Internet Management: Prevalence of False Contact Information for 
Registered Domain Names (04-NOV-05, GAO-06-165).		 
                                                                 
Individuals or organizations seeking to register the names of	 
their Web sites may provide inaccurate contact information to	 
registrars in order to hide their identities or to prevent	 
members of the public from contacting them. Contact information  
is made publicly available on the Internet through a service	 
known as Whois. Data accuracy in the Whois service can help law  
enforcement officials to investigate intellectual property misuse
and online fraud, or identify the source of spam e-mail, and can 
help Internet operators to resolve technical network issues. GAO 
was asked, among other things, to (1) determine the prevalence of
patently false or incomplete contact data in the Whois service	 
for the .com, .org, and .net domains; (2) determine the extent to
which patently false data are corrected within 1 month of being  
reported to ICANN; and (3) describe steps the Department of	 
Commerce (Commerce) and ICANN have taken to ensure the accuracy  
of contact data in the Whois database.				 
-------------------------Indexing Terms------------------------- 
REPORTNUM:   GAO-06-165 					        
    ACCNO:   A41038						        
  TITLE:     Internet Management: Prevalence of False Contact	      
Information for Registered Domain Names 			 
     DATE:   11/04/2005 
  SUBJECT:   Computer crimes					 
	     Computer fraud					 
	     Data integrity					 
	     Identity verification				 
	     Information technology				 
	     Internal controls					 
	     Internet						 
	     Registries 					 
	     Websites						 
	     Policies and procedures				 

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GAO-06-165

United States Government Accountability Office

GAO

Report to the Subcommittee on Courts,

the Internet, and Intellectural Property, House of Representatives

November 2005

INTERNET MANAGEMENT

      Prevalence of False Contact Information for Registered Domain Names

                                       a

GAO-06-165

November 2005

INTERNET MANAGEMENT

Prevalence of False Contact Information for Registered Domain Names

                                 What GAO Found

Based on test results, GAO estimates that 2.31 million domain names (5.14
percent) have been registered with patently false data-data that appeared
obviously and intentionally false without verification against any
reference data-in one or more of the required contact information fields.
GAO also found that 1.64 million (3.65 percent) have been registered with
incomplete data in one or more of the required fields. In total, GAO
estimates that 3.89 million domain names (8.65 percent) had at least one
instance of patently false or incomplete data in the required Whois
contact information fields. The table below shows the estimated number of
instances of patently false data for each of the three types of contact
information within each generic top-level domain.

Of the 45 error reports that GAO submitted to the Internet Corporation for
Assigned Names and Numbers (ICANN) for further investigation-one for each
domain name with patently false contact data that GAO found in a random
sample of 900-11 domain name holders provided updated contact information
that was not patently false within 30 days after GAO submitted the error
reports to ICANN. One domain name, which had been pending deletion before
submission to ICANN, was terminated after GAO submitted the error report.
The remaining 33 were not corrected.

Commerce and ICANN have taken steps to ensure the accuracy of contact data
in the Whois database. In addition to implementing a Registrar
Accreditation Agreement that requires registrars to investigate and
correct any reported inaccuracies in the contact information, they have
amended their memorandum of understanding to require ICANN to continue
assessing the operation of the Whois service and to implement measures to
secure improved accuracy of data.

Commerce and ICANN officials generally agreed with a draft of this report.

Prevalence of Patently False Contact Information (in millions; percentages
in parentheses)

Registrant Administrative contact Technical contact

               Data .COM .ORG .NET .COM .ORG .NET .COM .ORG .NET

Not patently false

           33.13    3.29    5.34   31.90    3.15    5.21   32.18    3.18    5.29 
         (92.65) (93.69) (94.26) (89.20) (89.77) (91.88) (89.98) (90.63) (93.37) 
Patently    1.18    0.10    0.05    1.86    0.22    0.18    1.50         
false  (3.30)  (2.97) (0.89)   (5.20)  (6.25) (3.13)   (4.18)         

  0.19 (5.51)

0.16 (2.76)

0.27 (0.76)

0.07 (2.09)

0.17 (2.98)

0.83 (2.31)

0.11 (3.09)

0.18 (3.13)

0.91 (2.54)

0.10 (2.97)

0.11 (2.01)

Incomplete

Unable to access Whois data

1.18 (3.30)

  0.04 (1.25)

0.11 (1.86)

1.18 (3.30)

  0.04 (1.25)

0.13 (2.24)

1.18 (3.30)

  0.04 (1.25)

0.13 (2.24)

Source: GAO analysis of test results.

Note: Margin of error is +-5 percent or less at the 95 percent confidence
level. Some domain names contained both patently false and incomplete
information and so percentages do not add up to 100.

