Is Democracy Possible in the Internet?
Jenny Shearer
(Department of Computer Science
University of Auckland
jshearer@cs.auckland.ac.nz)
Hermann Maurer
(Institute for Information Systems and Computer Media
Graz University of Technology
hmaurer@iicm.edu)
Abstract: Concepts of democracy have been developed and refined
since Aristotle's time. However it is not until the new millennium that
a unique set of circumstances, social, technical, and economic, have enabled
a realistic plan of an e-democratic world to emerge. It is the lot of the
internet generation to carry this vision through a maze of regulatory and
commercial obstacles. The most important development on the internet in
terms of its impact is e-commerce and the flow of support from governments
and the market. It may appear that social and political aspirations for
the internet have been eclipsed. However, on the contrary, global online
commerce is providing opportunities for e-democracy to meet ethical and
strategic challenges. The ultimate goal is to create peaceful change in
key areas of global governance. We investigate some of those aspects in
this paper.
Keywords: Cyber Ethics, e-Democracy, Freedom of Speech, Internet
Legislation
Category: K.4, K.5, K.7
1 Introduction
The question of whether it is possible for ethical change and advancement
on a global scale to occur when governments and international commerce
appear intent on "patching" old style governance on to the internet,
is a crucial one in addressing the current conflicts we see in many regulatory
areas. In development, despite the recent market correction, the important
force is e-commerce. In the flow of support for this from governments and
the market, it may appear that social and political aspirations for the
internet have been eclipsed by repressive measures taken to protect property,
to monitor criminals, and to "protect" certain populations from
the e-democracy virus.
However global online commerce, with its new ethics, its access, could
be the powerhouse of a new public information system to join the best thinking
of the pre-internet communications era with a logical progression to meeting
the challenges of a global environment beset with major problems. Indeed,
in the short history of the internet much of the publicly available information
on it has been provided by commercial websites.
The key to e-democracy as a global future is the integration of objectives
of democratic process with strongly functioning e-commerce, the intelligent
participation of existing agencies of governance, and particularly, non-governmental
organisations. [Shearer 1999].
The aims are those of progressive global ethics: to create a sustainable
environment, or at least an environmental soft landing for the issues of
environment which are already in spiral; a responsible global economic
plan; and a new politics in which human rights and equality hold a higher
priority than national glory or ethnic pride. Many global ethics proposals
(by UN agencies and commissions, and non-governmental agencies) include
the objectives of environmental sustainability, improved human rights,
a better social order, strengthened responsibility, empowerment of peoples,
and the end of poverty and hunger [Lubbers 2000].
Computers and associated technology of the internet and intranets have
the power to enable these objectives to be met. The societal circumstances
that allow a global renaissance of shared values is more subtle, but positive
indicators are present.
Let us take a look at these. Firstly, the internet has the potential
to develop many, if not all, of the features of ideal public discourse
put forward by Juergen Habermas, that is, the notion that people may communicate
in a public sphere without distortions of ideology or power imbalance.
This communicative environment represents the theoretical "space between
power and ideas" on which Jason Neidleman bases a theory of democratic
legitimacy [Neidleman 1997]. Further, the desire
of a considerable number of people of the internet community to achieve
a free and open communicative situation in the internet is captured in
Internet Society founder Vint Cerf's assertion "the internet is for
everyone" [Cerf 1999]. The statement implicitly
promises an effective voice for the individual, and raises the prospect
of global universal access.
This paper attempts to show that while the statement is well understood
by members of, for example, scores of Internet Society national Chapters,
there are other ethical statements that are equally well understood but
as yet not fully articulated; these statements (following) constitute the
core concepts of e-democracy:
All people have the right to a public voice and privacy of communications
on the internet.
All people have the right to quality, timely information on the internet.
All people have a right to a political and economic structure in which
their voice will be heard and acted upon. All people have a right to use
the internet to promote human rights and the public good.
Legitimacy for these statements flows partly from a key observation
of this paper derived from a study of journalistic ethics; that all around
the world people support free media. They seek uncensored, honest media
and the resulting ability to make informed political choices. Fulfillment
of their aspirations will be found in the "ideal" that is, the
ethically operating, democracy of the internet.
