IEEE Technology and Society Magazine - December 2021 - 70

Soft Law Governance of Artificial Intelligence
raised the possibility of a framework convention
for AI in the European Union (EU) [15]. Such a
framework convention for AI governance would be
regional rather than global, as its members would
be limited to EU member states. Despite this geographical
limitation, higher regulatory standards
in the 27-member block may be a catalyst for an
AI governance " race to the top " given the strategic
importance of the EU for AI developers, and the
ongoing diffusion of EU legislation beyond their
own borders [16]. This approach, however, now
appears unlikely given the May 2021 announcement
of a draft EU regulation on AI [17].
Intergovernmental organizations
Intergovernmental organizations (IGOs) are institutions
which can bring together the political or
regulatory bodies of various states to facilitate collaboration,
expertise sharing, and harmonization
of norms. These IGOs can have more or less formal
structure and internal organization, ranging from less
formal entities such as the G7 or G20 to more autonomous
and bureaucratic units including the World
Trade Organization [18]. Over time, IGOs offer the
potential of aligning different states' interests in the
relevant subject matter [19].
The last several years have seen several IGOs
begin or accelerate activity on AI. In May 2019, the
Organization for Economic Co-operation and Development
(OECD), composed of 38 member countries
for the purposes of advancing policy cooperation
between mostly high-income countries, released a
recommendation carrying several guiding principles
for states to use in governing AI [20]. The following
month, the G20 adopted principles for AI governance
which drew substantially from the OECD's proposed
norms [21]. The International Medical Device
Regulators Forum (IMDRF), an IGO which convenes
regulatory bodies from ten large economies, has
recently begun discussions of how to best manage
AI-based medical devices, anchored in their framework
for software as a medical device [22].
While these are positive developments for the
governance of AI generally, these initiatives present
a number of limitations for addressing a rapidly
emerging and ubiquitous technology such as
AI. Lower income countries are, for the most part,
underrepresented (if present at all) in these forums,
being shaped instead by a relatively small, albeit
powerful, number of countries who are represented
70
across multiple IGO forums. The recommendations
and principles may lack the specificity needed
to create interoperability between countries and
regions. Furthermore, due to their opt-in nature,
norms established by IGOs may lack incentives for
state compliance. These limitations have the potential
to threaten the long-term reach and legitimacy of
these IGO initiatives around AI governance.
Public-private partnerships
Collaborations between public and private actors
open new structures and mechanisms for governance.
Public-private partnerships (PPPs or P3s) can
take many forms and have contested definitions, but
generally enable forums for cooperation among public
and private actors to provide services and make
decisions [23]. Especially at the international level,
P3s can take the shape of multistakeholder bodies
for discourse and norm setting on issues of public
import, potentially blending the legitimacy of the
state with private sector expertise to inform measured
and responsive policy. Such global governance
regimes can promote regulatory harmonization and
provide openings for civil society participation.
However, multistakeholder P3s also raise notable
questions of transparency, accountability, and democratic
legitimacy by distributing power between
state and nonstate actors [24].
The World Economic Forum (WEF) has advocated
for multistakeholderism as a powerful tool
for collaborative and effective global technology
governance [25]. In May 2019, the Forum, under
the leadership of its Center for the Fourth Industrial
Revolution, launched six Global Fourth Industrial
Revolution Councils (GFIRC) focused on restoring
trust in emerging technologies. The six technologies
were selected on the basis of pressing need, with
one of them being AI (the Global Artificial Intelligence
Council). As noted by the WEF at the time
of their launch [26], a key objective of the GRIFC's
will be to " develop policy guidance and address
'governance gaps' or the absence of well-defined
rules for emerging technology. " Each council is
made up of leading experts from the world with
representation from government, industry, NGOs,
and academia. Brad Smith, president of Microsoft,
and Lee Kai-Fu, Chairman and Chief Executive
Officer of Sinovation Ventures, were appointed as
the annual co-chairs of the Global Artificial Intelligence
Council [26]. While it is still too early to
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