TOC 
Network Working GroupR. Austein, Ed.
Internet-DraftISC
Expires: May 17, 2005B. Wijnen, Ed.
 Lucent Technologies
 November 16, 2004

Structure of the IETF Administrative Support Activity (IASA)

draft-ietf-iasa-bcp-00

Status of this Memo

This document is an Internet-Draft and is subject to all provisions of section 3 of RFC 3667. By submitting this Internet-Draft, each author represents that any applicable patent or other IPR claims of which he or she is aware have been or will be disclosed, and any of which he or she become aware will be disclosed, in accordance with RFC 3668.

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This Internet-Draft will expire on May 17, 2005.

Copyright Notice

Copyright (C) The Internet Society (2004).

Abstract

This document describes the structure of the IETF Administrative Support Activity (IASA) as an IETF-controlled activity housed within the Internet Society (ISOC) legal umbrella. It defines the roles and responsibilities of the IETF Administrative Oversight Committee (IAOC), the IETF Administrative Director (IAD) and ISOC in the fiscal and administrative support of the IETF standards process. It also defines how the IAOC will be comprised and selected.



Table of Contents

1.  Introduction
    1.1  Editors' Notes
2.  Alphabet Soup
3.  Structure of the IASA
    3.1  IAD Responsibilities
    3.2  IAD Committees
    3.3  IAOC Responsibilities
    3.4  Relationship of the IAOC to Existing IETF Leadership
    3.5  IAOC Decision Making
4.  IAOC Membership, Selection and Accountability
    4.1  Initial IAOC Selection
5.  IASA Funding
    5.1  IETF meeting revenues
    5.2  Designated donations, monetary and in-kind
    5.3  Other ISOC support
    5.4  Operating Reserve
6.  IASA Budget Process
7.  ISOC Responsibilities for IASA
8.  Security Considerations
9.  IANA Considerations
10.  Acknowledgements
11.  Change Log
12.  References
12.1  Normative References
12.2  Informative References
§  Authors' Addresses
§  Intellectual Property and Copyright Statements




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1. Introduction

This document describes the structure of the IETF Administrative Support Activity (IASA) as an IETF-controlled activity housed within the Internet Society (ISOC) legal umbrella. It defines the roles and responsibilities of the IETF Administrative Oversight Committee (IAOC), the IETF Administrative Director (IAD) and ISOC in the fiscal and administrative support of the IETF standards process. It also defines how the IAOC is comprised and selected.

The IETF undertakes its technical activities as an ongoing, open, consensus-based process. This document defines an administrative support structure intended to be responsive to the administrative needs of the IETF technical community, and describes how that support structure fits under ISOC's organizational umbrella. This document does not affect the ISOC-IETF working relationship as it relates to standards development or the communication of technical advice relevant to the policy and educational goals of ISOC.

The IETF Administrative Support Activity (IASA) provides the administrative structure required to support the IETF standards process and to support the IETF's technical activities. At the time of writing of this document, this includes the work of IETF working groups, the IESG, the IAB, and the IRTF; it will include any successors to these which have been described by the Internet standards process as part of the technical activities of the IETF. This includes, as appropriate, undertaking or contracting for the work described in [RFC3716]Advisory, IAB., The IETF in the Large: Administration and Execution, March 2004., including IETF document and data management, IETF meetings, and any operational agreements or contracts with the RFC Editor and IANA. The IASA is also ultimately responsible for the financial activities associated with IETF administrative support such as collecting IETF meeting fees, paying invoices, managing budgets and financial accounts, etc.

The IASA is responsible for ensuring that the IETF's administrative needs are met and met well; it is not expected that the IASA will undertake the bulk of this work directly, but rather that IASA will contract this work from others, and manage the contractual relationships in line with key operating principles such as efficiency, transparency and cost effectiveness.

The IASA is distinct from other IETF-related technical functions, such as the RFC Editor, the Internet Assigned Numbers Authority (IANA), and the IETF standards process itself. The IASA has no influence on the technical decisions of the IETF or on the technical contents of IETF work. This in no way prevents people who form part of the IASA participating as individuals in IETF activities.

