
This also has an effect of reducing the likelihood = of the voluntary scheme being used: how can anybody, as a service provider = seeking licensing, sign up to Clauses 2.3.b and 2.3.c, which require him or her = to meet any and all possible requirements that may come into existence in the = future?
It is recommended that Part I be removed from the = Bill, and appropriate powers taken if they are shown to be needed at some point in = the future.
These comments refer to Part II of the Bill, = Clauses 7 to 9. This Part is =96 or should be =96 the core of the Bill, in that it = intends to facilitate Electronic Commerce.
Clause 7 discusses electronic signatures in terms = of their use for =91authentication=92 and confirmation of =91integrity=92. Whilst = electronic signatures do have such uses (which are extremely valuable), there is no mention of their use as =91signatures=92.
In general, a signature is used for many things, = such as giving approval, agreement or permission by the act of signing. Or = indicating the truth of some statement, such as in the signing of a witness = declaration. Clause 7 does not actually ascribe any of these uses to electronic = signatures.
In this case, it would appear that the simplest way = to deal with the issue is to redraft Clause 7 to state that anything that = purports to be an electronic signature is, at least, identical in law to anything = that purports to be a written signature. An electronic signature may then = have extra capabilities in terms of authentication and integrity, and these could = be covered by a slight modification of Clause 7.1, to indicate that these = are an extra property of electronic signatures.
This would clarify the definition and usage of = electronic signatures in law, although we believe that the Courts already have a = very good practical idea of what an electronic signature is, and how it should = function.
Clauses 8 and 9 seem to be a method by which = Ministers will be allowed to move to electronic rather than paper documents by = statutory instrument, where those documents currently must exist and be dealt with = in paper form. The comment here is that whilst it does not have a = time-table (which although beneficial, might not have a place in legislation), = there does not seem to be any indication as to when the move will take place, if = ever.
Perhaps the Bill would have a more far-reaching = effect if it were to announce that all electronic documents were the same as paper = ones in law. It might say that the Ministers must define a format for an = electronic document where a format for a paper one exists, and might have to = provide rules for handling and recording of electronic documents where they exist for = paper ones. However, the date of enactment of this provision could be fixed in = the Bill (giving perhaps 12 months=92 grace). The onus would then be on the Ministries to drive through the required instruments as rapidly as = possible.
It is recommended that Clause 7 be clarified to = make electronic signatures identical to written ones, and the rest of this = part simplified to state that all electronic documents will be regarded in = law as equivalent to written ones within a twelve month period. The onus must = be placed on Ministries to bring in any required provisions for formatting = and handling in that time.
These comments cover Part III of the Bill, Clauses = 10 to 19. There are a large number of concerns about this section.
This Part is dealing with matters that are not = appropriate for a Bill that is meant to be about the enhancement of electronic = commerce. In fact, given some of the somewhat Draconian provisions outlined below, it = is likely to hinder the development of such commerce.
This Part should be redrafted and placed into PACE = and IOCA (which is currently under review). This is because it deals with how = evidence is obtained (either by interception or entry =96 Clause 10.1), what = evidence may be obtained (Clauses 10 and 11), what offences exist in relation to such = evidence-gathering (Clauses 12 to 14) and what safeguards there are (Clauses 15 to 18, with = Clause 19 being definitions).
These points would seem better dealt with in PACE = and IOCA, both from general principles and because they can be better integrated = into the legislation that way.
We believe that the Bill does form an attack on = civil liberties, in that it contravenes the European Convention on Human = Rights. Thus arrests and prosecutions carried out under Part III will lead to cases = coming before the European court: not something that is likely to enhance the = use of electronic commerce within the UK. The following are a number of = concerns (some of which are more clearly against the ECHR than others):
=B7  = ; Clauses 10 and 12 may well be = self-incriminatory. Under Clauses 10.1.c and 10.1.d, encrypted material may well come into police possession. Divulgence of the key by operation of a Clause 10 notice may = lead to material being decrypted that is the sole basis of a case against the = person who owned the key; this may have nothing to do with the reason the = police came into possession of the encrypted material. The operation of Clause 12 = removes the protection against self-incrimination. There is no such provision as = in the case of fraud investigations, where a person may be compelled to give = evidence but gains immunity from the use of that evidence against him or her in = court.