United States Government Accountability Office

Contents

                                    Letter 1

  Appendix

Appendix I:	Prevalence of False Contact Information for Registered Domain
Names

Abbreviations

DNS domain name system
ICANN Internet Corporation for Assigned Names and Numbers
IP Internet Protocol
IRIS Internet Registry Information Service
MOU memorandum of understanding
RAA Registrar Accreditation Agreement

This is a work of the U.S. government and is not subject to copyright
protection in the United States. It may be reproduced and distributed in
its entirety without further permission from GAO. However, because this
work may contain copyrighted images or other material, permission from the
copyright holder may be necessary if you wish to reproduce this material
separately.

A

United States Government Accountability Office Washington, D.C. 20548

November 4, 2005

The Honorable Lamar Smith

Chairman

Subcommittee on Courts, the Internet, and Intellectual Property Committee
on the Judiciary House of Representatives

                          The Honorable Howard Berman

Ranking Minority Member, Subcommittee on Courts the Internet, and
Intellectual Property Committee on the Judiciary House of Representatives

Individuals or organizations seeking to establish sites on the World Wide
Web are required to register the names of the sites with authorized domain
name registrars. These registrars, who operate under agreement with the
Internet Corporation for Assigned Names and Numbers (ICANN), also collect
contact information from the registrants and make the information publicly
available on the Internet through a service known as Whois. Although
registrants are required to provide accurate contact information during
the domain name registration process, they may supply false or incomplete
information in order to hide their identities or to shield themselves from
being contacted by members of the public.

This report responds to your request that we (1) determine the prevalence
of patently false1 or incomplete contact data in the Whois service for the
three "legacy" generic top-level domains (.com, .org, and .net); (2)
determine the extent to which patently false data identified through our
analysis were corrected within 1 month of being reported to ICANN and the
types of businesses associated with the domain names containing patently
false data; (3) describe the steps the Department of Commerce (Commerce)
and ICANN have taken to ensure the accuracy of contact data in the Whois
database; and (4) describe the tools and techniques intended to reduce the
amount of false information in the Whois service.

1For the purpose of this report, we define "patently false data" as data
that appeared obviously and intentionally false without verification
against any reference data.

To address the first objective, we obtained "zone files" maintained by
Verisign, Inc., and the Public Interest Registry.2 These files listed all
registered Internet domain names for the three legacy generic top-level
domains as of February 2005. After selecting random samples of 300 domain
names from each of the three zone files for .com, .net, and .org, we
performed online Whois searches to obtain contact information for each
domain name. Finally, we assessed the contact information for each domain
name in our random samples to identify data that are incomplete or
patently false. To address the second objective, we submitted error
reports to ICANN for Whois data entries we identified as patently false
and reexamined the same entries after 30 days to determine whether actions
had been taken to correct the false data. For the third objective, we
interviewed officials from federal agencies and ICANN to identify actions
taken to improve the accuracy of contact data in the Whois database, and
reviewed the memorandum of understanding between Commerce and ICANN and
other contractual agreements. For the final objective, we obtained and
documented information from federal agency officials and selected
registrars regarding the availability of tools and technologies that could
aid in reducing the false contact data in the Whois service. We completed
our work in Washington, D.C. between December 2004 and August 2005 in
accordance with generally accepted government auditing standards.

In summary, we estimate that 2.31 million domain names (5.14 percent) have
been registered with patently false data in at least one of the required
contact information fields. In addition, we estimate that 1.64 million
domain names (3.65 percent) have incomplete information in one or more of
the required fields. In total, we estimate that 3.89 million domain names
(8.65 percent) had at least one instance of patently false or incomplete
data in the required Whois contact information fields.

Of the 45 error reports that we submitted to ICANN for further
investigation-one for each domain name with patently false contact data
that we found in our random sample of 900-11 domain name holders provided
updated contact information that was not patently false within 30 days
after we submitted the error reports to ICANN. One domain name, which had
been pending deletion before our submission to ICANN, was terminated after
we submitted the error report. The remaining 33 were not

2Verisign, Inc. is the designated administrator (called a registry) that
is responsible for managing domain names and setting policy for the .net
and .com top-level domains. The Public Interest Registry is responsible
for managing the .org domain.

corrected. Of the 45 domain names, 19 were Web sites that were
unavailable, under construction, or had no significant content, while 6
had unknown foreign-language content. The remaining 20 were associated
with a wide variety of businesses, including Web search portals, adult
content and merchandise, IT consulting services and information, general
information, retail merchandise, and other online services.

Commerce and ICANN have taken steps to ensure the accuracy of contact data
in the Whois database, including implementing a Registrar Accreditation
Agreement that requires registrars to investigate and correct any reported
inaccuracies in Whois contact information for the domain names they
register, and an amendment to their memorandum of understanding that
required ICANN to implement measures to improve the accuracy of Whois
data. ICANN has also published additional information and guidance for
registrars regarding their obligations to investigate and correct data
inaccuracies, and implemented a system to receive and track complaints
about inaccurate and incomplete data. ICANN recognizes that more can be
done and is planning to take further steps, including enhancing the
system, hiring additional staff to conduct follow-up to ensure that
reported inaccuracies are addressed, and seeking recommendations from a
task force formed to address data accuracy issues.