1.1 Editors' Notes

This document is still a work in progress, and, due to time pressure, the editors have not yet been able to incorporate all of the outstanding change requests. Among other, more substantive issues, the entire document probably ought to be recast in the present tense. Work will continue after this version has shipped.

In some cases the best way to handle a particular suggestion (in the editors' opinion, at any rate) has been to incorporate new text with an "Editors' note" which attempts to explain the change.

The editors request that substantive comments and requested changes be sent, one per message, with a clear and meaningful subject line on each message, as this will make it easier for the editors to keep track of change requests.



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2. Alphabet Soup

Although most of the terms, abbreviations, and acronyms used in this document are reasonably well-known, first-time readers may find this alphabet soup confusing. This section therefore attempts to provide a quick summary.

IAB
Internet Architecture Board (see [RFC2026]Bradner, S., The Internet Standards Process -- Revision 3, October 1996.).
IAD
Internet Administrative Director, defined by this document.
IAOC
Internet Administrative Oversight Committee, defined by this document.
IESG
Internet Engineering Steering Group (see [RFC2026]Bradner, S., The Internet Standards Process -- Revision 3, October 1996.).
ISOC
Internet Society (see [????]).


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3. Structure of the IASA

The IASA will be structured to ensure accountability and transparency of the IETF administrative and fiscal activities to the IETF community. The IASA will be directed and overseen by the IETF Administrative Oversight Committee (IAOC). The IAOC will consist of volunteers, all chosen directly or indirectly by the IETF community, as well as appropriate ex officio appointments from ISOC and IETF leadership. The IAOC will be accountable to the IETF community for the effectiveness, efficiency and transparency of the IASA.

The IASA will initially consist of a single full-time ISOC employee, the IETF Administrative Director (IAD), who will be an officer entitled to act on behalf of the IASA at the direction of the IAOC. The IAD is likely to draw on financial, legal and administrative support furnished by ISOC support staff or consultants. Allocation of costs for ISOC support staff and consultants will be based on an actual expenses or on some other allocation model determined by consultation between the IAOC and ISOC.

Although the IAD will be an ISOC employee, he or she will work under the direction of the IAOC. The IAD will be selected and hired by a committee of the IAOC. The members of this committee will be appointed by the IAOC, and will consist minimally of the ISOC President and the IETF Chair. This same committee will be responsible for periodically reviewing the performance of the IAD and determining any changes to his or her employment and compensation.

In principle, IETF administrative functions will be outsourced via well-defined contracts or equivalent instruments. The IAD will be responsible for negotiating and maintaining those contracts, as well as providing any coordination that is necessary to make sure the IETF administrative support functions are properly covered. The IAOC is accountable for the structure of the IASA and thus decides which functions are to be outsourced. If any functions are done in-house, then they will be clearly specified and documented with well-defined deliverables, service level agreements, and transparent accounting for the cost of such functions.

3.1 IAD Responsibilities

The IAD will be responsible for working with the IAOC and others to understand the administrative requirements of the IETF and for managing the IASA to meet those needs. This will include determining the structure of the IASA effort, establishing an operating budget, negotiating contracts with service providers, managing the business relationship with those providers and establishing mechanisms to track their performance. The IAD may also manage other contractors or ISOC employees (such as support staff) as necessary, when such contractors or employees are engaged in IASA-related work.

The IAD will be responsible for running IASA in an open and transparent manner and for producing regular (monthly, quarterly and annual) financial and operational updates for IAOC and IETF community review.

The IAD will be responsible for administering the IETF finances, managing a separate financial account for the IASA, and establishing and administering the IASA budget. While it is understood that ISOC will need to put some financial controls in place to protect ISOC's fiscal stability, the IAD (with IAOC approval, as appropriate) should have signing authority consistent with carrying out IASA work effectively, efficiently and independently. If there are any problems regarding the level of financial approval granted to the IAD, the IAOC and ISOC commit to working out a policy that is mutually agreeable, and to doing so within a reasonable timeframe.

Service contracts will be negotiated by the IAD (with input from any other appropriate bodies) and reviewed, as appropriate, by the IAOC. It is expected that the IAOC will establish guidelines for what level of review is expected based on contract type, size, cost, or duration. The contracts will be executed by ISOC, on behalf of the IASA, after whatever review ISOC requires in order to ensure that the contracts meet ISOC's legal and financial requirements.

