[Federal Register Volume 88, Number 13 (Friday, January 20, 2023)]
[Notices]
[Pages 3714-3720]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2023-01088]


-----------------------------------------------------------------------

DEPARTMENT OF COMMERCE

National Telecommunications and Information Administration

[Docket No. 230103-0001]
RIN 0660-XC052


Privacy, Equity, and Civil Rights Request for Comment

AGENCY: National Telecommunications and Information Administration, 
Department of Commerce.

ACTION: Notice, request for comment.

-----------------------------------------------------------------------

SUMMARY: The National Telecommunications and Information Administration 
(NTIA) requests comments addressing issues at the intersection of 
privacy, equity, and civil rights. The comments, along with information 
gathered through the three listening sessions that NTIA held on this 
topic, will inform a report on whether and how commercial data 
practices can lead to disparate impacts and outcomes for marginalized 
or disadvantaged communities.

DATES: Written comments must be received on or before 11:59 p.m. 
Eastern Time on March 6, 2023.

ADDRESSES: All electronic public comments on this action, identified by

[[Page 3715]]

Regulations.gov docket number NTIA-2023-0001, may be submitted through 
the Federal e-Rulemaking Portal at www.regulations.gov. The docket 
established for this rulemaking can be found at www.regulations.gov, 
NTIA-2023-0001. Click the ``Comment Now!'' icon, complete the required 
fields, and enter or attach your comments. Responders should include a 
page number on each page of their submissions. Please do not include in 
your comments information of a confidential nature, such as sensitive 
personal information or proprietary information. All comments received 
are a part of the public record and will generally be posted to 
Regulations.gov without change. All personal identifying information 
(e.g., name, address) voluntarily submitted by the commenter may be 
publicly accessible. For more detailed instructions about submitting 
comments, see the ``Instructions for Commenters'' section at the end of 
this Notice.

FOR FURTHER INFORMATION CONTACT: Please direct questions regarding this 
Notice to [email protected] with ``Privacy, Equity, and Civil Rights 
Request for Comment'' in the subject line, or if by mail, addressed to 
Travis Hall, National Telecommunications and Information 
Administration, U.S. Department of Commerce, 1401 Constitution Avenue 
NW, Room 4725, Washington, DC 20230; telephone: (202) 482-3522. Please 
direct media inquiries to NTIA's Office of Public Affairs, telephone: 
(202) 482-7002; email: [email protected].

SUPPLEMENTARY INFORMATION: Background and Authority: The National 
Telecommunications and Information Administration (NTIA) is the 
President's principal advisor on telecommunications and information 
policy issues. In this role, NTIA studies and develops policy on the 
impact of technology and the internet on privacy. This includes 
examining the extent to which modern data practices and business models 
are adequately addressed by the current U.S. privacy protection 
framework. For example, NTIA helped draft the 2012 ``Consumer Privacy 
Bill of Rights'' \1\ and the 2014 ``Big Data: Seizing Opportunities, 
Preserving Values'' \2\ report, and led the 2018 Consumer Privacy 
Request for Comment.\3\ Recently, NTIA filed comments in response to 
the Federal Trade Commission's (FTC) Advance Notice of Proposed 
Rulemaking on Commercial Surveillance and Data Security, supporting the 
rulemaking and recommending that the FTC adopt strong, comprehensive 
privacy rules, consider heightened privacy protections for marginalized 
communities, and address discriminatory algorithmic decision-making.\4\
---------------------------------------------------------------------------

    \1\ White House, Consumer Data Privacy in a Networked World: A 
Framework for Protecting Privacy and Promoting Innovation in the 
Global Economy, (Feb. 2012), https://obamawhitehouse.archives.gov/sites/default/files/privacy-final.pdf.
    \2\ White House, Big Data: Seizing Opportunities, Preserving 
Values, (May 2014), https://obamawhitehouse.archives.gov/sites/default/files/docs/big_data_privacy_report_may_1_2014.pdf.
    \3\ National Telecommunications & Information Administration, 
Request for Comments on Developing the Administration's Approach to 
Consumer Privacy (Sept. 25, 2018), https://www.ntia.doc.gov/federal-register-notice/2018/request-comments-developing-administration-s-approach-consumer-privacy.
    \4\ National Telecommunications and Information Administration 
ANPR Comment (Nov. 21, 2022), https://www.ntia.doc.gov/files/ntia/publications/ftc_commercial_surveillance_anpr_ntia_comment_final.pdf.
    The FTC recently solicited comments on the possibility of 
promulgating rules to govern commercial surveillance and data 
security, partly in response to President Biden's request that the 
agency initiate rulemakings in areas such as ``unfair data 
collection and surveillance practices that may damage competition, 
consumer autonomy, and consumer privacy.'' Promoting Competition in 
the American Economy, Exec. Order No. 14036, 86 FR 36987, Section 
(r)(iii) (July 9, 2021), https://www.govinfo.gov/content/pkg/FR-2021-07-14/pdf/2021-15069.pdf.
---------------------------------------------------------------------------