2 The Cyber Ethical Ideal
The global responsibility is to create a cyber ethical communicative
situation within the internet, while observing that the action of creating
an ethical Internet immediately has powerful political consequences. As
mentioned, an instructive construct is that of journalistic principle,
which represents the best efforts of professionals in the sphere of press
and broadcast mass communications over half a century in developing ethics
of journalism.
It represents an international movement towards a "free press"
or unfettered public discussion, against the constraints that individual
governments or publishers have chosen to put in place. Educating internet
users in accepted journalistic practice, which is specifically about handling
public information content, should develop a defensible "Code of Practice"
for e-democratic communications in general. Internet users who are potentially
all collectors, writers, and publishers of information, should follow ideals
of public expression using the internet in order to create a legitimate
global e-democratic forum.
Codes of Ethics for journalism are developed by groups of journalists,
often journalists' unions, in an attempt to facilitate the best functioning
of a free press or broadcasting system. A study which compared a proposed
internet cyber ethical Code (an expanded version of the e-democracy core
principles given above) with a diverse sample of national journalistic
Codes of Ethics used the content analysis software TEXTPACK. [Textpack
2002]. It found a significant match to cyber ethics in ten categories
representing important journalistic values, with the exception of an eleventh
category which represented national interest [Shearer
1999]. Category one is the concept of standardisation of practice or
conforming to a journalistic ideal of practice. The second category is
the concept of openness and public disclosure. The third category is the
concept of privacy or confidentiality in communications. The fourth category
is the concept of independence or free speech. The fifth category is the
concept of public good or public interest. The sixth category is the concept
of fairness in the treatment of information, expressed in journalistic
terms as impartiality. The seventh category is the concept of professionalism,
of capably carrying out duties. The eighth category is the concept of rights,
whether human rights, individual rights, or national rights.
The ninth category is the concept of authenticating or identifying the
source of information. The tenth category is the concept of acceptance
of cultural diversity. The eleventh category refers to the concept of national
interest, in which the Internet Code, with its global focus, diverged from
journalistic codes.
If we integrate these contemporary insights of journalistic codes with
current developments of moral philosophy, internet culture, and critical
analysis of internet policy areas, we are able to establish a set of pre-conditions
in which e-democracy will thrive in conjunction with e-commerce. Thus we
have the cyber ethical Code below, a logical progression towards a globally
acceptable informational, commercial, and political environment. The principles
are:
- A standardised internet infrastructure.
A strong and coherent infrastructure takes in issues of technical standards
and open operational standards such as open source software, a coherent
domain name system that has the welfare of users as the first priority,
and independent certification authorities for use of public key encryption.
- Maintenance of interconnectivity.
Maintenance of interconnectivity is a strongly accepted value of the
Internet that may be challenged by people wishing to remove links, for
example, for commercial reasons.
Connectivity issues may arise in disputes between various service providers.
The internet community should support the position that attempts to limit
connectivity are wrong, because connectivity is a technical precondition
to the best operation of the internet. Any loss of connectivity must be
shown to be overriding public interest.
The principle of open internet commerce opposes oppressive regulations
that may limit the opportunities for open competition in the market, and
also, monopolistic practices by powerful commercial interests that threaten
the free working of the market. Oppressive trademarking regulations imposed
in areas of domain name registration for example, penalise small, less
powerful businesses. Open commerce ethics imply a fair chance for small
businesses and room for poorer countries to contribute in the commercial
arena.
- Privacy of communications.
The right to privacy of communications is an implicit principle of living
to many people, in the sense that it has never been challenged on the scale
that is made possible by electronic communications. The challenge by national
governments to use of cryptography to secure communications and databases
is causing the internet community to define an ethical position strongly
supporting privacy of communications. Where privacy of communications is
lost, any semblance of political dissent by citizens is threatened, (along
with emerging e-democracy) whilst market strategy or innovation is also
compromised. Governments and their agencies have a record of misuse of
access to private information entrusted to them, and have tried a number
of tactics aimed at gaining control of cryptography use [Shearer&Gutmann
1995]. If democratic countries recognise their citizens' right to privacy
of communications, less democratic countries may eventually fail to hold
out under pressure from their own citizens, who will be profoundly disadvantaged
in terms of commercial and political transactions.