Although the approval of the ISOC President/CEO or ISOC Board of Trustees may be required for some contracts, their review should be limited to protecting ISOC's liabilities and financial stability. The IAD and IAOC are responsible for making all business decisions regarding the IASA. In particular, the ISOC Board of Trustees will not have direct influence over the choice of IASA contractors or IETF meeting sponsors. This restriction is meant to enforce the separation between fund raising and the actual operation of the standards process.

The IAD will prepare an annual budget, which will be reviewed and approved by the IAOC. The IAD will be responsible for presenting this budget to the ISOC Board of Trustees, as part of ISOC's annual financial planning process. The IAOC is responsible for ensuring the suitability of the budget for meeting the IETF community's administrative needs, but the IAOC does not bear fiduciary responsibility for ISOC. Therefore, the ISOC Board also needs to review and understand the budget and planned activity in enough detail to properly carry out their fiduciary responsibility. Each year, the complete IASA budget will published to the IETF community.

Unless explicitly delegated with the consent of the IAOC, the IAD will also fill the role of the IETF Executive Director, as described in various IETF process BCPs.

3.2 IAD Committees

The IAD may constitute special-purpose, chartered committees to bring in expertise (on topics such as finance, IETF process, or tools), to engage volunteers in IASA activities, or to gain additional perspectives. These committees may consist of subsets of the IAOC, IAB or IESG, selected IETF participants, or external experts, depending on the need. These committees are advisory in nature -- the IAD is responsible for the outcome, including presenting and supporting any decisions or work items to the IAOC and the IETF community, as appropriate.

3.3 IAOC Responsibilities

The role of the IAOC is to provide appropriate direction to the IAD, review the IAD's regular reports, and oversee the IASA functions to ensure that the administrative needs of the IETF community are being properly met. The IAOC is not expected to be regularly engaged in the day-to-day administrative work of IASA, but rather to provide appropriate direction, oversight and approval.

Therefore, the IAOC's responsibilities are:

The IAOC's role is to direct and review, not perform, the work of the IAD and IASA. It is expected the IAOC will have periodic teleconferences and face-to-face meetings, as needed to efficiently and effectively carry out their duties.

3.4 Relationship of the IAOC to Existing IETF Leadership

The IAOC will be directly accountable to the IETF Community. However, the nature of the IAOC's work will involve treating the IESG and IAB as internal customers. The IAOC and the IAD should not consider their work successful unless the IESG and IAB are satisfied with the administrative support that they are receiving.

3.5 IAOC Decision Making

The IAOC attempts to reach all decisions unanimously. If unanimity cannot be achieved, the IAOC chair may conduct informal polls to determine the consensus of the group. In cases where it is necessary, some decisions may be made by voting. For the purpose of judging consensus or voting, only the "voting members" (as defined in Section 4IAOC Membership, Selection and Accountability) shall be counted. If voting is used and the votes are equally split, then the IAOC chair decides.

Decisions of IAOC members or the entire IAOC are subject to appeal using the procedures described in RFC 2026 [RFC2026]Bradner, S., The Internet Standards Process -- Revision 3, October 1996.. Appeals of IAOC decisions will go to the IESG and continue up the chain as necessary (to the IAB and the ISOC Board). The IAOC will play no role in appeals of WG Chair, IESG or IAB decisions.



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4. IAOC Membership, Selection and Accountability

The IAOC will consist of eight voting members who will be selected as follows:

There will also be a non-voting, ex officio liaison:

Editors' note: There has been some question about whether the IAB Chair should be a liaison or a voting member of the IAOC. There are multiple trade-offs here, and this should be discussed by the community. Discussion up till November 15th seems to indicate to go for voting member, as currently described in the text above.

The members of the IAOC will serve two year terms. IAOC terms will normally end at the first IETF meeting of a year, similar to IAB and IESG terms.

The members of the IAOC will choose their own chair each year using a consensus mechanism of their choosing. Any appointed voting member of the IAOC may serve as the IAOC Chair; liaisons, the IETF Chair, the IAB Chair, or the ISOC President/CEO may not serve as IAOC Chair. The role of the IAOC Chair is to manage the IAOC. The IAOC Chair has no formal duties for representing the IAOC, except as directed by IAOC consensus.