We identified two technologies and tools intended to help reduce false
contact information in the Whois database. They are (1) the Internet
Registry Information Service protocol, which provides tiered access to
sensitive contact information and, thus, would encourage the submission of
more accurate information; and (2) Support Intelligence's Trust Factor
product, which could be used to assess the validity of contact information
against public information stored in commercial databases. While both
tools have the potential to help reduce false contact information, neither
is widely implemented by registrars and registries. We did not determine
the effectiveness of such technologies and tools in reducing inaccuracies
in the Whois service.

On August 30, 2005, we provided your staff with briefing slides on the
results of our study. This report provides you with the published briefing
slides, included as appendix I to this report. We received comments, via
Email, on a draft of this report from the Deputy Chief Counsel of
Commerce's National Telecommunications and Information Administration, and
ICANN's Deputy General Counsel. Both Commerce

and ICANN generally agreed with the information presented in the draft
report. A technical comment provided by Commerce has been addressed as
appropriate.

As we agreed with your office, unless you publicly announce the contents
of this report earlier, we plan no further distribution until 30 days from
the
date of this letter. At that time, we will send copies of this report to
the
Secretary, Department of Commerce; Chairman and Ranking Minority
Members, House Committee on the Judiciary; and other interested
congressional committees. Copies of this report will also be made
available
to others upon request. In addition, this report will be available at no
charge on the GAO Web site at http://www.gao.gov.

If you or your staff have any questions concerning this report, please
contact Linda Koontz at (202) 512-6240 or [email protected]; or Keith
Rhodes at (202) 512-6412, or [email protected]. Contact points for our
Offices of Congressional Relations and Public Affairs may be found on the
last page of this report. Other major contributors to this report included
James Ashley, Barbara Collier, John de Ferrari, Mark Fostek, Wilfred
Holloway, Steven Law, and Amos Tevelow.

Linda D. Koontz
Director, Information Management Issues

Keith A. Rhodes
Chief Technologist
Director, Center for Technology and Engineering

Appendix I

Prevalence of False Contact Information for Registered Domain Names

                              Internet Management

    Prevalence of False Contact Information for Registered Domain Names

Subcommittee on Courts, the Internet, and Intellectual Property House
Committee on the Judiciary

August 30, 2005

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

Introduction
Objectives
Scope and Methodology
Results in Brief
Background
Prevalence of Patently False Contact Information
Correction of Reported Patently False Contact Information
Steps Taken to Ensure Accuracy
Tools and Technologies That Could Reduce False Contact Information
Summary
Agency Comments

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

An individual or organization seeking to establish a site on the World
Wide Web is required to register the name of the site with an authorized
domain name registrar.

These registrars operate under agreement with the Internet Corporation for
Assigned Names and Numbers (ICANN), which is charged with administering
the Internet's name and address system, known as the domain name system
(DNS).1 ICANN's authority is based on a memorandum of understanding it has
with the Department of Commerce.2

Based on their accreditation agreements with ICANN, registrars require all
prospective Web site registrants to provide contact information, which is
then made publicly available on the Internet through a service known as
Whois.

1The DNS is an Internet directory service that controls the delivery of
electronic mail and translates domain names into numerical Internet
Protocol (IP) addresses, which computers use to communicate with each
other over the Internet.

2For more information on Commerce's relationship with ICANN, see GAO,
Internet Management: Limited Progress on Privatization Project Makes
Outcome Uncertain, GAO-02-805T (Washington, D.C.: June 12, 2002).

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

The Whois service was originally intended as a source of contact
information that technicians could use to reach each other when necessary
to troubleshoot problems with Internet connectivity or functionality.
However, users of the Whois service have broadened over time to include
law enforcement officials, owners of intellectual property, and others
seeking contact information about Web site owners for a variety of
reasons.

Although registrants are required to provide accurate Whois contact
information, they may supply false or incomplete information in order to
hide their identities or to shield themselves from being contacted by
members of the public.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

Our objectives were to

o 	determine the prevalence of "patently false" or incomplete contact data
in the Whois service for the three "legacy" generic top-level domains;3

o 	determine the extent to which patently false data identified through
our analysis were corrected within 1 month of being reported to ICANN and
the types of businesses associated with the domain names containing
patently false data;

o 	describe steps the Department of Commerce and ICANN have taken to
ensure the accuracy of contact data in the Whois database; and

o 	describe tools and techniques intended to aid in reducing the amount of
false data in the Whois service.

3"Legacy" generic top-level domains consist of all Internet addresses that
end in .com, .org, and .net.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

To address these objectives, we took the following actions:

o 	We obtained "zone files" maintained by Verisign, Inc., and the Public
Interest Registry, which list all registered Internet domain names for the
three legacy generic top-level domains (.com, .org, and .net) as of
February 2005. Verisign, Inc., and the Public Interest Registry reported
that there were 44.93 million registered domain names for these three
domains in February 2005.4

o 	We selected random samples of 300 domain names from each of the three
zone files and performed online Whois look-ups to obtain contact
information for each domain name.

o 	We assessed the contact information for each domain name in our random
samples to identify data that are incomplete or patently false-data that
appeared obviously and intentionally false without verification against
any reference data, such as "(999) 999-9999" for a telephone number,
"asdasdasd" for a street address, or "XXXXX" for a postal code.