We see the political implications of cyber ethical thinking when it
becomes a logical progression that internet companies should refuse to
cooperate with general surveillance attempts by national governments, in
the interests of their customers who are global citizens with rights. With
the advent of the USA as a relatively benign military superpower, national
governments have effectively lost their role as military defender of their
peoples. Add to that the cultural globalisation of the internet, and national
governments are turning their attention more to maintaining their own power
base among their own people as their own legitimacy in traditional areas
becomes questionable. Electronic surveillance and the resulting ability
for national governments to suppress dissent and interfere with the public,
private, and commercial activities of citizens, are serious threats for
democracy in this century.
- Freedom of speech within the internet (with the proviso that the best
interests of children are protected in information delivery).
The principle of freedom of speech is a highly valued "traditional"
value of the internet community. Its beginnings may be traced to the forums
of ancient Greece, through the Enlightenment of the eighteenth Century,
and the traditions of a free press. We see the divergence of these concepts
from the pure libertarian views of many early internet users from the USA,
in the widely accepted proviso that the best interests of children are
protected, for example by attempts (of varying quality) to help using ratings
systems and screening software. This assumes a global consensus that children
are vulnerable to adverse influences of the highly accessible open forum
of the internet. However the current progression towards legislation to
protect children from, for example, on-line stalking and grooming by paedophiles,
should be informed by the right of children put forward in the United Nations,
that children should have a full societal education [UN
Convention on the Rights of the Child 1990]. This Convention, signed
off by everyone except the USA and Somalia, may be read as establishing
a right by children to explore the important global public knowledge system
and society of the internet. In order to balance protection and rights,
all efforts should be made to protect children by catching and punishing
paedophiles. However, the easy route of forbidding access to the internet
by children, or severely limiting their experience of the internet forum,
is unethical. Education of children in using the internet safely is a part
solution [Responsible Netizen Project 2002].
- Universal Internet access.
Universal internet access may be seen as a logical end-point to a global
electronic "network" which for full communications efficiency,
would put the world on-line. However, the aspect of universality also takes
in the ethical concept of human equality, in that it presupposes that everyone
should have the right to share in the opportunity provided by electronically
facilitated global citizenship.
- Freely accessible public interest information.
The issue of freely accessible "public good" information (that
is, information important to the functioning of global civic and political
life) to be available at little or no cost, is, for example, debated in
the area of international copyright regulation. The internet community
has had success in fighting attempts to impose restrictive copyright regulation
that would restrict access to and use of electronic information previously
in the public domain.
An important setback is the Digital Millennium Copyright Act (DCMA)
of 1998, enacted in the USA, that has created the new crime of circumvention
of copyright. This legislation, which the USA is attempting to export around
the world, is a threat to more than a century of respect to fair-use rights
of consumers and has also resulted in lawsuits implicating academic freedom
and free speech. The fair-use doctrine is important to the development
of e-democracy as it enables limited use of copyrighted material without
having to pay a fee or obtain prior approval of the copyright owner, for
purposes students, educators, consumers, journalists and libraries may
have in going about their public sphere activities on a daily basis. If
it is compromised to the point where a fee per use had to be paid, such
activities would be severely circumscribed.
- Regard for the diverse cultures of global society.
A global community must by its nature, accept individuals without discrimination.
Indeed the internet offers a global forum where discrimination is difficult,
as, for example, ethnicity and religious affiliation are not necessarily
apparent in cyberspace. However the principle of inclusion implies that
efforts should be made to allow full participation and communication between
people from different cultures. There is opportunity for oppressed groups
to maintain their culture in the freedom of cyberspace, protected by cryptography.
Following on from a globalisation process that has initially favoured use
of the English language, much development using different languages is
taking place within the internet.
- Mediation and jurisdiction to promote fairness.
Mediation of internet-related conflicts involving national and global
organisations is part of the process of building an ethical infrastructure,
and a number of internet community groups are active in this area. A structure
of mediation and jurisdiction within the internet will promote fairness
in civic and commercial activities.
- Authentication of information or establishment of levels of verification
of information sources.
Authentication of information or establishment of levels of verification
of information sources, is an important precondition for electronic commerce,
establishment of reliable public services, and trust in use of the internet.