The two NomCom selected members will be selected using the procedures described in RFC 3777 [RFC3777]Galvin, J., IAB and IESG Selection, Confirmation, and Recall Process: Operation of the Nominating and Recall Committees, June 2004.. For the initial IAOC selection, the IESG will provide the list of desired qualifications for these positions. In later years, this list will be provided by the IAOC. The IESG will serve as the confirming body for IAOC appointments by the NomCom.

While there are no hard rules regarding how the IAB and the IESG should select members of the IAOC, it is not expected that they will typically choose current IAB or IESG members, if only to avoid overloading the existing leadership. They should choose people with some knowledge of contracts and financial procedures who are familiar with the administrative support needs of the IAB, the IESG, or the IETF standards process. It is suggested that a fairly open process be followed for these selections, perhaps with an open call for nominations or a period of public comment on the candidates. The IAB and IESG are encouraged to look at the procedure for IAB selection of ISOC Trustees for an example of how this might work. After we gain some experience with IAOC selection, these selection mechanisms should be more formally documented.

Although the IAB, IESG and ISOC BoT will choose some members of the IAOC, those members will not directly represent the bodies that chose them. All members of the IAOC are accountable directly to the IETF community. To receive direct feedback from the community, the IAOC will hold an open meeting at least once per year at an IETF meeting. This may take the form of an open IAOC plenary or a working meeting held during an IETF meeting slot. The form and contents of this meeting are left to the discretion of the IAOC Chair. The IAOC should also consider open mailing lists or other means to establish open communication with the community.

In the event that an IAOC member abrogates his duties or acts against the bests interests of the IETF community, IAOC members are subject to recall. Any appointed IESG member, including those appointed by the IAB, IESG or ISOC Board of Trustees, may be recalled using the recall procedure defined in RFC 3777 [RFC3777]Galvin, J., IAB and IESG Selection, Confirmation, and Recall Process: Operation of the Nominating and Recall Committees, June 2004.. IAOC members are not subject to recall by the body that appointed them.

4.1 Initial IAOC Selection

The initial IAOC selection will start after this document is approved as a BCP by the IESG and accepted by the ISOC Board of Trustees. The IESG, IAB and ISOC should make their selections within 45-days of BCP approval, and the NomCom should make their selections as quickly as possible while complying with the documented NomCom procedures. The IAOC will become active as soon as a majority (three or more) of the appointed members are selected.

Initially, the IESG and ISOC Board will make one-year appointments, the IAB will make a two-year appointment, and the NomCom will make one one-year appointment and one two-year appointment to establish a pattern where approximately half of the IAOC is selected each year.



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5. IASA Funding

Editors' note: Changes were made to this section to be more specific about funding sources and where they go. Some text has also been added or changed regarding the reserve funds.

The IASA will manage money from three sources:

  1. IETF meeting revenues.
  2. Designated ISOC donations, monetary and in-kind.
  3. Other ISOC support.

Note that the goal is to achieve and maintain a viable IETF support function based on meeting fees and specified donations, and the IAOC and ISOC are expected to work together to attain that goal. For example, dropping the meeting fees to $0 and expecting ISOC to pick up the slack is not desirable; neither is raising the meeting fees to prohibitive levels to fund all non-meeting-related activities.

5.1 IETF meeting revenues

Meeting revenues are an important support mechanism for IETF functions. The IAD, in consultation with the IAOC, sets the meeting fees as part of the budgeting process. All meeting revenues go into the IASA account.

5.2 Designated donations, monetary and in-kind

Donations are an essential component of funding. The IASA undertakes no direct fund-raising activities. This establishes a practice of separating IETF administrative and standards activities from fund-raising activities, and it helps ensure that no undue influence may be ascribed to those from whom funds are raised.