4Verisign Inc., Registry Operator's Monthly Report (Dulles, Va.: February
2005) and Public Interest Registry, Registry Operator's Report (Reston,
Va.: February 2005).

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

o 	We submitted error reports to ICANN for Whois data entries we
identified as patently false and re-examined the same entries after 30
days to determine whether actions had been taken to correct the false
data. We did not assess the reasons why reported inaccuracies were not all
corrected.

o 	We interviewed federal officials from Commerce, the Department of
Justice, the Federal Trade Commission, the U.S. Securities and Exchange
Commission, and ICANN to identify actions taken to improve the accuracy of
contact data in the Whois database.

o 	We reviewed the memorandum of understanding between Commerce and ICANN
and other contractual agreements.

o 	We obtained and documented information from federal agency officials
and selected registrars regarding the availability of tools and
technologies that could aid in reducing the amount of false contact data
in the Whois service.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

Based on results from our random samples, we estimated the number of
domain names with patently false and incomplete data. All estimates in
this report have a margin of error of plus or minus 5 percent or less at
the 95 percent confidence level.

Our work was completed in accordance with generally accepted government
auditing standards in Washington, D.C., between December 2004 and August
2005.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

We estimate that 2.31 million (5.14 percent) domain names have been
registered with "patently false" Whois contact data-data that appeared
obviously and intentionally false without verification against any
reference data-in at least one of the required contact information fields.
In addition, we estimate that 1.64 million domain names (3.65 percent)
have incomplete information in one or more of the required fields.

Of the 45 error reports that we submitted to ICANN for further
investigation-one for each domain name with patently false contact
information that we found in our random sample of 900-11 domain name
holders provided updated contact information that was not patently false
within 30 days after we submitted the error reports to ICANN. One domain
name, which had been pending deletion before our submission to ICANN, was
terminated after we submitted the error report. The remaining 33 were not
corrected. Of the 45 domain names we submitted reports on, 19 were for Web
sites that were unavailable, under construction, or had no significant
content, while 6 had unknown foreign-language content. The remaining 20
were associated with a wide variety of businesses, including Web search
portals, adult content and merchandise, IT consulting services and
information, general information, retail merchandise, and other online
services.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

Commerce and ICANN have taken the following steps to ensure the accuracy
of contact data in the Whois database:

o 	ICANN implemented a Registrar Accreditation Agreement that requires
registrars to investigate and correct any reported inaccuracies in Whois
contact information for the domain names they register. It also published
additional information and guidance for registrars regarding their
obligations to investigate and correct data inaccuracies, and implemented
a system to receive and track complaints about inaccurate and incomplete
data.

o 	In a September 2003 amendment to its memorandum of understanding (MOU)
with ICANN, Commerce required ICANN to continue assessing the operation of
the Whois service and to implement measures to secure improved accuracy of
Whois data.

ICANN recognizes that more can be done to ensure the accuracy of Whois
data and is planning to take further steps, including having its staff
follow up to ensure that reported inaccuracies are addressed.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

Available technologies and tools intended to reduce the amount of false
contact information entered into the Whois service include the following:

o 	The Internet Registry Information Services protocol, which provides for
tiered access to sensitive contact information, could be used to restrict
public access to sensitive personal information within the Whois data.
According to proponents, this restriction would encourage the submission
of more accurate data.

o 	Commercial screening tools, such as Support Intelligence's Trust Factor
product, could be used to assess the validity of contact information as it
is entered by registrants by verifying the registrant information against
public information stored in commercial databases.

Neither the protocol nor the screening tools are widely implemented by
registrars and registries. We did not determine the effectiveness of such
technologies and tools in reducing inaccuracies in the Whois service.

Both Commerce and ICANN generally agreed with the information presented in
a draft of this briefing and provided technical comments which have been
addressed as appropriate.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

The domain name system (DNS) is a vital component of the Internet that
works like an automated telephone directory, allowing users to reach Web
sites using easy-tounderstand domain names (e.g., www.gao.gov) instead of
the numeric Internet Protocol (IP) addresses (e.g., 161.203.16.2) that
computers use when communicating with each other.5 The DNS consists of a
series of name servers that store data linking numeric IP addresses with
their associated domain names.

The letters at the far right of a domain name (e.g., "gov" in www.gao.gov)
represent top-level domains and include well-known generic domains such as
.com, .net, and .org. The next string of text to the left ("gao" in
www.gao.gov) in an address is called a second-level domain and is a subset
of the top-level domain.

5For more information on the domain name system, see GAO, Internet
Management: Limited Progress on Privatization Project Makes Outcome
Uncertain, GAO-02-805T (Washington, D.C.: Jun. 12, 2002).