=B7  = ; Clauses 10 and 12 have the effect of reversing = the onus of proof, and so are against the presumption of innocence of the = accused. Under Clause 10.2 an appropriate person only needs a belief that one has a key = to serve a notice on that person. Under Clause 12 the person must prove = they do not have a key - a logical impossibility. All the prosecution has to = show in court is that a Clause 10 notice has been served, which is a mere matter = of form. Under clause 12, the simple serving of the notice criminalizes = someone who does not have a key. It would appear that Clause 13.8 is similar: a = third party needs to prove they do not know something; again impossible, and = reverses the burden of proof.
=B7  = ; Clause 13 would appear to provide scope for a = large number of future problems. The =91tipping off=92 offence as defined has = no latitude in it at all. We can easily envisage the following four problems (representative of many possible cases), all of which will generate long drawn-out appeals that will not promote the cause of electronic = commerce:
=A7 As written, it would appear that the Clause = could force a person to commit perjury in court if evidence about information = leakage (as in the divulgence of a key) was pertinent to another case.
=A7 The Clause does not even allow a person to query = or challenge a Clause 10 notice, as the challenge would have to go to a = third party (and involve =91tipping off=92). This is likely to have unforeseen consequences, especially where a Clause 10 notice was, in fact, either fraudulent or served wrongfully.
=A7 When allied with Clauses 10 and 12, Clause 13 = could force Companies to dishonour commercial contracts involving = confidentiality, without even being able to warn their contractual partners about = information breaches.
=A7 The three Clauses could even directly contradict = other Government legislation: it is easy to envisage a situation where a Civil = Servant who had signed the Official Secrets Act being required to give up a key = under Clause 10 (and thus would breach one of the two laws). Under Clause 13, = this Civil Servant could not even go to his or her manager =96 or even = Minister =96 for help and advice.
Clause 13 needs to be rewritten, and = properly formed in relation to Clauses 10 and 12.
=B7  = ; The safeguards are too weak. In fact, if the = Clause 10 notice has not been signed by the Secretary of State (Clause 18.1.a) = then there would appear to be no safeguards at all. The tribunal provisions do not = seem to be in force for Clause 10 notices served under 10.1.c and 10.1.d, and it = is unclear how a complaint could be made against a notice signed by a judge = (given the provisions in Clause 13). In addition, Clause 16 appears to remove = many of the safeguards, in that the Secretary of State may do anything he or she = wishes with the code of practice, and Clause 16.10 seems to undermine any = redress even against a flagrant contravention of any such code of practice.
=B7  = ; Clause 11 should have much higher prominence. It = states that decrypted text may be provided instead of a key, where a Clause 10 = notice provides for this. In the real world, we believe that Clause 10 notices = will never provide for this, and will always insist on the key. This will = mean that innocent parties (see below) are likely to be placed in a position of considerable expense, once the notice has expired, in replacing all = their compromised keys. Section 11 should always allow for the provision of = text rather than the key.
=B7  = ; It seems to have been missed that most of the = Clause 10 notices will be served on the innocent (especially if the operation of = public key cryptography is considered). Yet the whole thrust of Part III is to = deal with all recipients of Clause 10 notices effectively as criminals. This = does not seem a way to enhance the use of electronic commerce within the = UK.
It is recommended that this entire part be dropped = from the Bill. After a considerable piece of redrafting, it should be used to = make any required modifications to PACE and IOCA.
We are not telecommunications providers, so have = little to say on this section except to observe that (1) the powers given to the = Director General seem to be quite extensive, and (2) perhaps this Part would be = more suitable as a modification to the Telecommunications Act.
One minor point is that the Bill may be helped by = having one location for definitions (i.e. there is no need for Clauses 19 and 23 to = be separate). Of course, this is subject to the considerable modifications proposed to the Bill elsewhere in this document.
An extra comment should be made on the effects of technology. A number of the provisions in the Bill (especially Part III) = are liable to fail because of the considerable and continuing technological developments. The provisions are likely to foment this rapid = technological development to ensure that users of electronic commerce will not be open = to the severe provisions of Clause 14.
