Minimum criteria for a first allocation of address space
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 CIDR.
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
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 listing. 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
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 orders.
AND
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 http://www.apnic.net/docs/corpdocs/membership-agreement.html)
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 infrastructure.
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 provider).
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 processes.
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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