ISOC will create and maintain appropriate structures and programs to coordinate donations intended to support the work of the IETF, and these will include mechanisms for both in-kind and direct contributions to the work supported by IASA. Since ISOC will be the sole entity through whom donations may be made to the work of the IETF, ISOC will ensure that those programs are not unduly restrictive. For the benefit of individuals, smaller organizations and countries with developing economies, it will maintain programs that allow for designated donations to the IETF either using an overhead model or other unrestricted donation program.

ISOC will create appropriate administrative structures to coordinate such donations with the IASA. In particular, it is important that in-kind contributions be "useful". In-kind resources are owned by the ISOC on behalf of the IETF and shall be reported and accounted for in a manner that identifies them as such. Designated monetary donations will be deposited in the IASA account.

5.3 Other ISOC support

Other ISOC support shall be based on the budget process as specified in Section 6IASA Budget Process. ISOC will deposit the yearly amount (as agreed to in approved budget) in equal portions. At a minimum such deposits will be made quarterly.

If ISOC directly funds any other IETF expenses, such as the IETF share of ISOC's liability insurance premium, this will be documented together with the other IASA accounts.

5.4 Operating Reserve

In normal operating circumstances, the IASA would look to have an operating reserve for its activities sufficient to cover 6-months of non-meeting operational expenses, plus twice the recent average for meeting contract guarantees. Rather than having the IASA attempt to accrue that reserve in its separate account, the IASA looks to ISOC to build and provide that operational reserve (through whatever mechanisms ISOC deems appropriate -- line of credit, financial reserves, meeting cancellation insurance, etc). Such reserves do not appear instantaneously; the goal is to reach this level of reserves by 3 years after the creation of the IASA. Such funds shall be held in reserve for use by IASA for use in the event of IETF meeting cancellation or other unexpected fiscal emergencies. These funds shall be dedicated to IETF support functions.



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6. IASA Budget Process

While the IASA sets a budget for the IETF's administrative needs, its budget process clearly needs to be closely coordinated with ISOC's. The specific timeline will be established each year. A general annual timeline for budgeting will be:

July 1:
The IAD presents a budget proposal for the following fiscal year, with 3 year projections, to the IAOC.
August 1:
The IAOC approves the budget proposal for IETF purposes, after any appropriate revisions. As the ISOC President is part of the IAOC, the IAOC should have a preliminary indication of how the budget will fit with ISOC's own budgetary expectations. The budget proposal is passed to the ISOC Board of Trustees for review in accordance with their fiduciary duty.
September 1:
The ISOC Board of Trustees approves the budget proposal provisionally. During the next 2 months, the budget may be revised to be integrated in ISOC's overall budgeting process.
November 1:
Final budget to the ISOC Board for approval.

The dates described above are subject to change, and will most likely be modified based on the dates of the Second and Third IETF meetings.

The IAD will provide monthly accountings of expenses, and will update forecasts of expenditures quarterly. This may necessitate the adjustment of the IASA budget. The revised budget will need to be approved by the IAOC, the ISOC President/CEO and, if necessary, the ISOC Board of Trustees.



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7. ISOC Responsibilities for IASA

Within ISOC, support for the IASA should be structured to meet the following goals:

Transparency:
The IETF community should have complete visibility into the financial and legal structure of the ISOC standards activity. In particular, the IETF community should have access to a detailed budget for the entire standards activity, quarterly financial reports and audited annual financials. In addition, key contract material and MOUs should be publicly available. Most of these goals are already met by ISOC today. The IAOC will be responsible for providing the IETF community with regular overviews of the state of affairs.
Unification:
As part of this arrangement, ISOC's sponsorship of the RFC Editor, IAB and IESG will be managed as part of the IASA under the IAOC.
Independence:
The IASA should be financially and legally distinct from other ISOC activities. IETF meeting fees should be deposited in a separate IETF-specific financial account and used to fund the IASA under the direction and oversight of the IAOC. Any fees or payments collected from IETF meeting sponsors should also be deposited into this account. This account will be administered by the IAD and used to fund the IASA in accordance with a budget and policies that are developed as described above.
Support:
ISOC may, from time to time, choose to transfer other funds into this account to fund IETF administrative projects or to cover IETF meeting revenue shortfalls. There may also be cases where ISOC chooses to loan money to the IASA to help with temporary cash flow issues. These cases should be carefully documented and tracked on both sides. ISOC will work to provide the operational reserve for IASA functioning described above.
Removability:
While there is no current plan to transfer the legal and financial home of the IASA to another corporation, the IASA should be structured to enable a clean transition in the event that the IETF community decides, through BCP publication, that such a transition is required. In that case, the IAOC will give ISOC a minimum of six-months notice before the transition formally occurs. During that period, the IAOC and ISOC will work together to create a smooth transition that does not result in any significant service outages or missed IETF meetings. All contracts that are executed by ISOC as part of the IASA should either include a clause allowing termination or transfer by ISOC with six months notice, or should be transferable to another corporation in the event that the IASA is transitioned away from ISOC in the future. Any accrued funds, and IETF-specific intellectual property rights concerning administrative data or tools would also be expected to be transitioned to the new entity, as well.