Levels of verification however, also include anonymity, which may be employed
by people who wish to protect themselves (for an example of an important
global societal function) against political oppression. However pressure
is placed on the acceptance and promotion of anonymity by the conflicting
needs of law enforcement agencies, that see anonymity as a weakness in
the internet which can be used to facilitate crime. Similarly, they see
data havens as an attempt to escape the long arm of the law, rather than
as a means of assuring privacy of data that may be considered sensitive
for many reasons other than that it is evidence of crime.
- Maintenance of adequate bandwidth.
Maintenance of adequate bandwidth, with development free from political
or market-imposed constraints, is a technical precondition with a strong
"ethical" content. Computer scientists, engineers, and commercial
interests devising solutions to bandwidth and other technical pressure
points are ensuring the well being of an infrastructure that may have a
vital role in global improvement. Graphics-based interfaces (using high
bandwidth) may have a strong role to play in communications with less developed
countries, and may, for example, be cited as a reason to give development
aid.
- Observance of the United Nations Universal Declaration of Human Rights.
An e-democratic community treats all of its members as equals in the
global civic space of the Internet. In this way it is adhering to the global
declaration of rights of humans made by the United Nations. Article 19
of the Universal Declaration of Human Rights explicitly protects freedom
of information for all and specifically, the freedom to hold opinions without
interference and to seek, receive, and impart information and ideas through
any media [United Nations 1948]. This may be deemed
the right to communicate. This right should be forwarded in respect of
asylum seekers, for example. Though they are not under the protection of
any state, they should have the right to internet access and to the e-democratic
environment, where their concerns may be heard. In 2002 Children at the
Australian asylum seekers' detention centre of Woomera sewed their lips
together in a voiceless protest at their treatment.
It is appropriate, therefore, for theorists to attempt to engage the
global community in constructing a global internet ideology both to justify
interventions to prevent distortion of the public sphere, but also to construct
a future strategy for global e-democrats of the internet. In this context,
ideology refers to a particular set of ideas that legitimates political
or societal relationships. For the purpose, the authors advocate a neo-Aristotelian
approach which reinterprets a venerable reliance on reason and concepts
of the greater good in governance, with the important qualifiers of modern
discourse ethics presented by Lyotard et al. Put simply, we may all see
the world from our own consciousness and perspective, but our rationality
allows us to find common ground. Progress may be a process of moving from
a basis of global principles to strategising and scenario building as a
way of confronting the problems that confront us as a global population
- and we may observe that the process is already underway in the ad hoc
fashion that typifies much internet activity. For example, internet businesses
are confronting the problems of trust in a global environment in which
differing jurisdictions may make it difficult to seek redress for transactions
made in bad faith, whether the transactions are business to business or
business to customer. The result is an increasing interest in evidence
of and presentation of good business ethics, in areas such as data privacy
and security of financial transactions. A strong relationship between environmental
and social ethics and sustainable financial performance in international
companies, is now demanded by lobby group watchdogs, and the concept of
a triple bottom line, measuring environmental and social, as well as financial,
value, is part of the repertoire of a number of high profile corporations.
In future, evidence of commitment to ethical practice of e-commerce, of
safe handling of data and of environmental responsibility, should become
part and parcel of the public life of e-commerce. However it is non-government
organisations that will increasingly bear the burden of collaboration to
promote a commercial environment that does not punish particular regions
or societies, and to make the complex interactive calculations of actions
that will accrue greatest benefit to poorer countries.
The question of taxing of internet transactions is of concern to national
governments. Should there be a tax on goods sold via the internet (these
may be easily subject to tax as they enter national borders), and should
informational transactions should also be subject to tax? The implications
of a tax on informational transactions could include disadvantage to, for
example, developing economies that may be highly dependent on knowledge
gathered outside their national borders. Regulatory problems include the
existence of different tax rates and regimes around the world, making a
standardised approach difficult. But more importantly, informational tax
gatherers may run into the same mass disobedience that has been demonstrated
by the spread of music via MP3 files and other technologies in defiance
of copyright regulation. Where internet users perceive an opportunity to
circumvent what they perceive as unfair costs or practices, they may respond
in vast, virtually unpunishable numbers. In future innovative solutions
may be sought. For example, contributions to infrastructure may be made
in the form of dedicated services to public good activities, which many
on-line companies already undertake voluntarily in the form of web pages
containing public information. Such services could be made available in
exchange for tax exemption on informational transactions.