    NTIA has long acknowledged that the contexts of information 
collection, disclosure, and use are key considerations for privacy 
policy, and that privacy cannot be reduced to a strict divide of 
exposure contrasted with secrecy. A vital component of contextual 
analysis, and one that requires greater attention by policy-makers, is 
the relative social and economic status of the individual or community 
subject to commercial data flows. Scholarship has shown that 
marginalized or underserved communities are especially at risk of 
privacy violations.\5\ This work has demonstrated that not only are 
these communities often materially disadvantaged regarding to the 
effort required to adequately manage privacy controls, they are often 
at increased risk of privacy losses or data misuse.\6\ Given the real 
and promised benefits of the digital economy, it is vital that access 
to digital services not be predicated on increased risk to marginalized 
and disadvantaged communities, or practices that may undermine trust 
and therefore adoption.
---------------------------------------------------------------------------

    \5\ Danielle Keats-Citron, Cyber Civil Rights, 89 B.U.L. Rev. 61 
(2008); Khiara Bridges, The Poverty of Privacy Rights, Stanford 
University Press (2017); Mary Madden et al., Privacy, Poverty, and 
Big Data: A Matrix Of Vulnerabilities For Poor Americans, 95 Wash. 
U.L. Rev. 53 (2017); Alvaro Bedoya, Privacy As Civil Right, 50 
N.M.L. Rev. 301 (2020); Scott Skinner-Thompson, Privacy At The 
Margins, Cambridge University Press (2020); Sara Sternberg Greene, 
Stealing (Identity) From The Poor, 106 Minn. L. Rev. 59 (2021); 
Michele Gilman, Feminism, Privacy, And Law In Cyberspace, in Oxford 
Handbook of Feminism and Law in the United States, (Deborah Brake, 
Martha Chamallas, & Verna Williams eds., 2021); Anita Allen, 
Dismantling the ``Black Opticon'': Privacy, Race, Equity, and Online 
Data-Protection Reform, 131 Yale L.J.F. 907, 910 (Feb. 20, 2022) 
(``In pursuit of equitable data privacy, American lawmakers should 
focus on the experiences of marginalized populations no less than 
privileged populations'').
    \6\ Id. See, e.g., Laura Moy, A Taxonomy of Policing 
Technology's Racial Inequity Problems, 2021 U. Ill. L. Rev. 139, 
185-191 (illustrating how the use of automated employment recruiting 
tools and automated personalized learning programs for K-12 students 
can create, reify, and obscure racial inequity); Greene, supra note 
5 (citing Department of Justice and other data showing high rates of 
identity theft among low-income individuals, and discussing the 
severity of the ensuing harms for low-income people in particular); 
Danielle Citron & Daniel Solove, Privacy Harms, 102 B.U.L. Rev. 793, 
856 (2021) (``The misuse of personal data can be particularly costly 
to women, sexual and gender minorities, and non-White people given 
the prevalence of destructive stereotypes and the disproportionate 
surveillance of women and marginalized communities in their intimate 
lives.''); id. at 857 (``A key aspect of discrimination harms is the 
unequal frequency, extensiveness, and impact of privacy violations 
on marginalized people.'').
---------------------------------------------------------------------------

    The Biden Administration has highlighted a national imperative to 
promote equity and increase support for communities and individuals who 
have been ``historically underserved, marginalized, and adversely 
affected by persistent poverty and inequality.'' \7\ As stated in 
Executive Order 14035 on Advancing Racial Equity and Support for 
Underserved Communities Through the Federal Government: ``[e]ntrenched 
disparities in our laws and public policies, and in our public and 
private institutions, have often denied . . . equal opportunity to 
individuals and communities.'' \8\ These observations and the vital 
need to address them are deeply relevant to modern data collection and 
processing. In October 2022, the White House Office of Science and 
Technology Policy released the Blueprint for an AI Bill of Rights 
identifying ``five principles that should guide the design, use, and 
deployment of automated systems to protect the American public in the 
age of artificial intelligence,'' including ``Algorithmic 
Discrimination Protections'' and ``Data Privacy.'' \9\ The 
Administration's Principles for Enhancing Competition and Tech Platform 
Accountability document highlights the imperative to

[[Page 3716]]

``stop discriminatory algorithmic decision-making'' and ``restrict 
excessive data collection and targeted advertising to young people,'' 
priorities President Biden also emphasized in his 2022 State of the 
Union address.\10\ President Biden requested that the Federal Trade 
Commission consider exploring new avenues of protecting the information 
of consumers seeking reproductive care, and that the Department of 
Health and Human Services examine how to better protect sensitive 
information related to reproductive care.\11\ This Request for Comment 
is intended to examine the persistence of discriminatory disparities in 
the digital economy, and the extent to which the collection, 
processing, sharing, and use of data can lead to higher risks for some 
communities, exacerbate structural inequities, or contribute to their 
erosion.
---------------------------------------------------------------------------