Within the constraints outlined above, all other details of how to structure this activity within ISOC (whether as a cost center, a department, or a formal subsidiary) shall be determined by ISOC in consultation with the IAOC.



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8. Security Considerations

This document describes the structure of the IETF's administrative support activity. It introduces no security considerations for the Internet.



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9. IANA Considerations

This document has no IANA considerations in the traditional sense. However, some of the information in this document may affect how the IETF standards process interfaces with IANA, so IANA may be interested in the contents.



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10. Acknowledgements

The editors would like to thank the following people for their feedback on the original "Scenario O" e-mail message or intermediate versions of this document: Bernard Aboba, Harald Alvestrand, Brian Carpenter, Dave Crocker, Tony Hain, Joel Halpern, John Klensin, and Eliot Lear.

Particular thanks are due to Leslie Daigle and Margaret Wasserman, who wrote the original "Scenario O" message and edited the earliest versions of this document.

This document was written using the xml2rfc tool described in RFC 2629 [RFC2629]Rose, M., Writing I-Ds and RFCs using XML, June 1999..

No doubt the above list is incomplete. We apologize to anyone whom we left out.



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11. Change Log

This document was produced as part of the overall IETF Administrative Restructuring (AdminRest) effort. Information about the effort and related documents can be found at:

http://www.alvestrand.no/ietf/adminrest

We are using an issue tracker to track the editorial and substantive feedback on this document. It can be found at:

https://rt.psg.com (user: ietf, password: ietf, queue: iasa-bcp).

Changes in draft-ietf-iasa-bcp-00.txt:

Changes in draft-wasserman-iasa-bcp-01.txt:

Origination of draft-wasserman-iasa-bcp-00.txt:

draft-wasserman-iasa-bcp-00.txt was derived from an e-mail message written by Leslie Daigle and Margaret Wasserman and posted to the IETF by Leslie Daigle. The original message can be found at:

http://www1.ietf.org/mail-archive/web/ietf/current/msg31326.html

This document was derived from the "Draft BCP" portion of that message and has been updated based on comments received.



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12. References



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12.1 Normative References

[RFC2026] Bradner, S., "The Internet Standards Process -- Revision 3", BCP 9, RFC 2026, October 1996.
[RFC3716] Advisory, IAB., "The IETF in the Large: Administration and Execution", RFC 3716, March 2004.
[RFC3777] Galvin, J., "IAB and IESG Selection, Confirmation, and Recall Process: Operation of the Nominating and Recall Committees", BCP 10, RFC 3777, June 2004.


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12.2 Informative References

[RFC2629] Rose, M., "Writing I-Ds and RFCs using XML", RFC 2629, June 1999 (TXT, HTML, XML).
[RFC3667] Bradner, S., "IETF Rights in Contributions", BCP 78, RFC 3667, February 2004.
[RFC3668] Bradner, S., "Intellectual Property Rights in IETF Technology", BCP 79, RFC 3668, February 2004.


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Authors' Addresses

  Rob Austein (editor)
  Internet Systems Consortium
  950 Charter Street
  Redwood City, CA 94063
  USA
EMail:  sra@isc.org
  
  Bert Wijnen (editor)
  Lucent Technologies
  Schagen 33
  3461 GL Linschoten
  NL
EMail:  bwijnen@lucent.com


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Intellectual Property Statement

Disclaimer of Validity

Copyright Statement

Acknowledgment