[apnic-talk] Address Policy SIG paper

  • To: apnic-talk at lists dot apnic dot net
  • Subject: [apnic-talk] Address Policy SIG paper
  • From: Anne Lord <anne at apnic dot net>
  • Date: Wed, 27 Sep 2000 12:07:32 +1000 (EST)
  • Sender: owner-apnic-talk@lists.apnic.net
      Attached below is a draft paper titled "A proposal for establishing
      minimum criterial for a first allocation of address space by APNIC"
      This paper is being circulated in preparation for the upcoming
      Address Policy SIG at the APNIC meeting. This paper is now available 
      on the APNIC meeting web site, along with all other meeting
      documents at:
      Comments and discussion on this list are very welcome.
      Manager, Member Services,
      Problem definition
           A proposal for establishing minimum criteria for a first allocation 
           of address space by APNIC
      1. Motivation
      APNIC operates on an open membership basis, allowing any organisation to 
      become a member. It is often assumed, however, that IP address space is 
      automatically granted by APNIC to new members following their successful 
      membership application.
      APNIC does not currently have well defined criteria for making the initial 
      allocation of address space to a new member. However, such a set of 
      criteria would help to ensure consistent service to new members, clarity, 
      and transparency.
      2. Background
      Hierarchical routing, otherwise known as CIDR, as described in RFC1519, 
      controls of the growth of the global routing table and is essential for 
      effectively scaling the Internet.
      Under the auspices of IANA and ICANN, APNIC allocates PA address space to 
      its member ISPs (either directly or through an NIR). A goal of the system 
      of delegated RIR responsibility is to provide a framework for the 
      sustainable growth of the Internet. APNIC allocation policies are, 
      therefore, required to support 'provider based' allocations as required by 
      All APNIC documentation stresses that potential members should be aware 
      that applying for membership does not guarantee an allocation of resources. 
      However, many organisations appear to be unclear about the meaning of 
      APNIC's policies and the criteria for initial allocations, requesting 
      membership from APNIC even though their address space requirements are low. 
      These organisations are sent an information and membership package; of 
      these 13% do not return to APNIC.
      APNIC spends considerable hostmaster and administrative resources in 
      entering into ongoing discussion with such organisations. In applying, the 
      applicant also experiences frustration at going through the membership 
      application process and then being told to request the resources from their 
      upstream provider.
      3. Current status - RIR policies
      APNIC operates an open membership policy, such that any organisation can 
      become an APNIC member and can apply for allocations of Internet Resources. 
      This framework was derived from RIPE NCC.
      Applicants for membership who apply to become members with the intention of 
      obtaining IP addresses are required to complete a pre-membership 
      questionnaire. This requires an outline of future network deployment plans 
      so that APNIC is able to obtain an understanding of their requirements. 
      Applicants that are very small and singly homed are advised to contact 
      their upstream providers for address space before their membership 
      application is processed.
      The pre-membership process is aimed at discouraging potential members from 
      becoming LIRs if they are in the very small and singly-homed category. 
      However, as explained above, in many cases, as there are no fixed criteria, 
      membership is granted to organisations which would not qualify for address 
      space under the policies of ARIN.
       From membership application data collected over the month until 25 
      September, of 34 membership applicants, 13 were asked to send more 
      information clarifying their requirements. Such clarifications took the 
      form of network diagrams and equipment listings. Three of these applicants 
      had requirements that amounted to less than a /24 and five planned to use 
      less than a /22. In total eight (23%) were rejected immediately and 13 
      (38%) were approved, with the remainder ongoing.
      RIPE NCC
      RIPE NCC also operates an open membership policy with no strictly defined 
      minimum first allocation criteria. This process is very similar to the 
      APNIC process described above.
      ARIN operates an open membership policy but does not link allocations to 
      membership. A separate "Registration Services Agreement" is undertaken with 
      organisations requiring IP address space and membership is extended free of 
      charge to ISP organisations receiving allocations from ARIN.
      Minimum allocations (/20) are made to ISPs who are able to meet strict 
      allocation criteria. These criteria require that the organisation must be 
      multihomed and able to demonstrate that they have used a /21 from their 
      upstream provider. On receipt of an allocation from ARIN, the organisation 
      must agree to renumber from prior address space.
      4. Proposal
      4.1 Allocation criteria
      APNIC proposes the following policy.
      First allocations of address space will be made to members who are:
      1) Multi-homed. AND
      2) Have used a /22 from their upstream provider and can demonstrate  a 
      detailed plan for use of a /21 within a year.
      If the organisation is singly-homed or not yet connected to the Internet then:
      1) They must demonstrate a detailed plan for immediate use of a /22 for 
      infrastructure (within three months) and a /21 within one year. In this 
      case, documentary evidence may be required, including purchase receipts or 
      2) They must demonstrate a detailed plan to become multi-homed within three 
      months, with such plans to include peer AS numbers, contact names at the 
      connecting organisation, and a planned connection date.
      Note that allocations under this policy will be subject to the terms and 
      conditions of the APNIC leasing policy, and subject to revocation if the 
      conditions are not met.
      In either of the above cases, organisations renumbering must agree to do so 
      within one year of receiving their allocation.
      4.2 Refund
      If a member does not meet the first allocation criteria and is denied 
      address space within 6 months of their membership approval, they will be 
      able to receive a pro-rata refund (minus the start-up fee) in accordance 
      with the Membership Agreement clause, 25(see 
      5. Discussion
      APNIC proposes to establish clear criteria for making an initial 
      allocation, as detailed above.
      5.1 Advantages
      By providing a clear framework in which a first allocation is made to a 
      member, both applicants and APNIC will save considerable resources. 
      Organisations seeking address space will also have more certainty in the 
      membership process.
      The allocation policy will promote the aggregation and hierarchy necessary 
      to ensure scalable growth of the Internet.
      5.2 Disadvantages
      The networking characteristics of the region show that there are a large 
      number of small ISPs in the region. Analysis of APNIC membership categories 
      (which are determined by resources held) shows that out of a total of 550 
      members in August 2000, 406 (73%) members are in the small category which 
      is defined as holding less than or equivalent to a /19.
      The economic downturn in the region is showing signs of abating, 
      nevertheless there are many ISPs that approach APNIC with very small 
      requirements. While some may be accepted under current policies, more may 
      be turned away under the new criteria. In the region, there are also 
      countries which may be disadvantaged due to very limited (if any) Internet 
      For these reasons, APNIC has proposed that the requirement for immediate 
      utilisation of address space be set at /22 (relatively small when compared 
      with ARIN's requirement for ISPs to have used a /21 from their upstream 
      6. Conclusion
      It is recommended that clearly defined criteria for the first allocation 
      are established as proposed above, taking into account regional and 
      topological considerations.
      To ensure consistency in the region, there is also an expectation that the 
      NIRs will implement this proposal in accordance with their own policy 
      7. Implementation
      It is proposed that APNIC implement this new policy three months after 
      consensus has been reached. All necessary supporting documents will be 
      prepared by APNIC before the implementation date. These will include 
      updating any necessary documentation, including request and membership 
      application forms. The community will be informed of the changes in policy 
      through the APNIC website and related mailing lists.
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