    \7\ Advancing Racial Equity and Support for Underserved 
Communities Through the Federal Government, Exec. Order No. 13985, 
86 FR 7009 (Jan. 20, 2021), https://www.govinfo.gov/content/pkg/FR-2021-01-25/pdf/2021-01753.pdf.
    \8\ Id.
    \9\ White House Office of Science and Technology Policy, 
Blueprint for an AI Bill of Rights (Oct. 2022), https://www.whitehouse.gov/wp-content/uploads/2022/10/Blueprint-for-an-AI-Bill-of-Rights.pdf.
    \10\ The White House, Readout of White House Listening Session 
on Tech Platform Accountability (Sept. 8, 2022), https://www.whitehouse.gov/briefing-room/statements-releases/2022/09/08/readout-of-white-house-listeningsession-on-tech-platform-accountability; President Joe Biden, 2022 State of The Union Address 
(Mar. 1, 2022), https://www.whitehouse.gov/state-of-the-union-2022.
    \11\ Protecting Access to Reproductive Healthcare Services, 
Exec. Order No. 14076, 87 FR 42053 (July 13, 2022), https://www.govinfo.gov/content/pkg/FR-2022-07-13/pdf/2022-15138.pdf.
---------------------------------------------------------------------------

    On December 14-16, 2021, NTIA hosted three listening sessions on 
privacy, equity, and civil rights, with each session consisting of 
keynote speakers, a panel of experts, and an opportunity for the public 
to present their views. The data gathered through this process, along 
with responses to this Request for Comment, will be used to inform a 
report on whether and how commercial data practices can lead to 
disparate impacts for marginalized or disadvantaged communities.
    The proliferation of cheap, efficient, and profitable data 
collection and processing has transformed how we identify, access, and 
obtain important life necessities and opportunities. Instead of 
perusing the local newspaper's classified section, a job seeker may now 
seek potential work opportunities through career-focused social 
networking sites,\12\ or be targeted with digital ads for specific 
opportunities. Smartphone apps have become vehicles for banking, 
dating, accessing public benefits, and obtaining medical information, 
among other key societal functions. But even as these new modes of 
engaging with the world can reduce barriers, they can also calcify old 
forms of discrimination and introduce new ones.\13\ Digital ads for 
some employment opportunities may be targeted based on real or 
perceived demographic characteristics such as age, sex, or race, and 
reach certain groups while ignoring others.\14\ Even when digital 
advertisers do not intend to use discriminatory targeting criteria, the 
datasets they use may reflect current or historic inequities and the 
algorithms they use may unintentionally replicate those biases or 
others--such as untargeted ads for certain types of jobs being 
delivered disproportionately to men or women.\15\ An app that collects 
and sells location data could reveal facts about the app user's 
movements and life that could make them vulnerable to discrimination, 
such as an LGBTQ+-specific dating app or a Muslim prayer app.\16\ These 
examples demonstrate how debates about consumer privacy necessarily 
implicate questions about civil rights as the proliferation of 
tracking, collection, and evaluation technologies enables new forms of 
profiling, redlining, and exclusion.\17\
---------------------------------------------------------------------------

    \12\ Miranda Bogen & Aaron Rieke, Help Wanted: An Examination of 
Hiring Algorithms, Equity, and Bias, Upturn, at 5 (Dec. 10, 2018), 
https://www.upturn.org/work/help-wanted/ (describing the development 
of internet job boards).
    \13\ This Request for Comment discusses related but distinct 
terms of art. ``Disparate impact'' refers to facially neutral 
practices that produce discriminatory outcomes for certain groups, 
while ``disparate treatment'' involves discriminatory intent coupled 
with a discriminatory outcome. Disparate outcomes may or may not 
constitute discrimination on the basis of certain attributes. Civil 
rights laws confer protected class status on certain attributes, 
such as race, gender, sexual orientation, or national origin.
    \14\ Jeremy B. Merrill, Google Has Been Allowing Advertisers to 
Exclude Nonbinary People from Seeing Job Ads, The Markup (Feb. 11, 
2021), https://themarkup.org/google-the-giant/2021/02/11/google-has-been-allowing-advertisers-to-exclude-nonbinary-people-from-seeing-job-ads; Moy, supra note 6, at 186-88; Julia Angwin & Terry Parris, 
Jr., Facebook Lets Advertisers Exclude Users by Race, ProPublica 
(Oct. 28, 2016), https://www.propublica.org/article/facebook-lets-advertisers-exclude-users-by-race; Julia Angwin et al., Facebook 
(Still) Letting Housing Advertisers Exclude Users by Race, 
ProPublica (Nov. 21, 2017). https://www.propublica.org/article/facebook-advertising-discrimination-housing-race-sex-national-origin; Ava Kaufman & Ariana Tobin, Facebook Ads Can Still 
Discriminate Against Women and Older Workers, Despite a Civil Rights 
Settlement, ProPublica (Dec. 13, 2019), https://www.propublica.org/article/facebook-ads-can-still-discriminate-against-women-and-older-workers-despite-a-civil-rights-settlement; Jon Keegan, Facebook Got 
Rid of Racial Ad Categories. Or Did It?, The Markup (July 9, 2021), 
https://themarkup.org/citizen-browser/2021/07/09/facebook-got-rid-of-racial-ad-categories-or-did-it.
    \15\ Latanya Sweeny, Discrimination in Online Ad Delivery, 11 
ACM Queue 3, 10-29 (2013), https://queue.acm.org/detail.cfm?id=2460278 (finding skewed ad delivery on racial and 
gender lines of ads for employment and housing opportunities on 
Facebook, despite neutral targeting parameters); Basileal Imana et 
al., Auditing for Discrimination in Algorithms Delivering Job Ads, 
World Wide Web Conference '21 (April 2021), https://dl.acm.org/doi/pdf/10.1145/3442381.3450077 (replicating prior findings that ads for 
employment opportunities on Facebook can be delivered on a skewed 
demographic basis despite neutral targeting criteria, and 
identifying the advertiser's choice of advertising objective and 
choices made by the ad platform regarding ad delivery optimization 
as additional factors causing the skew); Jinyan Zhang, Solving the 
problem of racially discriminatory advertising on Facebook, 
Brookings Institution (Oct. 19, 2021), https://www.brookings.edu/research/solving-the-problem-of-racially-discriminatory-advertising-on-facebook/ (summarizing literature and replicating similar 
findings).
    \16\ Jon Keegan & Alfred Ng, Gay/Bi Dating App, Muslim Prayer 
Apps Sold Data on People's Location to a Controversial Data Broker, 
The Markup (Jan. 27, 2022), https://themarkup.org/privacy/2022/01/27/gay-bi-dating-app-muslim-prayer-apps-sold-data-on-peoples-location-to-a-controversial-data-broker.
    \17\ See, e.g., Federal Trade Commission, A Look at What ISPs 
Know About You: Examining the Privacy Practices of Six Major 
Internet Service Providers 47 (Oct. 21, 2021), https://www.ftc.gov/system/files/documents/reports/look-what-isps-know-about-you-examining-privacy-practices-six-major-Internet-service-providers/p195402_isp_6b_staff_report.pdf (describing how six surveyed 
internet service providers collect and use race and ethnicity data; 
detailing ensuing concerns about potentially discriminatory 
practices; and situating those concerns in previous digital 
redlining tactics).
---------------------------------------------------------------------------

