The ICANN Board’s Important Test of Independence: .Amazon
One of the main concerns I had during the IANA transition was the extent to which the newly independent organization would be able to behave impartially, implementing its own policies and bylaws in an objective and non-discriminatory manner, and not be unduly influenced by specific “stakeholders”. Chief among my concerns at the time was the extent to which an independent ICANN would be able to resist the influence of governments: when a powerful government leaned on ICANN’s board, would it be able to adhere to its own policies and follow the process the larger multistakeholder community put in place?
It seems my concern was not unfounded. Amazon, Inc. has been in a long running struggle with the countries of the Amazonian Basin in South America over the use of the generic top-level domain (gTLD) .amazon. In 2014, the ICANN board (which was still nominally under the control of the US’s NTIA) uncritically accepted the nonbinding advice of the Government Advisory Committee (“GAC”) and denied Amazon Inc.’s application for .amazon. In 2017, an Independent Review Process panel reversed the board decision, because
[the board] failed in its duty to explain and give adequate reasons for its decision, beyond merely citing to its reliance on the GAC advice and the presumption, albeit a strong presumption, that it was based on valid and legitimate public policy concerns.
Accordingly the board was directed to reconsider the .amazon petition and
make an objective and independent judgment regarding whether there are, in fact, well-founded, merits-based public policy reasons for denying Amazon’s applications.
In the two years since that decision, a number of proposals were discussed between Amazon Inc. and the Amazonian countries as they sought to reach a mutually agreeable resolution to the dispute, none of which were successful. In March of this year, the board acknowledged the failed negotiations and announced that the parties had four more weeks to try again and if no agreement were reached in that time, permitted Amazon Inc. to submit a proposal that would handle the Amazonian countries’ cultural protection concerns.
Predictably, that time elapsed and Amazon, Inc. submitted its proposal, which includes a public interest commitment that would allow the Amazonian countries access to certain second level domains under .amazon for cultural and noncommercial use. For example, Brazil could use a domain such as http://www.br.amazon to showcase the culturally relevant features of the portion of the Amazonian river that flows through its borders.
Prime facie, this seems like a reasonable way to ensure that the cultural interests of those living in the Amazonian region are adequately protected. Moreover, in its first stated objection to Amazon, Inc. having control of the gTLD, the GAC indicated that this was its concern:
[g]ranting exclusive rights to this specific gTLD to a private company would prevent the use of this domain for purposes of public interest related to the protection, promotion and awareness raising on issues related to the Amazon biome. It would also hinder the possibility of use of this domain to congregate web pages related to the population inhabiting that geographical region.
Yet Amazon, Inc.’s proposal to protect just these interests was rejected by the Amazonian countries’ governments. The counteroffer from those governments was that they be permitted to co-own and administer the gTLD, that their governance interest be constituted in a steering committee on which Amazon, Inc. be given only a 1/9th vote, that they be permitted a much broader use of the gTLD generally and, judging by the conspicuous lack of language limiting use to noncommercial purposes, that they have the ability to use the gTLD for commercial purposes.
This last point certainly must be a nonstarter. Amazon, Inc.’s use of .amazon is naturally going to be commercial in nature. If eight other “co-owners” were permitted a backdoor to using the ‘.amazon’ name in commerce, trademark dilution seems like a predictable, if not inevitable, result. Moreover, the entire point of allowing brand gTLDs is to help responsible brand managers ensure that consumers are receiving the goods and services they expect on the Internet. Commercial use by the Amazonian countries could easily lead to a situation where merchants selling goods of unknown quality are able to mislead consumers by free riding on Amazon, Inc.’s name recognition.
This is a big moment for Internet governance
Theoretically, the ICANN board could decide this matter as early as this week — but apparently it has opted to treat this meeting as merely an opportunity for more discussion. That the board would consider not following through on its statement in March that it would finally put this issue to rest is not an auspicious sign that the board intends to take its independence seriously.
An independent ICANN must be able to stand up to powerful special interests when it comes to following its own rules and bylaws. This is the very concern that most troubled me before the NTIA cut the organization loose. Introducing more delay suggests that the board lacks the courage of its convictions. The Amazonian countries may end up irritated with the ICANN board, but ICANN is either an independent organization or its not.
Amazon, Inc. followed the prescribed procedures from the beginning; there is simply no good reason to draw out this process any further. The real fear here, I suspect, is that the board knows that this is a straightforward trademark case and is holding out hope that the Amazonian countries will make the necessary concessions that will satisfy Amazon, Inc. After seven years of this process, somehow I suspect that this is not likely and the board simply needs to make a decision on the proposals as submitted.
The truth is that these countries never even applied for use of the gTLD in the first place; they only became interested in the use of the domain once Amazon, Inc. expressed interest. All along, these countries maintained that they merely wanted to protect the cultural heritage of the region — surely a fine goal. Yet, when pressed to the edge of the timeline on the process, they produce a proposal that would theoretically permit them to operate commercial domains.
This is a test for ICANN’s board. If it doesn’t want to risk offending powerful parties, it shouldn’t open up the DNS to gTLDs because, inevitably, there will exist aggrieved parties that cannot be satisfied. Amazon, Inc. has submitted a solid proposal that allows it to protect both its own valid trademark interests in its brand as well as the cultural interests of the Amazonian countries. The board should vote on the proposal this week and stop delaying this process any further.