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

Each top-level domain has a designated administrator (called a registry)
that is responsible for managing domain names and setting policy for the
domain. For example, the Public Interest Registry-a not-for-profit
corporation-manages the .org top-level domain, and Verisign, Inc. manages
the .net and .com registries.

Registrars are organizations (usually private companies) that support
registries by selling domain name registration services to registrants
(the "owners" of specific domain names). During the registration process
for .org, .net, and .com names, registrars collect information from
registrants that includes three types of contacts:

o  the domain name registrant,

o  an administrative contact, and

o  a technical contact.

Registrars maintain this information in their individual databases and
make it available to the public through their own Whois service. There is
no unified Whois service containing all registrant data for the .org,
.net, or .com registries.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

The figure depicts the hierarchical organization of Internet domain names
for the original seven generic top-level domains, including the three
"legacy" domains, .com, .org, and .net.6

6In November 2000, seven additional top-level
domains (.info, .biz, .name, .aero, .museum, .coop,
and .pro) were introduced. Source: GAO.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

The U.S. government supported the development of the Internet and the DNS
and has the authority to make key decisions affecting the DNS.

In 1997, the President tasked the Department of Commerce with
transitioning the DNS to private management. Commerce selected ICANN, a
not-for-profit private corporation, to carry out the transition and to
demonstrate that it had the resources and capability to manage the DNS.7
Accordingly, in November 1998, Commerce entered into an agreement with
ICANN, in the form of an MOU,8 to jointly develop "mechanisms, methods,
and procedures" necessary to transfer DNS management to the private
sector.

The MOU states that before making a transition to private sector
management, Commerce requires assurance that the private sector has the
capability and resources to manage the DNS. To gain this assurance,
Commerce and ICANN agreed in the MOU to complete a set of transition
tasks.

7For more information on the relationship between Commerce and ICANN, see
GAO, Department of Commerce: Relationship with the Internet Corporation
for Assigned Names and Numbers, GAO/OGC-00-33R (Washington, D.C.: Jul. 7,
2000).

8The original MOU was set to expire in September 2000 and has been amended
six times. The latest amendment, in September 2003, will expire on
September 30, 2006.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

As established in the MOU, Commerce and ICANN agreed to perform the
following activities in support of the joint DNS project:

o 	Commerce is to provide advice, coordinate with foreign governments, and
generally oversee activities conducted by ICANN as part of the MOU.

o  ICANN is to design, develop, and test procedures for managing the DNS.

In June 2005, the Assistant Secretary of Commerce's National
Telecommunications and Information Administration stated that Commerce
would continue to provide oversight indefinitely to ensure that ICANN
continued to focus on meeting its core technical mission.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

In 1999, ICANN developed a Registrar Accreditation Agreement (RAA) that
sets the terms by which accredited registrars are authorized to register
domain names within the generic top-level domains.

As of May 2005, about 400 accredited registrars from the United States and
foreign countries offered domain name registration services for the
generic top-level domains.

As part of the terms of the RAA, each registrar is to provide a Web-based
Whois service that offers free access to contact information on all active
registered domain names sponsored by the registrar.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

The ICANN RAA specifies that registrars are required to collect the
following information, as a minimum, from each registrant:

o  the domain name being registered;

o  the names of the primary name server and any secondary name servers;

o  the identity of the registrar;
o  original creation and expiration dates of the registration;

o  the registrant's name and postal address; and

o 	the name, postal address, electronic mail address, telephone number,
and fax number (optional) for both the technical contact and the
administrative contact for the domain name.

This information is then made publicly available through the Whois
service.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

Created in the 1970s, Whois began as a service that Internet operators
could use to identify and contact individuals or entities responsible for
the operation of a computer on the Internet when an operational problem
arose.

Since then, the Whois service has evolved into a tool used for many
purposes, such as determining whether a domain name is available for
registration, identifying the source of spam9 e-mail, enforcing
intellectual property rights, and identifying and verifying online
merchants.

The Whois service is not a single centrally managed database but consists
of linked information that is collectively maintained in distributed
databases by domain name registrars and registries.

9Spam is unsolicited "junk" e-mail that usually includes advertising for
some product.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

Data accuracy is important to the effectiveness of the Whois service in
helping Internet operators to resolve technical network issues, as well as
helping law enforcement officers to investigate such things as
intellectual property misuse or online fraud. According to federal agency
officials, accurate Whois data have the potential to allow law enforcement
officials to identify individuals involved in criminal activities on the
Internet more quickly than if such information were not available.

The ICANN RAA directs registrars to

o 	require registrants to agree that willfully submitting inaccurate
contact details (or failing to respond within 15 days to an inquiry
regarding accuracy) shall be a basis for cancellation of the registration
and

o 	take reasonable steps to investigate and correct contact information in
response to any reported inaccuracy.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

Based on our test results, all three legacy generic top-level domains
contained names with patently false Whois information. We estimate that
patently false registrant data were entered for 1.18 million (3.30
percent) .com names, 100,000 (2.97 percent) .org names, and 50,000 (0.89
percent) .net names.