    Commenters during NTIA's listening sessions raised concerns that 
data collection and processing can disproportionately harm marginalized 
and historically excluded communities, such as disabled people; \18\ 
Native or Indigenous people; people of color, including but not limited 
to Black people, Asian-Americans and Pacific Islanders, and Hispanic or 
Latinx people; LGBTQ people; women; victims of domestic violence 
(including intimate partner violence, abuse by a caretaker, and other 
forms of domestic abuse); religious minorities; victims of online 
harassment; formerly incarcerated persons; immigrants and undocumented 
people; people whose primary language is not among the most commonly 
spoken languages in the United States; children and adolescents; 
students; low-income people; people who receive public benefits; 
unhoused people; sex workers, hourly workers, ``gig'' or contract 
workers, and other kinds of workers; and other communities or 
individuals who are vulnerable to exploitation, or have historically 
been subjected to discrimination.\19\
---------------------------------------------------------------------------

    \18\ We refer both to ``people with disabilities'' and 
``disabled people'' throughout this document to reflect the usage of 
both person-first and identity-first language. See generally, 
National Center on Disability and Journalism, Disability Language 
Style Guide, ``Disabled people/people with disabilities,'' https://ncdj.org/style-guide/#disabledpeople; Research & Training Center on 
Independent Living, Acceptable Language Options: A Partial Glossary 
of Disability Terms, https://rtcil.org/guidelines#Acceptable 
(describing and distinguishing person-first and identity-first 
language).
    \19\ In discussing the disparate impact of privacy invasions on 
marginalized communities, we are also conscious of this pertinent 
reminder from Federal Trade Commissioner Alvaro Bedoya: ``When we 
talk about the disparate impact of surveillance, we have to be 
careful. We must not reinforce the idea that the targets of 
surveillance are helpless victims. Often, in fact, the ``other'' is 
being watched precisely because they are fighting back. And 
sometimes, they win--and that watching fails and is utterly 
useless.'' Alvaro Bedoya, Privacy As Civil Right, 50 N.M.L. Rev. 
301, 309 (2020).

---------------------------------------------------------------------------

[[Page 3717]]

    The listening sessions examined many different components of how 
data collection and processing can disproportionately harm marginalized 
or underserved communities. Certain data practices have the potential 
to replicate and exacerbate existing forms of discrimination. For 
example, loose oversight of digital marketing policies allowed payday 
lenders and associated lead generation companies to target low-income 
communities of color, replicating discriminatory predation that the 
payday loan industry has long engaged in offline.\20\ Members of 
specific marginalized groups may also be more likely to be subjected to 
a privacy harm--for example, women, girls, and members of the LGBTQ 
community experience invasions of sexual privacy at greater rates than 
do other communities.\21\ Marginalized individuals can also experience 
privacy invasions more severely. For example, privacy invasions such as 
data breaches and identity theft can be universally costly and time-
consuming to address, guard against, and seek justice for. But pursuing 
redress is often particularly burdensome for low-income victims, and 
the lack of a financial safety net can make the theft more 
impactful.\22\ Finally, the intersectional nature of marginalized 
identities--i.e., the fact that many individuals have multiple 
marginalized identities, such as their race or gender, which 
concurrently affect how they are perceived and treated--compels careful 
attention to those complexities.\23\
---------------------------------------------------------------------------