3 The Strategy of Economic Reform
The ideal and the reality may readily be compared using the informational
resources of the internet. News reports, analyses of wars and conflicts,
opinions, and political action websites may easily be located using search
engines. The debate over the effects of global free trade on poorer groups
and on the environment, continuing wars and conflicts between ethnic groups,
and the status of hunger and disease indicate that global democracy and
equality of opportunity is a distant goal. But further, the structures
to support e-democracy have not yet been set up within cyberspace. Internet
pressure groups such as EFF (Electronic Frontier Foundation) report on
perceived threats to the internet [Electronic Frontier
Foundation 2002], but the power to effectively battle oppressive regulation
has not been established, and the organisation of remedial scenarios remain
the domain of interest groups.
Demands from the markets and competing ideologies are already constraining
the internet. There is a shift away from the power of national governments
towards a vast global meeting place and power brokerage center. The "downside"
scenario is one of the silencing of the moral internet community by an
extension of broadcast techniques, brain-free hardware such as "thin"
technologies, and control by multinational corporations. We see this capture
of traditional media in production of news presented as entertainment,
reality TV, sitcoms, and similar mass appeal material, which is highly
influenced by the needs of advertisers to reach as wide an audience as
possible. The communications cartels are already responding to the present
highly interactive and free environment of the internet by reining it back
to a more passive or "pushed" conformation that will allow them
to reassert control.
Timothy Roscoe argues that the construction of a World Wide Web "audience"
has been carried out through the media, and is assisted by poor general
knowledge of internet technology. He cites the use of dynamic IP addressing,
which allows the user to access the internet but removes interactivity
(a key democratising factor of the internet) because a static address for
the user does not exist to enable replies.
The myth of technological determinism (inevitable technological progression)
seems to have such a huge but silent presence in the discourse surrounding
culture and technology. Ironically, it seems to be much less prevalent
among engineers, perhaps because they do have first-hand experience of
how artifacts are produced. The challenge seems to be to bridge the gap
between those who through lived experience understand the creation of technology,
and those whose chosen occupation is to interrogate its relationship with
wider social formations [Roscoe 1999].
Analysis of a number of areas of internet activity indicates that the
activities of the multinational corporations and their influence on the
international internet policy and regulatory framework currently amount
to an attempt to create a form of global control in the shadows. This involves
collusion between multinational corporations and the unspoken assumption
that international commerce may rule itself out of the public ethical arena
by nature of its economic functions. The cartel of multinational corporations
and associated global regulatory groups loosely follow the mindset of the
USA (which is showing a high level of activity in the regulatory area)
but is not under the overt control of any particular national group. As
mentioned above, a great amount of power may be taken from nations as the
globalisation of cultures, communications and markets continues. Deceptively,
their facades remain intact. The moral flaw is that while the shots may
be called by increasingly concentrated cartels, the cartels do not accrue
the traditional responsibility of power, that is, the welfare or protection
of people under their control. A "shadow" global regime of multinational
corporations working in collusion has no such mandate or intention.
The opportunity for an era of global irresponsibility is created by
the immense power of an electronic communications system, which can reach
a large chunk of the global population, can meet their needs in many ways,
and can be potentially controlled for profit. It is tempting to say that
cultural and religious difference may become defined as personal property
(and protected as such under copyright and other legislation) but will
not carry economic or political weight.
The "Third Way", an economic strategy promoted by developed
countries, promotes deregulation, privatisation, flexible labour markets,
free trade, and reduced social infrastructure, which all favour the multinational
corporations. However, in theory, the benefits should be shared in part
by the winners with those nations lagging in the economic race. In practice,
the poorer countries have found they are the losers. Reich argues that
a social contract is required to enable losing countries to access resources
to help them compete [Reich 1999]. Such a contract,
and its implementation strategy, should be an e-democracy project.
Highly publicised protest and debate about international trade negotiations
and the impacts on poorer nations (and their attempts to build negotiating
power with strategic collaboration) indicate that public awareness could
be built into a global coalition to use market forces (actions by individual
or corporate customers) to modify the activities of global corporations.