The table on the following page shows the estimated number of instances of
patently false data (and the corresponding percentage of the entire
sample) for each of the three types of contact information ("registrant,"
"administrative contact," and "technical contact") within each generic
top-level domain.

As previously described, "patently false" contact data in the Whois
service are data that appear obviously and intentionally false without
verification against any reference data. For example, "(999) 999-9999" for
a telephone number, "asdasdasd" for a street address, and "XXXXX" for a
postal code represent patently false data.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

Looking across the domains, we estimate that 2.31 million (5.14 percent)
domain names had at least one data field populated with patently false
data for the registrant, administrative contact, and/or technical contact.
The estimates by domain are as follows:10

o 	For the .com domain, 1.86 million domain names (5.20 percent) contained
patently false data in at least one contact information field.

o 	For the .org domain, 0.25 million domain names (7.17 percent) contained
patently false data in at least one contact information field.

o 	For the .net domain, 0.20 million domain names (3.50 percent) contained
patently false data in at least one contact information field.

10In some cases, patently false data had been entered for more than one of
the three types of contacts. For this reason, the total estimates for each
domain are less than the sum of the corresponding numbers in the previous
table.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

In addition to patently false Whois data, we estimate that 1.64 million
domain names (3.65 percent) contained incomplete information in one or
more of the required contact fields.

In total, we estimate that 3.89 million domain names (8.65 percent) had at
least one instance of patently false or incomplete data in the required
Whois contact information fields.

In addition to the domain names involving patently false or incomplete
contact information, we estimate that 1.35 million (3.00 percent) domain
names contained inaccessible Whois data for various reasons, such as
registrars restricting access to the information and domain names that had
expired or were deleted.

The remaining 39.70 million domain names (88.35 percent) contained no
patently false or incomplete contact information in required data
fields.11

11We did not verify that the "not patently false" information was
accurate. It is possible that contact information that appeared to be
valid for many domain names was not, in fact, accurate.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

The following actions occurred in response to the error reports that we
submitted to ICANN12 for the 45 domain names in our random sample of 900
that had patently false contact information:

o 	Within 30 days, 11 domain name holders (24 percent) had submitted
updated contact information that was not patently false.

o 	One domain name in the .net domain was terminated (the domain name had
been marked for deletion before our submission).

Contact information for the remaining 33 domain names (73 percent)
remained unresolved 30 days after we submitted the error reports.

According to ICANN officials, registrars have the discretion to deactivate
domain names by placing them on "registrar hold" as part of their
investigation/response to reported inaccuracies. Of the 45 domain names
with patently false contact information, ICANN stated that 11 were
inactive.

12As discussed below, ICANN operates a Whois Data Problem Report System to
accept reports of inaccuracies from the general public and forward them to
registrars for resolution.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

The Web sites associated with the 45 registered domain names containing
patently false contact information fell into the following categories:

o 	Miscellaneous online services: The domain name was associated with Web
sites offering specific services, including movie downloads, electronic
mail, online messages, real estate information, online gaming, and access
to an organization's Intranet (6 Web sites or 13 percent).

o 	Foreign language site (content unknown): The domain name was associated
with a Web site developed in a foreign language, and we were not able to
determine the content of the site (6 Web sites or 13 percent).

o 	IT consulting services and information: The domain name was associated
with a Web site offering IT consulting services or providing IT-related
information (4 Web sites or 8.9 percent).

o 	Web portals with online search capability: The domain name was
associated with a Web portal offering search capability for various
services (3 Web sites or 6.7 percent).

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

o 	General information: The domain name was associated with a Web site
providing general information on miscellaneous topics, such as music or
scouting (3 Web sites or 6.7 percent).

o 	Adult content or merchandise: The domain name was associated with a Web
site offering adult content or merchandise for sale (2 Web sites or 4.4
percent).

o 	Retail merchandise: The domain name was associated with a Web site
offering retail products for sale to the public (2 Web sites or 4.4
percent).

o 	Web site not found: The domain name was not associated with an active
Web site; an error message was displayed when we attempted to access it
(12 Web sites or 26.7 percent).

o 	No significant content: The domain name was associated with a Web site
that was blank or had only limited content, such as a symbol or phrase (5
Web sites or 11 percent).

o 	Web site under construction (content unknown): The domain name was
associated with a Web site designated as being under construction (2 Web
sites or 4.4 percent).

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

The Department of Commerce and ICANN have taken the following steps
intended to ensure the accuracy of contact data in the Whois service:

o 	Commerce amended its MOU with ICANN to include a provision that ICANN
continue assessing the operation of the Whois service and implement
measures to improve the accuracy of Whois data.

o 	According to the amended MOU, ICANN was to publish (1) a report
providing statistical and narrative information on its experience with the
operation of the Whois Data Problem Report System and (2) a report
providing statistical and narrative information on the implementation of
the Whois Data Reminder Policy.

o 	To meet its obligations under the MOU, ICANN published two reports on
its experience with the report system (in March 2004 and March 2005) and
one report on implementation of the reminder policy (in November 2004).

o 	According to the March 2004 and 2005 reports, at least a quarter of the
complaints submitted through the report system resulted in the correction
of data or removal of a domain name.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

o 	The November 2004 report, which was based on survey responses received
from 254 out of 364 registrars (about 70 percent), concluded that it was
difficult to determine the impact of the reminder policy on improving the
accuracy of Whois data.