    \20\ Upturn, Led Astray: Online Lead Generation and Payday Loans 
(Oct. 2015), https://www.upturn.org/static/reports/2015/led-astray/files/Upturn_-_Led_Astray_v.1.01.pdf (describing digital ads placed 
by payday lenders and lead generation companies for exploitative 
loans--including in jurisdictions where such ads are illegal--
despite policies by online platforms ostensibly prohibiting such 
ads); David Dayen, Google Said It Would Ban All Payday Loan Ads. It 
Didn't, The Intercept (Oct. 7, 2016), https://theintercept.com/2016/10/07/google-said-it-would-ban-all-payday-loan-ads-it-didnt; Jim 
Hawkins & Tiffany Penner, Advertising Injustice: Marketing Race and 
Credit in America, 70 Emory L.J. 1619, 1624-5 (2021), https://scholarlycommons.law.emory.edu/elj/vol70/iss7/7/ (finding that in 
two studies of such lenders in the Houston, Texas area, lenders for 
generally exploitative loan products such as payday loans and auto 
title loans marketed predominantly to Black and Latino potential 
customers, while ``mainstream'' banks predominantly marketed to 
white potential customers).
    \21\ Danielle Citron, Sexual Privacy, 128 Yale L.J. 1870, 1908-
09 (2019).
    \22\ Greene, supra note 5, at 5-7.
    \23\ Katy Steinmetz, Kimberl[eacute] Crenshaw on What 
Intersectionality Means Today, Time (Feb. 20, 2020), https://time.com/5786710/kimberle-crenshaw-intersectionality (``We tend to 
talk about race inequality as separate from inequality based on 
gender, class, sexuality or immigrant status. What's often missing 
is how some people are subject to all of these, and the experience 
is not just the sum of its parts.''); Kimberl[eacute] Crenshaw, 
Demarginalizing the Intersection of Race and Sex: A Black Feminist 
Critique of Antidiscrimination Doctrine, Feminist Theory and 
Antiracist Politics, 1989 U. Chi. Legal F. 139, 149 (1989) (``The 
point is that Black women can experience discrimination in any 
number of ways and that the contradiction arises from our 
assumptions that their claims of exclusion must be unidirectional. 
Consider an analogy to traffic in an intersection, coming and going 
in all four directions. Discrimination, like traffic through an 
intersection, may flow in one direction, and it may flow in another. 
If an accident happens in an intersection, it can be caused by cars 
traveling from any number of directions and, sometimes, from all of 
them. Similarly, if a Black woman is harmed because she is in the 
intersection, her injury could result from sex discrimination or 
race discrimination.''); Michele Gilman, The Class Differential in 
Privacy Law, 77 Brooklyn L. Rev. 1389, 1394 (2012) (``The class 
differential in privacy law results from complex interactions 
between class, race, and gender. Because poor Americans are 
disproportionately minority and female, it is impossible to talk 
about class without taking into account how subordination is linked 
to race and gender'').
---------------------------------------------------------------------------

    The implications of modern data practices for privacy and civil 
rights also compel interrogation of the efficacy of legal privacy and 
civil rights protections. For example, the Health Insurance Portability 
and Accountability Act's (HIPAA) privacy protections only extend to 
personally identifiable health information collected by certain 
categories of entities,\24\ which leaves health information that fails 
to fit that precise description--such as information collected by 
certain fitness and health apps--without specific protections, despite 
its sensitivity and inherent potential for abuse.\25\ This can create 
specific risks for workers vulnerable to discrimination based on 
conditions such as pregnancy or disability.
---------------------------------------------------------------------------

    \24\ Department of Health and Human Services, The HIPAA Privacy 
Rule, https://www.hhs.gov/hipaa/for-professionals/privacy/index.html.
    \25\ See, e.g., Drew Harwell, Is your pregnancy app sharing your 
intimate data with your boss?, The Washington Post (April 10, 2019), 
https://www.washingtonpost.com/technology/2019/04/10/tracking-your-pregnancy-an-app-may-be-more-public-than-you-think; Stephanie 
O'Neill, As Insurers Offer Discounts for Fitness Trackers, Wearers 
Should Step With Caution, NPR (Nov. 19, 2018), https://www.npr.org/sections/health-shots/2018/11/19/668266197/as-insurers-offer-discounts-for-fitness-trackers-wearers-should-step-with-cautio.
    The privacy implications of non-health data from which sensitive 
health information can be inferred, such as the location data of an 
app user who visits an abortion clinic or dialysis center, are also 
concerning. See, e.g., Stuart A. Thompson & Charlie Warzel, Twelve 
Million Smartphones, One Dataset, Zero Privacy, The New York Times 
(Dec. 19, 2019), https://www.nytimes.com/interactive/2019/12/19/opinion/location-tracking-cell-phone.html (review of dataset from a 
location data aggregator included ``hundreds of pings in mosques and 
churches, abortion clinics, queer spaces and other sensitive 
areas.''); Joseph Cox, Data Broker is Selling Location Data of 
People Who Visit Abortion Clinics, Vice (May 3, 2022), https://www.vice.com/en/article/m7vzjb/location-data-abortion-clinics-safegraph-planned-parenthood (``It costs just over $160 to get a 
week's worth of data on where people who visited Planned Parenthood 
came from, and where they went afterwards.''); Joseph Cox, Location 
Data Firm Provides Heat Maps of Where Abortion Clinic Visitors Live, 
Vice (May 5, 2022), https://www.vice.com/en/article/g5qaq3/location-data-firm-heat-maps-planned-parenthood-abortion-clinics-placer-ai.
---------------------------------------------------------------------------

