[sig-policy] prop-066-v004: Ensuring efficient use of historical IPv4 resources

[Randy Bush <randy@psg.com>]

Dear colleagues

Below is an updated version of the proposal that reached consensus in
the Policy SIG yesterday.  Version 4 contains a clarified description
of the proposal's intent in sections 1 and 4 following discussion at
the APNIC 26 Policy SIG. The proposal itself remains changed.

The proposal's history can be found at:

        http://www.apnic.net/policy/proposals/prop-066-v004.html


Regards
Randy and Jian


________________________________________________________________________

prop-066-v004: Ensuring efficient use of historical IPv4 resources
________________________________________________________________________


Authors:   Brenda D. Tarimel
            btarimel@palaunet.com

            Philip Smith
            pfs@cisco.com

            James Spenceley
            james@vocus.com.au

Version:   4

Date:      28 August 2008


1.  Introduction
----------------

This is a proposal to require documentation of all historical address
resources held when assessing an APNIC account holder's eligibility
for more IPv4 addresses.


2.  Summary of current problem
------------------------------

The unallocated pool of IPv4 addresses is predicted to run out within
the next few years.  As the unallocated pool dwindles, it is important
to ensure that the remaining IPv4 addresses are allocated responsibly
and fairly.

Currently, when LIRs apply for new IPv4 allocations from APNIC, they
only have to include the past allocations they have received from
APNIC as part of the documentation and justification process.  They do
not have to declare any historical addresses [1] they may have
received prior to receiving address space from APNIC.

As a result of this, there is a large amount of historical IPv4
address space where little or nothing is known about its use.

At the moment LIRs can receive more scarce IPv4 address space from
APNIC while at the same time hoarding unused historical address space.
This uses up the remaining IPv4 pool more rapidly than is really
necessary.


3.  Situation in other RIRs
---------------------------

The situation in other RIRs is as follows:

AfriNIC and the RIPE NCC only ask for utilisation of previous
allocations and assignments made by AfriNIC and the RIPE NCC
respectively.  They do not require legacy holdings to be declared.

ARIN and LACNIC always ask for utilisation for all previous
allocations and assignments, including all legacy holdings.

This proposal has not been submitted to any other region.


4.  Details of the proposal
---------------------------

This is a proposal to require documentation of all historical address
resources held when assessing an APNIC account holder's eligibility
for more IPv4 addresses.

     - This proposal applies to all historical resources as defined in
       "Policies for historical Internet resources in the APNIC Whois
       Database" [1].  Historical records include:

           - Registrations transferred to APNIC as part of the AUNIC to
             APNIC migration

             A list of resources transferred to APNIC as part of the
             migration is available at:

                  http://www.apnic.net/db/aunic/


           - Registrations transferred as part of the Early
             Registration Transfer (ERX) project

             A list of resources transferred to APNIC as part of the
             ERX project is available at:

                  http://www.apnic.net/db/erx


           - Historical APNIC resources

             Historical APNIC resources were delegated to organisations
             by APNIC prior to the introduction of a membership
             structure.  These resources have always been registered in
             the APNIC Whois Database, but if the resource holder did
             not become an APNIC member at any time after the
             introduction of the membership structure, the resources
             were not made subject to current APNIC policies.


     - Historical IPv4 resources that are not managed under the
       existing historical maintenance or transfer policies will remain
       free of fees.


5.  Advantages and disadvantages of the proposal
------------------------------------------------

5.1 Advantages

     - Ensures that organisations are using scarce IPv4 address space
       resources to the fullest extent possible.

     - The utilisation of historical IPv4 addresses will be brought
       into line with current best practices for address management.

     - The remaining IPv4 free pool will be delegated to LIRs that have
       a genuine need for IP addresses.


5.2 Disadvantages

     - Organisations can no longer hoard unused address space while at
       the same time receive more scarce address space from APNIC's
       pool.

     - LIRs with historical IPv4 addresses may find it time consuming
       to change network architecture that uses historical IPv4
       addresses in an inefficient manner.

       However, the difficulties felt by these networks is outweighed
       by the greater benefits of ensuring that the remaining IPv4
       address space is delegated to networks with a genuine need for
       IPv4 allocations.


6.  Effect on APNIC members
---------------------------

APNIC members who have applied best practices for address space
management for all their address ranges will not be affected.

APNIC members who have not applied best practices for all their
address ranges may need to modify their management of historical
addresses before they can qualify for IPv4 addresses from APNIC.

There will be no impact on fees paid by members.


7.  Effect on NIRs
------------------

The proposal has no direct impact on NIRS, but impacts members of NIRs
in the same way it impacts APNIC members.


8.   References
---------------

[1]  Historical resources definition
       http://www.apnic.net/policy/historical-resource-policies.html#2.2