According to Commerce officials, one way the agency judges the success of
ICANN is by the number of milestones it meets in fulfilling its
obligations under the MOU. Thus far, according to the officials, ICANN has
met its obligations regarding the Whois data accuracy provisions of the
MOU by implementing a Whois Data Problem Report System and publishing
annual reports on its experience with the operation of the system and the
implementation of the Whois Data Reminder Policy.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

ICANN's Registrar Accreditation Agreement requires each of its accredited
registrars to investigate and correct any reported inaccuracies in Whois
contact information for the domain names that they register.

After establishing the agreement, ICANN published the following four
notices to provide additional information or guidance to registrars
regarding their obligation to investigate and correct data inaccuracies:

o  Registrar Advisory Concerning Whois Data Accuracy, May 10, 2002,

o  Steps to Improve Whois Data Accuracy, September 3, 2002,

o 	Registrar Advisory Concerning the "15-day Period" in Whois Accuracy
Requirements, April 3, 2003, and

o  Whois Data Reminder Policy Posted, June 16, 2003.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

In May 2002, ICANN published an advisory intended to aid registrars in
understanding their obligations under the RAA regarding the accuracy of
Whois data. Specifically, the advisory required all ICANN-accredited
registrars to

o 	provide public access-through a Web-based Whois service-to contact
information for all top-level domains covered under the RAA;

o 	require each registrant to submit (and keep updated) accurate contact
information;

o 	notify registrants that willfully submitting inaccurate contact
information (or failing to respond within 15 days to an inquiry regarding
accuracy) would be a basis for cancellation of the registration; and

o 	take reasonable steps to investigate and correct Whois data in response
to reported inaccuracies.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

Subsequently, in September 2002, ICANN announced that it had implemented
the Whois Data Problem Report System, designed to process complaints about
inaccurate and incomplete Whois data. According to the announcement, many
registrars have responded to reports of inaccurate and incomplete data
submitted through the system.

The system is a Web-based tool accessible through the Web site
http://wdprs.internic.net.

The tool is intended to help registrars meet their responsibilities to
correct inaccurate or incomplete data.

Users submit complaints about false or inaccurate Whois data for a
particular domain name to ICANN through the report system, and ICANN in
turn notifies the appropriate registrar.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

In April 2003, ICANN published an advisory aimed at providing
clarification to registrars concerning the 15-day time limit for
registrants to respond to an inquiry regarding accuracy before facing
possible cancellation of a domain name registration.

o 	According to ICANN, the RAA does not require a registrar to cancel a
registration in the event that a registrant fails to respond within 15
days.

o 	According to the RAA, registrars shall, upon notification by any person
of an inaccuracy in the contact information associated with a registered
name sponsored by the registrar, take reasonable steps to investigate the
alleged inaccuracy.

o 	The requirement that registrars "take reasonable steps" is intended to
give registrars the flexibility to determine what action should be taken
when a registrant fails to respond to a notification of inaccuracy.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

In March 2003, ICANN adopted the Whois Data Reminder Policy, which is also
intended to contribute to improved Whois data accuracy.

o 	The policy requires registrars to present current Whois information to
registrants for verification and remind them that submitting false Whois
information can be grounds for cancellation of a domain name's
registration.

o 	Because ICANN has few agreements with operators of country code
top-level domains (2-letter top-level domains reserved mainly for
disposition by national governments, such as .us for the United States),
these operators are not required to comply with the policy. (ICANN's RAA
currently applies only to registrations within generic top-level domains,
not country code domains.)

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

In addition to the steps already taken, ICANN recognizes that more can be
done to ensure the accuracy of Whois data and plans to implement
additional measures:

o 	According to ICANN's proposed budget for fiscal year 2005-2006,13 it
plans to improve the report system by having staff conduct follow-up to
ensure that reported data inaccuracies are corrected or the domain names
deleted. (As noted above, 33 of the 45 reports we submitted to the system
remained uncorrected after 30 days.)

o 	According to ICANN officials, ICANN is recruiting three new employees
specifically to promote registrar and registry compliance with ICANN
policies and agreements.

o 	In addition, ICANN staff are to conduct studies to determine the
overall data accuracy in the Whois service and develop a plan for
improvement.

o 	ICANN has chartered a task force to recommend additional ways to
improve the processes for notifying a registrar of inaccurate data, and
for investigating and correcting inaccurate data in the Whois service.

13Internet Corporation for Assigned Names and Numbers, Proposed Budget:
Fiscal Year 2005-2006 (May 17, 2005).