    Other components of the modern digital economy have discriminatory 
implications that existing civil rights laws do not appear to prevent 
or address. For example, public accommodations statutes do not always 
extend to key online spaces such as social networking or gaming sites, 
meaning that operators of those spaces are not always legally compelled 
to make their websites accessible to users with disabilities.\26\ 
websites that are difficult to use, or simply unusable, for users with 
disabilities prevent those users from accessing information or 
opportunities in an internet-dependent world.\27\
---------------------------------------------------------------------------

    \26\ David Brody & Sean Bickford, Discriminatory Denial of 
Service, Lawyers' Committee For Civil Rights Under Law (Jan. 2020), 
https://lawyerscommittee.org/wp-content/uploads/2019/12/Online-Public-Accommodations-Report.pdf (finding a range of approaches to 
how states consider online spaces, with 28 states where coverage is 
unclear, coverage is unlikely, online sites are explicitly not 
covered, or lack a state anti-discrimination law altogether); Amanda 
Beane et al., Eleventh Circuit Vacates Ruling That Websites Are Not 
Public Accommodations Under the ADA, Consumer Protection Review 
(Jan. 18, 2022), https://www.consumerprotectionreview.com/2022/01/eleventh-circuit-vacates-ruling-that-websites-are-not-public-accommodations-under-the-ada (describing the ambiguity of whether 
websites constitute places of public accommodations under the ADA).
    \27\ See, e.g., Rachel Lerman, Social media has upped its 
accessibility game. But deaf creators say it has a long way to go, 
The Washington Post (Mar. 15, 2021), https://www.washingtonpost.com/technology/2021/03/15/social-media-accessibility-captions; April 
Glaser, Blind people, advocates slam company claiming to make 
websites ADA compliant, NBC News (May 9, 2021), https://www.nbcnews.com/tech/innovation/blind-people-advocates-slam-company-claiming-make-websites-ada-compliant-n1266720; Sarah Katz, Twitter 
Just Rolled Out a Feature That's Inaccessible to Disabled Users, 
Slate, https://slate.com/technology/2020/06/twitter-voice-tweets-accessibility.html; Blake Reid, Internet Architecture and 
Disability, 95 Ind. L.J. 591, 593 (May 2020), (``[S]hortcomings in 
internet accessibility threaten to deny millions of Americans access 
to the economic, educational, cultural, and democratic life of the 
twenty-first century'').
---------------------------------------------------------------------------

    The listening sessions also addressed solutions to these difficult 
problems. Panelists and attendees suggested a range of strategies, such 
as firmer restrictions on risky data collection and

[[Page 3718]]

processing activities; more meaningful penalties for data abuses; more 
impactful remedies for victims; and certain kinds of third-party audits 
for algorithms that use particular categories of data or algorithms 
that will be deployed in specific contexts. Participants argued that 
proposals should also account for how data may also be used to reduce 
discriminatory harms, such as monitoring for or preventing biased 
outcomes, and connecting marginalized communities to public services.

Instructions for Commenters

    In this Request for Comment, we hope to gather information on the 
intersection of privacy, equity, and civil rights to supplement the 
information gathered in the listening sessions. Specifically, we seek 
to gather feedback on how the processing of personal information by 
private entities creates, exacerbates, or alleviates disproportionate 
harms for marginalized and historically excluded communities; to 
explore possible gaps in applicable privacy and civil rights laws; and 
to identify ways to prevent and deter harmful behavior, address harmful 
impacts, and remedy any gaps in existing law. We welcome answers to any 
of the below questions, in whole or in part, as well as input on 
related issues not specifically addressed in the questions. We also 
welcome reactions to information we heard at the three listening 
sessions held in December. Written comments may include references to 
personal experiences; white papers and reports; legal, historical, 
sociological, technical, and interdisciplinary scholarship; empirical 
or qualitative analysis; and any other form of information that 
commenters deem pertinent to our review.
    When responding to one or more of the questions below, please note 
in the text of your response the number of the question to which you 
are responding.
    NTIA seeks public comment on the following questions:

Questions

Framing

    1. How should regulators, legislators, and other stakeholders 
approach the civil rights and equity implications of commercial data 
collection and processing?
    a. Is ``privacy'' the right term for discussing these issues? Is it 
under-inclusive? Are there more comprehensive terms or conceptual 
frameworks to consider?
    b. To what degree are individuals sufficiently capable of assessing 
and mitigating the potential harms that can arise from commercial data 
practices, given current information and privacy tools? What value 
could additional transparency requirements or additional privacy 
controls provide; what are examples of such requirements or controls; 
and what are some examples of their limitations?
    c. How should discussions of privacy and fairness in automated 
decision-making approach the concepts of ``sensitive'' information and 
``non-sensitive'' information, and the different kinds of privacy harms 
made possible by each?
    d. Some privacy experts have argued that the collective 
implications of privacy protections and invasions are under-
appreciated.\28\ Strong privacy protections for individuals benefit 
communities by enabling a creative and innovative democratic society, 
and privacy invasions can damage communities as well as individuals. 
What's more, many categories of extractive and profitable processing 
rely on inferences about populations and demographic groups, making a 
collective understanding of privacy highly relevant.\29\ How should the 
individual and collective natures of privacy be understood, both in 
terms of the value of privacy protections; the harms of privacy 
invasions; and the implications of those values and harms for 
underserved or marginalized communities?
---------------------------------------------------------------------------