Part III of the Bill will give considerable impetus = to concealment technologies such as steganography (for both storage and transmission). This technology effectively hides the encrypted = information so that it is not obvious; in fact, with the correct technologies it can be = hidden to be effectively undetectable. One cannot serve a Clause 10 notice if = one cannot detect the protected information.
Improved Key management technologies are likely to = be incorporated into software and hardware products:
=A7 All systems will move to the use of session = keys, which are immediately destroyed on message reception. This means that the = session key will not be recoverable.
=A7 In public-key infrastructures, systems will = appear that immediately and automatically make public alerts on the compromise of = the person=92s private key (as envisaged in Clause 13.3.a).
=A7 In real-time systems, the use of key negotiation = (as in Diffie-Hellman) of the temporary key will come into greater use. Again, = this will mean that no key is ever recoverable.
=A7 Important keys will be part of threshold schemes = (where perhaps three out of five people must come together for the key to be divulged). This will undermine the point of the Clause 13 notice, as = people will be =91tipped off=92 to get the key. It should also be noted that a = person might cheat under such a scheme (deliver the wrong information so the = key is not, in fact, recovered), yet it would be impossible to show who cheated = or be able to prove conspiracy.
Lastly, the use of one time pads may well become = more common, as they have two strengths: (1) they are theoretically = unbreakable, and (2) any text may be demonstrated as being produced by the ciphertext = (unless one can prove what was the original one time pad). In a legal sense, = they allow doubt to be thrown on any given decryption of any piece of =91protected information=92. Whilst their use will always be limited (even with the development of technologies like quantum cryptography, which allows for = one time pad generation without the parties meeting), they are the ultimate = defence against recovery and decryption.
All these technologies will have the effect of = reducing the value of the Part III provisions, and underline the fact that this Part = needs to be reconsidered (as a part of other Acts). In addition, it shows that = the law enforcement agencies need to rethink their strategies and accept = that the =91magic bullet=92 of covert interception may not be as readily = available any more, whatever legislation is passed. They need to tackle the problem of sophisticated criminals in depth, using multiple techniques and new ways = of approach.
The purpose of this Bill is to enhance electronic = commerce, as stated by the Government. Aside from the suggestions already made, = there are offered here a couple of suggestions that we believe would help to = develop such commerce:
If the Government were to allow, for a start-up = period of perhaps five years, complete tax relief on the profits from all new = electronic transactions, there would be an extraordinarily large uptake in = electronic commerce usage. The deflationary effect of such a policy would also be beneficial to the economy as a whole.
This would be a distortion on the economy, but all = tax regimes distort their economies to a greater or lesser extent. Tax = adjustment is perhaps the most effective way Governments can provide incentives to corporations; such a liberal policy would bring electronic = commerce-based businesses to the UK in droves, and would probably pay for itself in the expansion of the economy and the derived increase in other taxes.
The Government has now an =91E-Minister=92 and = there is also an =91E-Envoy=92 becoming active next year (although the delay in the = appointment and uptake of this post is disappointing). However, the Government should be = much more proactive in this area, and actually take leadership in everything = it can do itself.
It should be seen to be exploiting electronic = commerce. Government departments should preferentially use electronic commerce in purchasing. All government business should be moved to electronic = systems within a period of twelve months. In 1998 the Government had a gross = disposable income of almost exactly =A3146 billion (www.statist= ics.gov/stats/ukinfigs/natac.htm): how it uses this income can have huge effects on the uptake of = electronic commerce in the UK.
If this Bill were to be pruned of the inappropriate = sections (and perhaps effectively become just Part II, in an improved form), then = it would be worthwhile for a provision to be added to the Bill for a review = after three years. This would see if further incentives could be provided for = the development of electronic commerce in the UK and would also allow = Parliament to gauge what the effects of the Bill had been.
The recommendations may be stated that the = Government should allow tax incentives for all electronic commerce transactions, use = electronic commerce to the maximum effect itself and allow for a review of the Bill = in Parliament.
A number of recommendations have been made with = regard to the Bill. In essence, they attempt to remove inappropriate sections, and clarify and strengthen those provisions that will support electronic = commerce. Some other ideas have also been presented on how to support electronic commerce, and we look forward to the development of the legislation with interest.