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

According to registrar officials, false data are easily entered into the
Whois service because most domain name registration systems are automated
and do not check the accuracy of data submitted by registrants. Based on
information collected from federal officials and one registrar, we
identified the following two technologies and tools intended to help
reduce false contact information in the Whois database:

(1) The Internet Registry Information Service (IRIS) protocol14 was
originally designed to address privacy concerns associated with making
Whois contact information publicly available.

o 	IRIS includes authentication mechanisms that allow for "tiered" access
to Whois data. Under IRIS, only limited Whois information-such as the name
and contact information for the registrar-would be available to the
general public (the "bottom" tier of users). A second "top" tier
implementing stricter access controls could provide more specific
registrant information to a limited number of users, such as law
enforcement officials conducting online fraud investigations.

14The Internet Registry Information Service is a protocol developed by the
Internet Engineering Task Force's Cross-Registry Internet Service Protocol
Working Group.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

o 	According to agency officials, implementing the IRIS protocol could
encourage more registrants to submit accurate data into the Whois
database.

o 	ICANN is investigating proposals to implement a tiered access system.
However, according to the American Intellectual Property Law
Association,15 a number of issues would need to be addressed before
implementing the system, including

o  defining criteria for users to access data in the top tier,

o 	establishing an authority to determine whether a potential user meets
those criteria, and

o  determining the cost to implement such a system and who will bear it.

15Michael K. Kirk, Executive Director of the American Intellectual
Property Law Association, Comments of the American Intellectual Property
Law Association On the Request for Comments Regarding The Preliminary
Reports of the Whois Task Forces, (Arlington, Va.), Available:
http://gnso.icann.org/mailing-lists/archives/whois-tf2-report-comments/doc00007.doc,
downloaded on April 28, 2005.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

(2) Support Intelligence16 developed a commercial product called Trust
Factor, (formerly known as Fraudit), which is intended to assess Whois
data accuracy at the time of registration.

o 	The tool conducts a number of automated checks on a registrant's
contact data during the registration process to identify a range of
potential problems, such as invalid or undeliverable postal and e-mail
addresses, and telephone numbers that are inoperable or not consistent
with the addresses provided.

o 	To accomplish this, Trust Factor attempts to verify a registrant's
information against a number of commercial databases of public
information. The tool can correlate postal and e-mail addresses and can
match telephone numbers with network addresses to verify that they are all
valid.

o 	Some federal officials and registrars questioned the general approach
used by Trust Factor because it could involve potentially incorrect
assumptions about a registrant's location and how it correlates with
addresses, ZIP codes, and phone numbers.

16Support Intelligence is a private firm headed by the chief executive
officer of Alice's Registry, an accredited registrar.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

o 	In addition, according to one registrar, performing checks of the kind
done by Trust Factor could produce incorrect results in such cases as when
an individual submits contact information for a third party registrant.

o 	According to registrar officials, an automated system that implements
technologies similar to those in Trust Factor could incorrectly flag
accurate information as false and thus prevent customers from legitimately
registering domain names. Their registration systems generally include no
more than a simple check to ensure that all required data fields are
filled in (no blank data fields). However, as our test results showed,
even this check is not always implemented.

o 	Furthermore, registrars stated that they did not have the resources to
manually check Whois contact information for inaccurate data because of
the volume of registrations they process on a continuing basis.

At the time of our review, neither the IRIS protocol nor the Trust Factor
tool had been widely implemented by registrars and registries. We did not
determine the effectiveness of these tools in reducing inaccuracies in the
Whois service.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

Based on our test results, we estimate that 5.14 percent of domain names
had at least one instance of patently false contact information in the
required Whois contact data fields. As identified in our random sample, 45
domain names had at least one data field populated with patently false
data. In addition, for the 45 corresponding error reports we submitted to
ICANN, most false Whois contact information (73 percent) was unresolved
after 30 days.

ICANN recognizes that more can be done to ensure the accuracy of Whois
data and has taken steps to address these concerns by establishing
registrar policies and issuing advisories on how to address false or
inaccurate Whois data. In addition, ICANN implemented an automated system
for users to report false or inaccurate Whois data for further
investigation and correction. ICANN is planning to take further steps to
improve data accuracy through enhancement of the system and by seeking
recommendations from a task force formed to address accuracy issues.

Given that inaccurate and incomplete data persist in the Whois service,
ICANN's continued attention to this issue will be critical to achieving
improvements in data accuracy.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

Although we identified two kinds of technological tools intended to help
reduce the amount of false contact information, neither of these tools has
been widely implemented by registrars, and we did not determine the
effectiveness of the tools in reducing data inaccuracies.

Appendix I
Prevalence of False Contact Information for
Registered Domain Names

We received oral comments on a draft of this briefing from the Deputy
Chief Counsel of Commerce's National Telecommunications and Information
Administration and comments via e-mail from ICANN's Deputy General
Counsel. Both Commerce and ICANN generally agreed with the information
presented in the draft briefing and provided a number of technical
comments which have been incorporated where appropriate.

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