    \28\ See Citron & Solove, supra note 6, at 21-22 (noting that 
''[p]rivacy harms often involve injury not just to individuals but 
to society'' and citing theorization by Joel Reidenberg, Robert 
Post, Julie Cohen, and Paul Schwartz concerning the societal 
implications of privacy protections and invasions).
    \29\ Salome Viljoen, A Relational Theory of Data Governance, 131 
Yale L.J. 573, 578 (2021), https://www.yalelawjournal.org/pdf/131.2_Viljoen_1n12myx5.pdf (``[T]he data-collection practices of the 
most powerful technology companies are aimed primarily at deriving 
(and producing) population-level insights regarding how data 
subjects relate to others, not individual insights specific to the 
data subject. These insights can then be applied to all individuals 
(not just the data subject) who share these population features. 
This population-level economic motivation matters conceptually for 
the legal regimes that regulate the activity of data collection and 
use; it requires revisiting long-held notions of why individuals 
have a legal interest in information about them and where such 
interests obtain.'').
---------------------------------------------------------------------------

    e. How should proposals designed to improve privacy protections and 
mitigate the disproportionate harms of privacy invasions on 
marginalized communities address the privacy implications of publicly 
accessible information?
    f. What is the interplay between privacy harms and other harms that 
can result from automated decision-making, such as discriminatory or 
arbitrary outcomes? How should these two issues be understood in 
relation to one another in the context of equity and civil rights 
concerns?
    g. Civil rights experts and automated decision-making experts have 
raised concerns about the incongruity between intent requirements in 
civil rights laws and how automated systems can produce discriminatory 
outcomes without the intentional guidance of a programmer.\30\ How 
should regulators, legislators, and other stakeholders think about the 
differences between intentional discrimination and unintentional 
discrimination on the basis of protected characteristics, such as race 
or gender? How do data practices and privacy practices affect each?
---------------------------------------------------------------------------

    \30\ See, e.g., Solon Barocas & Andrew Selbst, Big Data's 
Disparate Impact, 104 Calif. L. Rev. 671 (2014).
---------------------------------------------------------------------------

Impact of Data Collection and Processing on Marginalized Groups

     2. Are there specific examples of how commercial data collection 
and processing practices may negatively affect underserved or 
marginalized communities more frequently or more severely than other 
populations?
    a. In particular, what are some examples of how such practices 
differently impact communities including but not limited to: disabled 
people; Native or Indigenous people; people of color, including but not 
limited to Black people, Asian-Americans and Pacific Islanders, and 
Hispanic or Latinx people; LGBTQ people; women; victims of domestic 
violence (including intimate partner violence, abuse by a caretaker, 
and other forms of domestic abuse); religious minorities; victims of 
online harassment; formerly incarcerated persons; immigrants and 
undocumented people; people whose primary language is not English; 
children and adolescents; students; low-income people; people who 
receive public benefits; unhoused people; sex workers, hourly workers, 
``gig'' or contract workers, and other kinds of workers; or other 
individuals or communities who are vulnerable to exploitation, or have 
historically been subjected to discrimination?
    b. In what ways do the specific circumstances of people with 
disabilities--such as the obligation to supply personal information to 
obtain public benefits or reasonable accommodations, the use of 
assistive technologies, or the incompatibility of digital services with 
a disability--create particular privacy interests or risks?
    c. How do specific data collection and use practices potentially 
create or reinforce discriminatory obstacles for

[[Page 3719]]

marginalized groups regarding access to key opportunities, such as 
employment, housing, education, healthcare, and access to credit?
    3. Are there any contexts in which commercial data collection and 
processing occur that warrant particularly rigorous scrutiny for their 
potential to cause disproportionate harm or enable discrimination?
    a. In what ways can disproportionate harm occur due to data 
collected or processed in the context of evaluation for credit; 
healthcare; employment or evaluation for potential employment (please 
include consideration of temporary employment contexts such as so-
called ``gig'' or contract workers); education, or in connection with 
evaluation for educational opportunities; housing, or evaluation for 
housing; insurance, or evaluation for insurance; or usage of or payment 
for utilities?
    b. Are there particular technologies or classes of technologies 
that warrant particularly rigorous scrutiny for their potential to 
invade privacy and/or enable discrimination?
    c. When should particular types of data be considered proxies for 
constitutionally-protected traits? For example, location data is 
frequently collected and used, but where someone lives can also closely 
align with race and ethnicity. In what circumstances should use of 
location data be considered intertwined with protected characteristics? 
Are there other types of data that present similar risks?
    d. Does the internet offer new economic or social sectors that may 
raise novel discrimination concerns not directly analogous to brick-
and-mortar commerce? For example, how should policymakers, users, 
companies, and other stakeholders think about civil rights, privacy, 
and equity in the context of online dating apps, streaming services, 
and online gaming communities?
    e. In what ways can government uses of private data that is 
collected for commercial purposes--for example, through public-private 
partnerships--produce unintended or harmful outcomes? Are there ways in 
which these types of public-private partnerships implicate equity or 
civil rights concerns? What about the collection and sharing of 
consumer data by private actors for ``public safety purposes''?
    f. What is the impact of consolidation in the tech and telecom 
sectors on consumer privacy as it relates to equity and civil rights 
concerns?