Many of these corporations are in a state of unprecedented fragility as
a result of swiftly changing e-commerce requirements as it is. It is also
unrealistic to expect that coalitions of international corporations will
themselves impose effective constraints on their activities. The power
and reach of the internet and the capacity to collate and disseminate public
interest economic information (which may well involve the resources of
responsible e-commerce entities) may in future oblige multinational corporations
to accept limits on globally irresponsible commercial behaviour.
Cyber ethical corporations may collaborate in the market modification
process which we see working on a small scale, in some consumer boycotts
for public good causes.
4 The Future: Internet 2
The maintenance and upgrading of the Internet is a necessary precursor
to reaching societal goals. Important issues for the future are: increasing
rates of data transmission to supply the ever-increasing functions of the
Internet; improving global reach at low cost; reform of existing protocols
to better serve Internet users; and supply of hardware that serves the
necessary individual informational needs and interactive capability of
the e-democrat.
The Internet construction has a flexibility that so far has been able
to accommodate huge growth. A NUA internet survey's "educated guess"
as to numbers online worldwide at August 2001 was approximately 500 million.
However there is a substantial imbalance around the world, with the developed
countries of Canada and the USA the top at nearly 200 million, followed
by Europe and the Asia-Pacific region at around 150 million each. Latin
America follows with approximately 25 million users, and the Middle East
and Africa are seriously lagging at around five and four million users
respectively. [NUA surveys 2001] This presents the
global community with a problem; how do these lagging nations acquire the
internet access that will enable them to take part in the important global
dialogue to come? This issue takes on increasing urgency following the
"September 11" attack in the USA and the potentially divisive
global repercussions of military "solutions" that are planned
to follow the Afghanistan intervention.
Despite the efforts of multi-national corporations to set up large monopolistic
information provision systems, a key point to understanding internet structure
is that the Internet resists centralisation because its users are the information
providers. Success has been found by enabling users to find like-minded
people or clustering information links. It may prove worthwhile that future
structures in the levels of software and programming, and the information
infrastructure, will be diverse and either administered by smaller flexible
units or companies, or will employ a system which gives a high level of
control to the user. This assumes open standards will be maintained.
However, at the level of physical and technical infrastructure, the
power of the multinational corporations and developed countries is at its
height. Privileged countries may view the internet as a tool that can be
used to forge a future in which their economic dominance will be maintained
on the basis of access and highly developed intranets. However the use
of satellite and wireless technologies have the potential to keep all countries
on-line and participating.
5 Conclusion
Nothing less than a global e-democracy movement fully supported by global
non-governmental agencies will have the capacity to generate the change
required for a stable future society and environment.
Global strategy forums employing cyber ethical operation and the best
resources of internet technology will enable the e-democrat movement to
leap over the moral and economic inertia of multinational corporations
and the national governments. This global democracy of the future will
create accepted change outcomes because of the technological ability of
the global collaborators to create "open source" social, economic,
and environmental solutions involving unprecedented complexity and coordination.
Global citizens will see themselves as part of the solution to the "big
issues" described. It is clear there is an important role for such
organisations as the United Nations, cyber ethical corporations, internet
and human rights organisations, environmental activists, and many other
diverse interest groups of global society. The influence of the e-democratic
movement is potentially vast and includes the ability to reshape the global
economy using precise and time-sensitive market manipulation to allow responsible
global redistribution of essential resources.
The immediate strategy for promotion of e-democracy is the realisation
of an optimal internet global infrastructure, and the educative process
of developing a consciousness of cyber ethical principles for its use.
But more important than the nuts and bolts of a future global management
system, is the ownership and leadership of e-democracy itself. This may
emerge from the promising global community of the internet and its informal
communication system, or may result from a collaboration of existing global
agencies.
The potential value of the cyber ethical internet is more than the sum
of its parts because its power will derive from the peaceful base of hundreds
of millions of individuals using the internet to realise global democracy.
To refer back to the title of this paper, democracy in the internet is
not only possible, it is a natural progression for global citizens to "own"
the technology and put it to best use.
Acknowledgement
This paper is based on a chapter in the Ph.D. thesis [Shearer
1999] of the first author - Jenny Shearer - with the second author
- Hermann Maurer - acting as main supervisor.
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