Existing Privacy and Civil Rights Laws

    4. How do existing laws and regulations address the privacy harms 
experienced by underserved or marginalized groups? How should such laws 
and regulations address these harms?
    a. With particular attention paid to equity considerations, what 
kinds of harms have been excluded from recognition or insufficiently 
prioritized in privacy law and policy?
    b. To what extent do privacy and civil rights laws consider the 
effects of having multiple marginalized identities on a person's 
exposure to data abuses? How can privacy and civil rights laws 
incorporate an intersectional approach to privacy and civil rights 
protections?
    c. Are existing privacy and civil rights laws being effectively 
enforced? If not, how should these deficiencies be remedied?
    d. Are there situations where privacy law conflicts with efforts to 
ensure equity and protect civil rights for these communities? If so, 
how should those conflicts be addressed?
    e. What resources or legal structures exist to identify and remedy 
wrongful outcomes produced by digital profiles or risk scores, 
particularly regarding individual or collective outcomes for 
underserved or marginalized communities?
    f. Legislators around the country and across the globe have enacted 
or amended a number of laws intended to deter, prevent, and remedy 
privacy harms. Which, if any, of these laws might serve as useful 
models, either in whole or in part? Are there approaches to be avoided? 
How, if at all, do these laws address the privacy needs and 
vulnerabilities of underserved or marginalized communities?
    g. Are there any privacy or civil rights laws, regulations, or 
guidance documents that demonstrate an exemplary approach to preventing 
or remedying privacy harms, particularly the harms that 
disproportionately impact marginalized or underserved communities? What 
are those laws, regulations, or guidance documents, and how might their 
approach be emulated more broadly?
    h. What is the best way to collect and use information about race, 
sex, or other protected characteristics to identify and prevent 
potential bias or discrimination, or to specifically benefit 
marginalized communities? When should this occur, and what safeguards 
are necessary to prevent misuse?

Solutions

    5. What are the principles that should guide the Administration in 
addressing disproportionate harms experienced by underserved or 
marginalized groups due to commercial data collection, processing, and 
sharing?
    a. Are these principles reflected in any legislative proposals? If 
so, what are those proposals, and how might they be improved?
    b. What kinds of protections might be appropriate to protect 
children and teens from data abuses? How might such protections 
appropriately address the differing developmental and informational 
needs of younger and older children? Are there any existing proposals 
that merit particular attention?
    c. What kinds of protections might be appropriate to protect older 
adults from exploitative uses of their data?
    d. In considering equity-focused approaches to privacy reforms, how 
should legislators, regulators, and other stakeholders approach purpose 
limitations, data minimization, and data retention and deletion 
practices?
    e. Considering resources, strategic prioritization, legal 
capacities and constraints, and other factors, what can federal 
agencies currently do to better address harmful data collection and 
practices, particularly the impact of those practices on underserved or 
marginalized groups? What other executive actions might be taken, such 
as issuing executive orders?
    6. What other actions could be taken in response to the problems 
outlined in this Request for Comment include?
    a. What are the most effective ways for policymakers to solicit 
input from members of underserved or marginalized groups when crafting 
responses to these problems? What are the best practices, and what are 
the missteps to avoid?
    b. How should legislators, regulators, and other stakeholders 
incorporate the multilingual needs of technology users in the United 
States into policy proposals intended to address privacy harms?
    c. What roles should third-party audits and transparency reporting 
play in public policy responses to harmful data collection and 
processing, particularly in alleviating harms that are predominantly or 
disproportionately experienced by marginalized communities? What 
priorities and constraints should such mechanisms be guided by? What 
are the limitations of those mechanisms? What are some concrete 
examples that can demonstrate their efficacy or limits?
    d. What role could design choices concerning the function, 
accessibility, description, and other components of consumer 
technologies play in creating

[[Page 3720]]

or enabling privacy harms, particularly as disproportionately 
experienced by marginalized communities? What role might design play in 
alleviating harms caused by discriminatory or privacy-invasive data 
practices?
    e. What role should industry-developed codes of conduct play in 
public policy responses to harmful data collection and processing and 
the disproportionate harms experienced by marginalized communities? 
What are the limitations of such codes?
    f. How can Congress and federal agencies that legislate, regulate, 
adjudicate, advise on, or enforce requirements regarding matters 
involving privacy, equity, and civil rights better attract, empower, 
and retain technological experts, particularly experts belonging to 
marginalized communities? Are there any best practices that should be 
emulated?

    Dated: January 17, 2023.
Stephanie Weiner,
Acting Chief Counsel, National Telecommunications and Information 
Administration.
[FR Doc. 2023-01088 Filed 1-19-23; 8:45 am]
BILLING CODE 3510-60-P